REVITALIZING THE DISASTER RESPONSE MECHANISM IN FACE OF CALAMITY IN INDIA A Dissertation submitted to the Panjab University, Chandigarh for the award of Master of Philosophy in Social Sciences, in Partial Fulfillment of the requirement for the Advanced Professional Programme in Public Administration (APPPA) By Brigadier Kuldip Pathak, SM, VSM (Roll Number 4617) Under the guidance of Prof Vinod Kumar Sharma 46th ADVANCED PROFESSIONAL PROGRAMME IN PUBLIC ADMINISTRATION (2020-21) INDIAN INSTITUTE OF PUBLIC ADMINISTRATION NEW DELHI iii ACKNOWLEDGEMENTS I wish to place on record my sincere gratitude to Director General IIPA for giving me this opportunity to research and write this dissertation, which has immensely increased my awareness about the subject. I am indebted to Prof Vinod Kumar Sharma for support and valuable guidance at every stage of my dissertation work. He was the inspiration behind my taking up a subject of Disaster Management for my dissertation. My sincere thanks to the IIPA Library for making the research material available to me at a very short notice. I am also grateful to the staff of APPPA Office for their positive and timely administrative support. March 2021 Brigadier Kuldip Pathak Roll Number :4617 iv TABLE OF CONTENTS LIST OF TABLES vi LIST OF FIGURES vii ACRONYMS AND ABBREVIATIONS viii EXECUTIVE SUMMARY xi Chapter 1: Introduction 1 Statement of the Problem 3 Aim and Objectives of the Research 4 Hypothesis 5 Rationale and Justification 5 Research Questions 6 Methodology 6 Research Design 7 Literature Review 7 Research Methods and Data Sources 12 Chapterisation Scheme 12 CHAPTER II: Disasters and Risk Profile of India 14 General 14 What are Disasters? 16 Types of Disasters 17 Vulnerability of India to Disasters 18 India’s Disaster Risk Profile 18 Effects of Disaster –Natural & Manmade 20 Conclusion 34 CHAPTER III: Global & India’s Disaster Management framework 36 Diaster Mangement & Its Key Phases 37 Understanding Global Disaster Mangengement Framework 38 Hygo Framework for Action 2005-2015 40 Sendai Framework for Disaster Risk Management 43 Indian Disaster Management Framework 47 Disaster Management Act 2005 : Institutional and Policy Framework 48 National Disater Management Structure 49 v NDRF: Role, Organisation & Function 54 Indian Response Mechanism: In Face of Disasters 57 CHAPTER IV: Case Studies: Disaster Response During Uttarakhand Floods in 2013, Kerala Floods in AUG 2018 & Cyclone AMPHAN Iin 2020 61 Uttarakhand Floods; 2013 : Response Analysis & Lesson Learnt 61 Kerala Floods; 2018: Response Analysis & Lesson Learnt 71 Cyclone AMPHAN; 2020:Response Analysis & Lesson Learnt 81 Best Practises : State of Odhisa – Diaster Response & Mitgation 83 Chapter V: Disaster Response System of Developed Country: Japan 90 General 90 Disaster Management System 92 Disaster Response Mechanism 97 Disaster Response Forces 102 Lessons Learnt : Japan Disater Respone Mechanism 104 Chapter VI: Critical Analysis of Capabilities NDRF; Identification of Capabilities of Armed Forces to Strengthen Disaster Response Mechanism 108 Critical Appraisal of NDRF Performance 108 Disaster Management Act of 2005 & Armed Forces : Implications 116 Resources and Capabilities of Armed Forces: Strengths 120 Armed Forces in Disaster Management ; Principals of Employment 121 Ananlysis & Recommendations 123 Chapter VII : Recommendations To Strengthen Indian Disaster Response, in Face of Calamities 125 Inadequacies of our Disaster Management Response System 125 Best Practices : Japan Disater Mangement Response System 127 Recommendations to Strengthen the Response Mechanism 128 Conclusion 151 REFERENCES 153 vi LIST OF TABLES Table 1: Table 1: Major Natural Disasters That Affected Country( 1990-2020) 13 Table 2: Table 2: Categorization of Disasters 17 Table 3: Some Significant Earthquakes in India 18 Table 4: Deaths due to Heat Waves in India 29 Table 5: Number of Cold Waves in India 30 Table 6: Year wise Chemical Disasters in India during the last Decade 31 Table 7: Major Stampedes in India 2005-2010 32 Table 8: Incidents in Nuclear Facilities in India 33 Table 9 : Ministries/Departments/ Agencies Designated for HFA 43 Table 10: Ministries/Departments/ Agencies Designated for Disaster Management 51 Table 11 :Details of Rainfall and Water level data of Mandakini at Rudraprayag 61 Table 12: Post Disaster Assessment- Uttarakhand Floods 64 vii LIST OF FIGURES Figure 1 : Major Disater in India 14 Figure 2 : Multi Hazard Zones - India 18 Figure 3 : Flood Zones - India 22 Figure 4 : Cyclones & Tsunami - India 24 Figure 5 :Seismic Zones of India 26 Figure 6 : Rainfall Deficiency &Agriculture Production 28 Figure 7 : Land Slide Affected Areas 29 Figure 8 : Disaster Mangement Cycle 37 Figure 9 : National DM Frame Work 49 Figure 10: National