IMPORTANCE OF DISASTER MANGEMENT

SKILLS
SUBMITTED TO MR. SAURABH

SUBMITTED BY
SAHIL CHOWDHURY
B.A. LL.B. (HONS.) 10TH SEMESTER
5TH YEAR

0 | Page

ACKNOWLEDGEMENT
Firstly, I would like to express my profound sense of gratitude towards the Almighty
ALLAH for providing me with the authentic circumstances which were mandatory for the
completion of my research work.
I am also thankful to Mr. Saurabh, for his invaluable support, encouragement, supervision
and useful suggestions throughout this research work. His moral support and continuous
guidance enabled me to complete my work successfully. His intellectual thrust and blessings
motivated me to work rigorously on this study. In fact this study could not have seen the light
of the day if his contribution had not been available. It would be no exaggeration to say that it
is her unflinching faith and unquestioning support that has provided the sustenance necessary
to see it through to its present shape.

Sahil Chowdhury
B.A.LL.B (Hons) 10th Semester
5th Year

1 | Page

TABLE OF CONTENT
Chapter -1
INTRODUCTION

1.1 Executive Summary

1.2 Overview
1.3 Objectives of the project and study
1.4 Research and Methodology
1.5 Limitations

4
5
5
5
9

Chapter-2
THEORITICAL FRAMEWORK

10

2.1 Introduction
2.2 Disaster Mitigation
2.3 Awareness about Disasters

10
11
19

Chapter-3
THE DISASTER MANAEGEMENT

23

3.1 Importance of Disaster Management

3.2 Role of Municipalities in Disaster Management
3.3 Place Declared as Disaster Area
3.4 Identifying Disaster Hazards
3.5 Prevent Disasters
3.6 Prevention of Fire Disasters

24
24
25
26
26
27

Chapter-4
SCHEME OF NATURAL DISASTERS

28

4.1 Brief Note

4.2 Status position of Natural Disaster

28
31

Chapter-5
DISASTER MANAGEMENT CYCLE

32

5.1 Types of Disasters

5.2 Victims and Survivors
5.3 The Second Disaster

34
34
34
2 | Page

5.4 Peculiarities of Tsunami

5.5 Psycho Social aspects of Disaster
5.6 Post-traumatic stress disorder
5.7 Disaster syndrome
5.8 Meaning of loss

35
35
36
37
37

Chapter-6
APPROACHES

39

6.1 Integrated approach

6.2 The latest perspective
6.3 Workshop and Counselling
6.4 Quality Statistics
6.5 Conclusion
6.6 Measures to solve the problems
6.7 Bibliography

39
39
41
42
42
43
44

CHAPTER1- INTRODUCTION
1.1EXECUTIVE SUMMARRY
The Yokohama message emanating from the international decade for natural disaster
reduction in May 1994 underlined the need for an emphatic shift in the strategy for disaster
mitigation. It was inter-alia stressed that disaster prevention, mitigation, preparedness and
relief are four elements which contribute to and gain, from the implementation of the
sustainable development policies. These elements along with environmental protection and
3 | Page

sustainable development, are closely inter related. Therefore, nations should incorporate them
in their development plans and ensure efficient follow up measures at the community, subregional, regional, national and international levels. The Yokohama Strategy also emphasized
that disaster prevention, mitigation and preparedness are better than disaster response in
achieving the goals and objectives of vulnerability reduction. Disaster response alone is not
sufficient as it yields only temporary results at a very high cost. Prevention and mitigation
contribute to lasting improvement in safety and are essential to integrated disaster
management.
The Government of India have adopted mitigation and prevention as essential components of
their development strategy. The Tenth Five Year Plan document has a detailed chapter on
Disaster Management. The plan emphasizes the fact that development cannot be sustainable
without mitigation being built into developmental process. Each State is supposed to prepare
a plan scheme for disaster mitigation in accordance with the approach outlined in the plan. In
brief, mitigation is being institutionalized into developmental planning.
The Finance Commission makes recommendations with regard to devolution of funds
between the Central Government and State Governments as also outlays for relief and
rehabilitation. The earlier Finance Commissions were mandated to look at relief and
rehabilitation. The Terms of Reference of the Twelfth Finance Commission have been
changed and the Finance Commission has been mandated to look at the requirements for
mitigation and prevention apart from its existing mandate of looking at relief and
rehabilitation. A Memorandum has been submitted to the Twelfth Finance Commission after
consultation with States. The Memorandum proposes a Mitigation Fund.

