DISASTER MANAGEMENT IN INDIA DISASTER MANAGEMENT 2011 This book has been prepared under the GoI-UNDP Disaster Risk Reduction Programme (2009-2012) DISASTER MANAGEMENT IN INDIA Ministry of Home Affairs Government of India c Disaster Management in India e ACKNOWLEDGEMENT The perception about disaster and its management has undergone a change following the enactment of the Disaster Management Act, 2005. The definition of disaster is now all encompassing, which includes not only the events emanating from natural and man-made causes, but even those events which are caused by accident or negligence. There was a long felt need to capture information about all such events occurring across the sectors and efforts made to mitigate them in the country and to collate them at one place in a global perspective. This book has been an effort towards realising this thought. This book in the present format is the outcome of the in-house compilation and analysis of information relating to disasters and their management gathered from different sources (domestic as well as the UN and other such agencies). All the three Directors in the Disaster Management Division, namely Shri J.P. Misra, Shri Dev Kumar and Shri Sanjay Agarwal have contributed inputs to this Book relating to their sectors. Support extended by Prof. Santosh Kumar, Shri R.K. Mall, former faculty and Shri Arun Sahdeo from NIDM have been very valuable in preparing an overview of the book. This book would have been impossible without the active support, suggestions and inputs of Dr. J. Radhakrishnan, Assistant Country Director (DM Unit), UNDP, New Delhi and the members of the UNDP Disaster Management Team including Shri Arvind Sinha, Consultant, UNDP. Support was extended by all the concerned ministries who provided the data that has been used in compiling this book. We sincerely acknowledge the organisations and the individuals whose photographs, figures and tables have been used in the presentation of this book for highlighting the issues concerned. While compiling disaster issues across the sectors, for the first time, with substantial information pertaining to other nodal ministries dealing with the subject, the chances of errors creeping in, is not ruled out. There would always be scope of improvement in the accuracy of material and analysis of facts. It is, however, expected that in the days to come, on the base prepared, this will be further improved upon, following the suggestions received from the end users. In producing this document, the cooperation extended by colleagues from different ministries/ departments and Government agencies is acknowledged. Without the consistent guidance and support extended by Shri G.K. Pillai, Union Home Secretary and Shri A.E. Ahmad, Secretary (Border Management) it would not have been possible to prepare this document. R. K. Srivastava Joint Secretary Ministry of Home Affairs Government of India Contents Chapter 1: Disasters in India - An Overview 1.1 Introduction 1 1.2 Etymology 1 1.3 Definition 1 1.4 Disasters not new to Mankind 1 1.5 Database 2 1.6 Disasters – Global Scenario 4 1.7 Vulnerability Profile of India 11 1.8 Climate Profile 14 1.9 Cause and Effect of Disasters 16 1.10 Droughts 17 1.11 Floods 18 1.12 Tropical Cyclones 21 1.13 Heat Wave 23 1.14 Cold Wave and Fog 25 1.15 Thunderstorm, Hailstorm and Dust Storm 26 1.16 Earthquakes 26 1.17 Landslides 29 1.18 Industrial and Chemical Disasters 30 1.19 Tsunami 32 1.20 Stampede 39 1.21 Nuclear Emergencies 40 1.22 Road Accidents 41 1.23 Rail Accidents 44 1.24 Air Accidents 45 1.25 Mine Disasters 46 1.26 Epidemics in India 49 1.27 Deaths due to Unnatural Cause 50 1.28 Conclusion 53 i Disaster Management in India Chapter 2: Institutional Framework 2.1 Evolution of Disaster Management in India 55 2.2 Disaster Management during British Administration and Post Independence 55 2.3 Emergence of Institutional Arrangement in India 55 2.4 Organisation and Structure of Disaster Management 55 2.5 Disaster Management Framework 55 2.6 Present Structure for Disaster Management in India 56 2.7 Disaster Management Act, 2005 57 2.8 National Disaster Management Authority (NDMA) 57 2.9 National Executive Committee (NEC) 59 2.10 State Disaster Management Authority (SDMA) 59 2.11 State Executive Committee (SEC) 59 2.12 District Disaster Management Authority (DDMA) 59 2.13 Institutional Framework for Metropolitan Cities 60 2.14 Hierarchical Structure of Authority and Committee 60 2.15 National Institute of Disaster Management (NIDM) 60 2.16. National Disaster Response Force (NDRF) 63 2.17 State Disaster Response Force (SDRF) 64 2.18 Civil Defence 64 2.19 Fire Services 66 2.20 National Civil Defence College (NCDC), Nagpur 67 2.21 National Fire Service College (NFSC), Nagpur 67 2.22 Home Guard 68 2.23 