DM Structure 50 Figure 11: NDRF Bns Locations & Their Respective Area of Responsibility 54 Figure 12 :Composition of NDRF Team Non NBC 51 Figure 13 : Composition of NDRF Tem NBC 56 Figure 14 : Location Map of the Area Devasted by Floods in Jun 2013 60 Figure 15 : Kedernath Town :Before & After 62 Figure 16 : Map Showing Locations of Dams & Areas Affected 72 Figure 17 : Losses in Kerala Floods 74 Figure 18 : Japans’s Geograhical Vulnerability to Disasters 90 Figure 19 : Casulties in Disaters in Japan 91 Figure 20 : Composition of CDMC 94 Figure 21: Basic Scheme of DCBA 95 Figure 22: Structure of Disaster Management Plan of Japan 96 Figure 23: Organisation of Disaster Management System: Japan 98 Figure 24: Response by the Cabinet Office: Level of Disaster 99 Figure 25: Countermeasure against Scale Earthquakes 100 Figure 26: Specific Emergency Management Plan for a Nankai Trough Earthquake 101 Figure 27: Trends in Volunteer subscription for Disaster Management 103 viii ACRONYMS AND ABBREVIATIONS ARMVs Accident Relief Medical Vans ACAS Assistant Chief of Air Staff ACNS Assistant Chief of Naval Staff ACIDS Assistant Chief of Integrated Defence Staff BIS Bureau of Indian Standards CAG Comptroller and Auditor General CADRE Community Action for Disaster Response CBRN Chemical, Biological, Radiological and Nuclear CBOs Community Based Organisations CCS Cabinet Committee on Security CD Civil Defence CDRI Coalition for Disaster Resilient Infrastructure CISC Chief of Integrated Staff of the Chairman Chiefs of Staff Committee CMG Crisis Management Group COP Conference of Parties CBRN Chemical, Biological, Radiological and Nuclear CCMNC Cabinet Committee on Management of Natural Calamities CPMF Central Para Military Forces CPWD Central Public Works Department CRED Centre for Research on the Epidemiology of Disasters CSSR Collapsed Structure Search and Rescue CSR Corporate Social Responsibility CRF Calamity Relief Fund CWC Central Water Commission DM Disaster Management DCBA Disaster Countermeasures Basic Act DCMG Defence Crisis Management Group DCNS Deputy Chief of Naval Staff DDMA District Disaster Management Authority DEOC District Emergency Operations Centre DGMO Director General of Military Operations DMAT Disaster Medical Assistance Team DRDO Defence Research and Development Organization ix DRR Disaster Risk Reduction DTC Decontamination and Treatment Centre EM-DAT Emergency Events Database EOC Emergency Operations Centre (Control Room) ETF Engineers Task force FEMA Federal Emergency Management Agency GDP Gross Domestic Production GIS Geographic Information System GP Gram Panchayat GPS Global Positioning System GOI Government of India HADR Humanitarian Assistance and Relief HPC High Powered Committee HOPE Hospital Preparedness for Emergencies IAF Indian Air Force ICT Information and Communication Technology IDNDR International Decade for Natural Disaster Risk Reduction IDRN India Disaster Resource Network IDS Integrated Defence Staff IEC International SAR Advisory Group External Certification IIT Indian Institute of Technology IMD Indian Metrological Department INSARAG International Search and Rescue Advisory Group IRT Incident Response Team JMAT Japan Medical Associations Team KSEB Kerala State Electricity Board KWA Kerala Water Authority MEA Ministry of External Affairs MERT Medical Emergency Response Team MFR Medical First Response MHA Ministry of Home Affairs MSDF Maritime Self Defence Forces NCMC National Crisis Management Committee NDMA National Disaster Management Authority NDRF National Disaster Response Force x NDMP National Disaster Management Programme NDRF National Disaster Response Force NEC National Executive Committee NEOC National Emergency Operations Centre NSG National Security Guard NCC National Cadet Corps NCCF National Calamity Contingency Fund NCMC National Crisis Management Committee NDEM National Database for Emergency Management NDMA National Disaster Management Authority NDMF National Disaster Mitigation Fund NGOs Non-Governmental Organisations NIDM National Institute of Disaster Management NITs National Institutes of Technology PIB Press Information Bureau QRT Quick Reaction Team SAR Search and Rescue SDMA State Disaster Management Authority SDG Sustainable Development Goal SDRF State Disaster Response Force SEC State Executive Committee SEOC State Emergency Operation Centre SNC Southern Naval Command SOPs Standard Operating Procedures SWR Swift Water Rescue ULBs Urban Local Bodies TA Territorial Army UN / DAC UN Disaster Assessment and Coordination UN / ISDR United Nations / International Strategy for Disaster Reduction UN-OCHA United Nations Office for the Coordination of Humanitarian Affairs USAR Urban Search and Rescue VSAT Very Small Aperture Terminal WCDRR World Conference on Disaster