1.2 OVERVIEW
The repertoire of Indigenous Knowledge that communities in the four study areas Kenya,
Tanzania, Swaziland and South Africa draw on to deal with natural disasters is very large.
This knowledge serves communities well within the traditional power structures. The
successful application of this knowledge is based on good prognosis, close observation and a
thorough understanding of the local environment.
These elaborate power structures ensure that communities are properly guided on the actions
to take to prevent or mitigate disasters. Signs of coming disaster are obvious to everyone and
4 | Page

this leads to instinctive response and preparation for coming events without necessarily being
instructed as such by elders.
People revere elders in their role of divining climatic conditions and natural disasters. The
culture and belief system of a community also influences its response to disaster. In most
communities disasters were believed to be of supernatural origin and as such the communities
affected resigned themselves to the fact that they had no power to stop them once triggered
but could only mitigate their effects.

1.3OBJECTIVES OF THE PROJECT & STUDY

The main objectives of the project are:

To understand the concepts disaster management skills

To study about disaster management.
To explain what are disaster management skills.
To explain the importance of disaster management skills.
To find the strategy for development of disaster management

1.4RESEARCH METHODOLOGY
Without proper methods one cannot make a project. For this purpose research design is
required. Research design is blue print for collection, measurement and analysis of data.it is
framework of project that stimulates what information is to be collected from which sources
and by what procedure.
There are four types of research methodology which are as follow:

Descriptive Research
Exploratory Research
Explanatory Research
Conclusive Research

DESCRIPTIVE RESEARCH
5 | Page

Descriptive research is used to obtain information concerning the current status of the
phenomena to describe what exists with respect to variables or conditions in a situation.
The methods involved range from the survey which describes the status, the correlation study
which investigates the relationship between variables, to developmental studies which seek to
determine changes over time.
Descriptive research is also called Statistical Research. The main goal of this type of research
is to describe the data and characteristics about what is being studied. The idea behind this
type of research is to study frequencies, averages, and other statistical calculations. Although
this research is highly accurate, it does not gather the causes behind a situation. Descriptive
research is mainly done when a researcher wants to gain a better understanding of a topic for
example, a frozen ready meals company learns that there is a growing demand for fresh ready
meals but does not know much about the area of fresh food and so has to carry out research in
order to gain a better understanding. It is quantitative and uses surveys and panels and also
the use of probability sampling.
Descriptive research is the exploration of the existing certain phenomena. The details of the
facts wont be known. The existing phenomena facts are not known to the persons.

THE PRESENT RESEARCH IS OF

DESCRIPTIVE IN NATURE.
This project is of descriptive in nature because it is used to obtain information concerning the
current status of the phenomena to describe what exists with respect to variables or
conditions in a situation. The methods involved range from the survey which describes the
status, the correlation study which investigates the relationship between variables, to
developmental studies which seek to determine changes over time. The main goal of this type
of research is to describe the data and characteristics about what is being studied. It is mainly
done when a researcher wants to gain a better understanding of a topic.