Interface between the Ministries for Disaster Management 68 Chapter 3: Policy and Guidelines 3.1 Introduction 71 3.2 National Policy on Disaster Management (NPDM) 71 3.3 National Plan on Disaster Management 71 3.4 Focus and Objectives of Guidelines 73 3.5 Management of Droughts 76 3.6 National Action Plan on Climate Change 77 3.7 Rules notified under the Disaster Management Act, 2005 77 3.8 Conclusion 79 ii Chapter 4: Prevention and Mitigation 4.1 Introduction 81 4.2 Mainstreaming of Disaster Risk Reduction in Developmental Strategy 81 4.3 National Disaster Mitigation Fund 83 4.5 Earthquakes 83 4.6 Cyclones 87 4.7 Floods 88 4.8 Study of Land Contour by Geological Survey of India (GSI) 90 4.9 Landslides 91 4.10 Tsunami 92 4.11 Droughts 92 4.12 Fire 93 4.13 Forest Fire Management 96 4.14 Oil Industry 96 4.15 Chemical Disasters 96 4.16 Prevention of Disasters in Mines 96 4.17 Epidemics 97 4.18 Measures taken for Rail Safety 98 4.19 Road 100 4.20 Civil Aviation 101 4.21 Conclusion 101 Chapter 5: Preparedness and Response 5.1 Introduction 103 5.2 Institutional Arrangements 103 5.3 India Meteorological Department (IMD) 104 5.4 Forecast of Rainfall 104 5.5 Forecasting System - Background 105 5.6 Forecasting and Warning of Cyclones 106 5.7 Flood Forecasting – Central Water Commission 107 5.8 Tsunami warning – Indian National Centre for Oceanic Information System (INCOIS) 108 5.9 Warning about Landslide hazard – Geological Survey of India (GSI) 108 5.10 Avalanche warning – Defence Research & Development Organization (DRDO) 109 5.11 Disaster Management Support (DMS) – Indian Space Research Organization (ISRO) 109 iii Disaster Management in India 5.12 Radiological and Nuclear Emergencies 110 5.13 Installation of Radiological Detection Equipment 111 5.14 Director General of Mines Safety 111 5.15 Epidemic 112 5.16 Preparedness 112 5.17 Trigger Mechanism 113 5.18 Crisis Management Plan (CMP) and Standard Operating Procedures (SOPs) 113 5.19 Role and responsibility of Central and State Governments 113 5.20 Inter Agency Co-ordination Mechanism 114 5.21. Cabinet Committee on Management of Natural Calamities 114 5.22 National Crisis Management Committee (NCMC) 114 5.23 Crisis Management Group (CMG)/National Executive Committee 114 5.24 Role of the State Government 116 5.25 State Crisis Management Group (SCMG) 116 5.26 Role of District Administration 116 5.27 Role of Sub-district Administration 117 5.28 National Emergency Operation Centre (NEOC) 117 5.29 State Control Room 118 5.30 District Control Room 118 5.31 National Disaster Response Force (NDRF) 118 5.32 State Disaster Response Force (SDRF) 120 5.33 Policy for acceptance of External Assistance 120 5.34 Drought Relief Measures 121 5.35 Conclusion 123 Chapter 6: Recovery, Reconstruction and Rehabilitation 6.1 Background 125 6.2 Nature of Recovery 125 6.3 Guiding Principles for Post- Recovery 125 6.4 Assessment 126 6.5 Co-ordination 126 6.6 Shelter 126 6.7 Sustainability in Recovery Process 126 6.8 Accountability 127 6.9 Evaluation 127 iv 6.10 Guidance notes on Recovery 127 6.11 Some Indian experiences in Recovery in the last two decades 127 6.12 Bhopal Gas Tragedy (1984) 127 6.13 Kutch Earthquake (2001) 129 6.14 Tsunami (2004) 131 6.15 Kosi Calamity (2008) 135 6.16 Leh Cloudburst (2010) 137 6.17 Mayapuri Radiation Exposure Delhi-2010 140 6.18 Conclusion 141 Chapter 7: Capacity Development 7.1 An Overview 143 7.2 Definition 143 7.3 Approach 144 7.4 National Institute of Disaster Management (NIDM) 145 7.5 National Disaster Management Authority 146 7.6 Disaster Management Centres in the States 149 7.7 Training of the National Disaster Response Force (NDRF) 151 7.8 Incident Response System (IRS) 154 7.9 National Civil Defence College (NCDC), Nagpur 155 7.10 National Fire Service College (NFSC), Nagpur 158 7.11 Ministry of Human Resource Development: 159 7.12 Ministry of Panchayati Raj & Rural Development 160 7.13 Conclusions 161 Chapter 8: Financial Arrangements 8.1 Financing the Relief Expenditure 163 8.2 Recommendation of 13th Finance Commission 163 8.3 National Disaster Response Fund (NDRF) 164 8.4 Monitoring of Expenditure from Relief Funds 165 8.5 Disaster Response Reserve 165 8.6 Capacity Building Grant 165 8.7 Revamping of Fire Services 166 8.8 Environmental Relief Fund 167 8.9 Plan Schemes 169 8.10 Non-Plan Schemes 171 v Disaster Management in India 8.11 Externally Aided Schemes 171 8.12 Items and Norms of Assistance for Relief from NDRF and SDRF 173 8.13 Conclusion 173 Chapter 9: International Cooperation 9.1 Overview 175 9.2 Hyogo Framework of Action 175 9.3 Agencies of United Nations involved in Disaster Management 176 9.4 United Nations International Strategy for Disaster Reduction (UNISDR) 177 9.5 United Nation Disaster Management Team (UNDMT) 178 9.6 United Nations