DATA COLLECTION
6 | Page

It refers to collection of information .for a research to suceed rawfacts must be collected in a

form which helps in effective production of result and meeting the objective of study.
PRIMARY DATA
Data observed or collected directly from first-hand experience. Primary data is the data which
is collected by the researcher directly from his own observations and experiences. For
example, if the researcher conducts a survey for the collected of data then it is known as
primary data.
PRIMARY DATA SOURCES
Primary source is a term used in a number of disciplines to describe source material that is
closest to the person, information, period, or idea being studied.
Primary data collection is necessary when a researcher cannot find the data needed in
secondary

sources.

Market

researchers

demographic/socioeconomic

are

interested

characteristics,

in

primary

data

about

attitudes/opinions/interests,

awareness/knowledge, intentions, motivation, and behavior. Three basic means of obtaining

primary data are observation, surveys, and experiments. The choice will be influenced by the
nature of the problem and by the availability of time and money.
Examples include surveys, interviews, observations, and ethnographic research. A good
researcher knows how to use both primary and secondary sources in her writing and to
integrate them in a cohesive fashion.
Conducting primary research is a useful skill to acquire as it can greatly supplement research
in secondary sources, such as journals, magazines, or books. Primary research is an excellent
skill to learn as it can be useful in a variety of settings including business, personal, and
academics. "Primary sources provide the 'raw data' that you use first to test the working
hypothesis and then as evidence to support your claim. In history, for example, primary
sources include documents from the period or person you are studying, objects, maps, even
clothing; in literature or philosophy, your main primary source is usually the text you are
studying, and your data are the words on the page. In such fields you can rarely write a
research paper without using primary.

SECONDARY DATA
7 | Page

Published data and the data collected in the past or other parties is called secondary data
Secondary data is data that has already been collected and collated by somebody for some
reason other than the current study. It can be used to get a new perspective on the current
study, to supplement or compare the work or to use parts of it, as another study may prove
costly and time consuming e.g. the census. "Secondary sources are research reports that use
primary data to solve research problems, written for scholarly and professional audiences.
Researchers read them to keep up with their field and use what they read to frame problems
of their own by disputing other researchers' conclusions or questioning their methods. You
can use their data to support your argument, but only if you cannot find those data in a
primary source." A secondary source is a report on the findings of the primary source. While
not as authoritative as the primary source, the secondary source often provides a broad
background and readily improves one's learning curve. Most textbooks are secondary
sources; they report and summarize the primary sources." "Secondary data is neither better
nor worse than primary data; it is simply different. The source of the data is not as important
as its quality and its relevance for your particular purpose. The major advantages of using
secondary data are economic: using secondary data is less costly and time-consuming than
collecting primary data. Its disadvantages relate not only to the availability of sufficient
secondary data but also to the quality of the data that is available. Never use any data before
you have evaluated its appropriateness for the intended purpose." Secondary data analysis
saves time that would otherwise be spent collecting data and, particularly in the case of
quantitative data, provides larger and higher-quality databases than would be unfeasible for
any individual researcher to collect on their own. In addition to that, analysts of social and
economic change consider secondary data essential, since it is impossible to conduct a new
survey that can adequately capture past change and/or developments.
The present study is based on secondary data.

1.5LIMITATIONS
The following may be the perceived limitation of the proposed study:

Secondary data is used for this project because of due to time constraint it was not

possible to collect primary data using interviews or questionnaires.

Researches done only on disaster management.
Limited time was provided to complete the study.
8 | Page

Cost involved in collecting the data was high.

CHAPTER 2
THEORITICAL FRAMEWORK

2.1 INTRODUCTION
Disaster management is a process or strategy that is implemented when any type of
catastrophic event takes place. Sometimes referred to as disaster recovery management, the
process may be initiated when anything threatens to disrupt normal operations or puts the
lives of human beings at risk. Governments on all levels as well as many businesses create
some sort of disaster plan that make it possible to overcome the catastrophe and return to
normal function as quickly as possible.
The Government of India have issued guidelines that where there is a shelf of projects,
projects addressing mitigation will be given a priority. It has also been mandated that each
project in a hazard prone area will have disaster prevention/mitigation as a term of reference
and the project document has to reflect as to how the project addresses that term of reference.
9 | Page

Measures for flood mitigation were taken from 1950 onwards. As against the total of 40
million hectares prone to floods, area of about 15 million hectares has been protected by
construction of embankments. A number of dams and barrages have been constructed. The
State Governments have been assisted to take up mitigation programmes like construction of
raised platforms etc. Floods continue to be a menace however mainly because of the huge
quantum of silt being carried by the rivers emanating from the Himalayas. This silt has raised
the bed level in many rivers to above the level of the countryside. Embankments have also
given rise to problems of drainage with heavy rainfall leading to water logging in areas
outside the embankment. To evolve both short-term and long-term strategy for flood
management/erosion control, Government of India has recently constituted a Central Task
Force under the Chairmanship of Chairman, Central Water Commission. The Task Force will
examine causes of the problem of recurring floods and erosion in States and region prone to
flood and erosion; and suggest short-term and long-term measures. The Task Force will
submit its report by December 2004.
Due to erratic behaviour of monsoons, both low and medium rain fall regions, which
constitute about 68% of the total area, are vulnerable to periodical droughts. Our experience
has been that almost every third year is a drought year. However, in some of the States, there
may be successive drought years enhancing the vulnerability of the population in these areas.
Local communities have devised indigenous safety mechanisms and drought oriented farming
methods in many parts of the country. From the experience of managing the past droughts
particularly the severe drought of 1987, a number of programmes have been launched by the
Government to mitigate the impact of drought in the long run. These programmes include
Drought Prone Area Programme (DPAP), Desert Development Programme (DDP), National
Watershed Development Project for Rainfed Areas (NWDPRA), Watershed Development
Programme for Shifting Cultivation (WDPSC), Integrated Water Development Project
(IWDP), Integrated Afforestation and Eco-development Project Scheme (IAEPS).

2.2 Disaster Mitigations

FLOOD PREPAREDNESS AND RESPONSE
In order to respond effectively to floods, Ministry of Home Affairs have initiated National
Disaster Risk Management Programme in all the flood-prone States. Assistance is being
10 | P a g e

provided to the States to draw up disaster management plans at the State, District,
Block/Taluka and Village levels. Awareness generation campaigns to sensitize all the
stakeholders on the need for flood preparedness and mitigation measures. Elected
representatives and officials are being trained in flood disaster management under the
programme. Bihar Orissa, West Bengal, Assam and Uttar Pradesh are among the 17 multihazard prone States where this programme is being implemented with UNDP. USAID and
European Commission.
EARTHQUAKE RISK MITIGATION
A comprehensive programme has been taken up for earthquake risk mitigation. Although, the
BIS has laid down the standards for construction in the seismic zones, these were not being
followed. The building construction in urban and suburban areas is regulated by the Town
and Country Planning Acts and Building Regulations. In many cases, the Building regulations
do not incorporate the BIS codes. Even where they do, the lack of knowledge regarding
seismically safe construction among the architects and engineers as well as lack of awareness
regarding their vulnerability among the population led to most of the construction in the
urban/sub-urban areas being without reference to BIS standards. In the rural areas, the bulk of
the housing is non-engineered construction. The mode of construction in the rural areas has
also changed from mud and thatch to brick and concrete construction thereby increasing the
vulnerability. The increasing population has led to settlements in vulnerable areas close to the
river bed areas which are prone to liquefaction. The Government have moved to address these
issues.
NATIONAL CORE GROUP FOR EARTHQUAKE RISK MITIGATION
A National Core Group for Earthquake Risk Mitigation has been constituted consisting of
experts in earthquake engineering and administrators. The Core Group has been assigned
with the responsibility of drawing up a strategy and plan of action for mitigating the impact
of earthquakes; providing advice and guidance to the States on various aspects of earthquake
mitigation; developing/organizing the preparation of handbooks/pamphlets/type designs for
earthquake resistant construction; working out systems for assisting the States in the
seismically vulnerable zones to adopt/integrate appropriate Bureau of Indian Standards codes
in their building byelaws; evolving systems for training of municipal engineers as also
practicing architects and engineers in the private sector in the salient features of Bureau of
11 | P a g e

Indian Standards codes and the amended byelaws; evolving a system of certification of
architects/engineers for testing their knowledge of earthquake resistant construction; evolving
systems for training of masons and carry out intensive awareness generation campaigns.
REVIEW OF BUILDING BYE-LAWS AND THEIR ADOPTION
Most casualties during earthquakes are caused by the collapse of structures. Therefore
structural mitigation measures are the key to make a significant impact towards earthquake
safety in our country. In view of this the States in earthquake prone zones have been
requested to review, and if necessary, amend their building bye-laws to incorporate the BIS
seismic codes for construction in the concerned zones. Many States have initiated necessary
action in this regard. An Expert Committee appointed by the Core Group on Earthquake Risk
Mitigation has already submitted its report covering appropriate amendments to the existing
Town & Country Planning Acts, Land Use Zoning Regulation, Development Control
Regulations & Building Bylaws, which could be used by the State Governments & the local
bodies there-under to upgrade the existing legal instruments. The Model Building Bylaws
also cover the aspect of ensuring technical implementation of the safety aspects in all new
constructions & upgrading the strength of existing structurally vulnerable constructions. To
facilitate the review of existing building byelaws and adoption of the proposed amendments
by the State Governments & UT administrations, discussion workshops at regional level in
the country are being organized. It is expected that all planning authorities and local bodies
will soon have development control regulations and building byelaws which would include
multi-hazard safety provisions.
DEVELOPMENT AND REVISION OF CODES
There are Bureau of Indian Standard (BIS) codes which are relevant for multi-hazard
resistant design and construction. These codes have to be regularly updated. An action plan
has been drawn up for revision of existing codes, development of new codes and
documents/commentaries, and making these codes and documents available all over the
country including on-line access to these codes. An Apex committee consisting of
representatives of Ministry of Consumer Affairs, BIS and MHA has been constituted to
review the mechanism and process of development of codes relevant to earthquake risk
mitigation and establish a protocol for revision by BIS.
HAZARD SAFETY CELLS IN STATES
12 | P a g e

The States have been advised to constitute Hazard Safety Cells (HSC) headed by the Chief
Engineer (Designs), State Public Works Department with necessary engineering staff so as to
establish mechanism for proper implementation of the building codes in all future Govt.
constructions, and to ensures the safety of buildings and structures from various hazards. The
HSC will also be responsible for carrying out appropriate design review of all Government
buildings to be constructed in the State, act as an advisory cell to the State Government on the
different aspects of building safety against hazards and act as a consultant to the State
Government for retrofitting of the lifeline buildings. Rajasthan, West Bengal and Chhatisgarh
have already constituted these cells and other States are in the process.
National Programme for Capacity Building of Engineers and Architects in Earthquake Risk
Mitigation
Two National Programmes for Capacity Building in Earthquake Risk Mitigation for
Engineers and Architects respectively, have been approved to assist the State Govts in
building capacities for earthquake mitigation. These two programmes are being implemented
for training of 10,000 engineers and 10,000 architects in the States in seismically safe
building designs and related techno-legal requirements. Assistance is being provided to the
State/UTs to build the capacities of more than 125 State Engineering Colleges and 110
Architecture Colleges to be able to provide advisory services to the State Govts to put in
place appropriate techno-legal regime, assessment of building and infrastructures and their
retrofitting. These institutions will function as State Resource Institutions. Twenty-one
National level Engineering and Architecture Institutions have been designated as National
Resource Institutes to train the faculty members of selected State Engineering and
Architecture colleges. 450 engineering faculty members and 250 architecture faculty
members of these State Resource Institutions will be trained during the current year.
TRAINING OF RURAL MASONS
A programme to assist the States/UTs in training and certification of 50000 masons has been
formulated in conultation with Housing and Urban Development Corporation (HUDCO) and
the Ministry of Rural Development. The training module for masons to include multi-hazard
resistant construction has also been prepared by an expert committee, and revised curriculum
will be introduced in the vocational training programme of Ministry of Human Resource
Development.
13 | P a g e

EARTHQUAKE

ENGINEERING

IN

UNDERGRADUATE

ENGINEERING/ARCHITECTURE CURRICULAR
The role of engineers and architects is crucial in reducing earthquake risks by ensuring that
the construction adhere to the norms of seismically safety. In view of this, the elements of
earthquake engineering is being integrated into the undergraduate engineering and
architecture courses. The model course curricula for adoption by various technical institutions
and universities have been developed and circulated to the Universities and Technical
Institutions for adoption in the under graduate curricula. Ministry of Home Affairs is working
with All India Council of Technical Education (AICTE) and Council of Architecture (COA)
for introduction of revised curricula for engineering and architecture course from 2005-2006.
HOSPITAL PREPAREDNESS AND EMERGENCY HEALTH MANAGEMENT IN
MEDICAL EDUCATION
Hospital preparedness is crucial to any disaster response system. Each hospital should have
an emergency preparedness plan to deal with mass casualty incidents and the hospital
administration/ doctor trained for this emergency. The curriculum for medical doctors does
not include Hospital Preparedness for emergencies. Therefore capacity building through inservice training of the current heath managers and medical personnel in Hospital
Preparedness for emergencies or mass causality incident management is essential. At the
same time, the future health managers must acquire these skills systematically through the
inclusion of health emergency management in the undergraduate and post graduate medical
curricula. In consultation with Medical Council of India(MCI), two committees have been
constituted for preparation of curriculum for introduction of emergency health management
in MBBS curriculum, and preparation of in-service training of Hospital Managers and
Professionals. Rajiv Gandhi University of Health Sciences Karnataka have been identified as
the lead national resource institution for the purpose.
RETROFITTING OF LIFELINE BUILDINGS
While these mitigation measures will take care of the new constructions, the problem of
unsafe existing buildings stock would still remain. It will not be possible to address the entire
existing building stock, therefore the life line buildings like hospitals, schools or buildings
where people congregate like cinema halls, multi-storied apartments are being focussed on.
The States have been advised to have these buildings assessed and where necessary
14 | P a g e

retrofitted. The Ministries of Civil Aviation, Railways, Telecommunication, Power and Health
and Family Welfare have been advised to take up necessary action for detailed evaluation and
retrofitting of lifeline buildings located in seismically vulnerable zones so as to ensure that
they comply with BIS norms, Action plan have been drawn up by these Ministries for
detailed vulnerability analysis and retrofitting/ strengthening of buildings and structures. The
Ministry of Finance have been requested to advise the financial institutions to give loans for
retrofitting on easy terms. Accordingly the Ministry of Finance had advised Reserve Bank of
India to issue suitable instructions to all the Banks and Financial Institutions to see that BIS
codes/bye laws are scrupulously followed while financing/refinancing construction activities
in seismically vulnerable zones.
NATIONAL EARTHQUAKE RISK MITIGATION PROJECT
An Earthquake Mitigation Project has been drawn up, with an estimated cost of Rs.1132
crore. The project has been given in-principle clearance by the Planning Commission. The
programme includes detailed evaluation and retrofitting of lifeline buildings such as
hospitals, schools, water and power supply units, telecommunication buildings,
airports/airport control towers, railway stations, bus stands and important administrative
buildings in the States in seismic zones IV and V. The programme also includes training of
masons in earthquake resistant constructions. Besides, assistance will be provided under this
project to the State Governments to put in place appropriate techno legal regime. Startup
activities for implementation of this project have already been initiated.
ACCELERATION

URBAN

EARTHQUAKE

VULNERABILITY

REDUCTION

PROGRAMME
An accelerated urban earthquake vulnerability reduction programme has been taken up in 38
cities in seismic zones III, IV & V with population of half a million and above. 474
Orientation programmes have been organized for senior officers and representatives of the
local planning and development bodies to sensitize them on earthquake preparedness and
mitigation measures. The training programme for engineers and architects are being
organized to impart knowledge about seismically safe construction and implementation of
BIS norms. So far 1088 engineers and 825 architects have been trained. For enhanced school
safety, education programmes have been organized in schools, colleges and other educational
institutions. This programme will be further extended to 166 earthquake prone districts in
15 | P a g e

seismic zones IV & V. Awareness generation programmes, community and neighbourhood

organizations have been started in these cities. These cities are also being assisted to review
and amend their building bye-laws to incorporate multi hazard safety provisions. City
Disaster Management Plans are being developed under the project. Nine Cities have prepared
city Disaster Management Plans.
MAINSTREAMING MITIGATION IN RURAL DEVELOPMENT SCHEMES
Rural housing and community assets for vulnerable sections of the population are created at a
fairly large scale by the Ministry of Rural Development under the Indira Awas Yojna (IAY)
and Sampooran Grameen Rojgar Yojna (SGRY). About 250 thousand small but compact
housing units are constructed every year, besides community assets such as community
centres, recreation centres, anganwadi centres etc. Technology support is provided by about
two hundred rural housing centres spread over the entire country. The Ministry of Home
Affairs is working with the Ministry of Rural Development for changing the guidelines so
that the houses constructed under IAY or school buildings/community buildings constructed
under SGRY are earthquake/cyclone/flood resistant; as also that the schemes addressing
mitigation are given priority under SGRY. Ministry of Rural Development are carrying out an
exercise for this purpose. This initiative is expected to go a long way in popularization of
seismically safe construction at village/block level .
NATIONAL CYCLONE MITIGATION PROJECT
A project for Cyclone Mitigation (estimated cost Rs. 1050 crore) has been drawn up in
consultation with the cyclone prone States. This project envisages construction of cyclone
shelters, coastal shelter belt plantation in areas which are prone to storm surges, strengthening
of warning systems, training and education etc. This project has also been given in-principle
clearance by the Planning Commission and is being taken up with World Bank assistance.
LANDSLIDE HAZARD MITIGATION
A National Core Group has been constituted under the Chairmanship of Secretary, Border
Management and comprising of Secretary, Department of Science and Technology, Secretary,
Road Transport & Highways, and the Heads of Geological Survey of India and National
Remote Sensing Agency for drawing up a strategy and plan of action for mitigating the
impact of landslides, provide advise and guidance to the State Governments on various
16 | P a g e

aspects of landslide mitigation, monitor the activities relating to landslide mitigation

including landslide hazard zonation and to evolve early warning systems and protocols for
landslides/landslide risk reduction. The Government have designated Geological Survey of
India (GSI) as the nodal agency responsible for coordinating/ undertaking geological studies,
landslides hazard zonation, monitoring landslides/avalanches, studying the factors
responsible and suggesting precautionary and preventive measure. The States/UTs have been
requested to share the list of habitation close to landslide prone areas in order to supplement
GSIs on going assessment of such areas based on the Survey of Indias Toposheet and their
existing data base on landslide for the purpose of landslide hazard zonation being carried out
by them. A national strategy for mitigating landslide hazard in the country is being drawn up
in consultation with all the agencies concerned.
DISASTER RISK MANAGEMENT PROGRAMME
A Disaster Risk Management Programme has been taken up in 169 districts in 17 multihazard prone States with the assistance from UNDP, USAID and European Union. Under this
project, the States are being assisted to draw up State, district and Block level disaster
management plans; village disaster management plans are being developed in conjunction
with the Panchayati Raj Institutions and disaster management teams consisting of village
volunteers are being trained in various preparedness and response functions such as search
and rescue, first aid, relief coordination, shelter management etc. Equipment needs for district
and State Emergency Operation Centres have been identified by the State nodal agencies and
equipment is being provided to equip these EOCs. Orientation training of masons, engineers
and architects in disaster resistant technologies have been initiated in these districts and
construction of model demonstration buildings will be started soon.
Under this programme Disaster Management Plans have been prepared for 8643 villages,
1046 Gram Panchayat, 188 blocks and 82 districts. More than 29000 elected representatives
of Panchayati Raj Institutions have already been trained, besides imparting training to
members of voluntary organizations. About 18000 Government functionaries have been
trained in disaster mitigation and preparedness at different levels. 865 engineers and 425
architects have been trained under this programme in vulnerability assessment and retrofitting
of lifeline buildings. 600 master trainers and 1200 teachers have already been trained in
different districts in disaster preparedness and mitigation. Disaster Management Committees
consisting of elected representatives, civil society members, Civil Defence volunteers and
17 | P a g e

Government functionaries have been constituted at all levels including village/urban local
body/ward levels. Disaster Management Teams have been constituted in villages and are
being imparted training in basic functions of first aid, rescue, evacuation and related issues.
The thrust of the programme is to build up capabilities of the community since the
community is invariably the first responder. During the recent past, it has been experienced
that the capacity building of the community has been very helpful even in normal situations
when isolated instances of drowning, burns etc. take place. With the creation of awareness
generation on disaster mitigation, the community will be able to function as a well-knit unit
in case of any emergency. Mock drills are carried out from time to time under the close
supervision of Disaster Management Committees. The Disaster Management Committees and
Disaster Management Teams have been established by notifications issued by the State
Governments which will ensure that the entire system is institutionalized and does not
disintegrate after the conclusion of the programme. The key points being stressed under this
programme are the need to ensure sustainability of the programme, development of training
modules; manuals and codes, focused attention to awareness generation campaigns;
institutionalization of disaster management committees and disaster management teams,
disaster management plans and mock-drills and establishment of techno-legal regimes.

2.3 AWARENESS ABOUT DISASTERS

AWARENESS GENERATION
Recognizing that awareness about vulnerabilities is a sine qua non for inducing a mind-set of
disaster prevention, mitigation and preparedness, the Government has initiated a nation-wide
awareness generation campaign as part of its overall disaster risk management strategy. In
order to devise an effective and holistic campaign, a steering committee for mass media
campaign has been constituted at the national level with due representation of experts from
diverse streams of communication. The Committee has formulated a campaign strategy
aimed at changing peoples perception of natural hazards and has consulted the agencies and
experts associated with advertising and media to instil a culture of safety against natural
hazards.
Apart from the use of print and electronic media, it is proposed to utilize places with high
public visibility viz. hospitals, schools, railway stations and bus terminals, airports and post
18 | P a g e

offices, commercial complexes and municipality offices etc. to make people aware of their
vulnerabilities and promote creation of a safe living environment.
A novel method being tried is the use of government stationery viz. postal letters, bank
stationery, railway tickets, airline boarding cards and tickets etc. for disseminating the
message of disaster risk reduction. Slogans and messages for this purpose have already been
developed and have been communicated to concerned Ministries/agencies for printing and
dissemination. The mass media campaign will help build the knowledge, attitude and skills of
the people in vulnerability reduction and sustainable disaster risk management measures.
DISASTER AWARENESS IN SCHOOL CURRICULUM
Disaster management as a subject in Social Sciences has been introduced in the school
curriculum for Class VIII & IX. The Central Board of Secondary Education (CBSE) which
has introduced the curriculum runs a very large number of schools throughout the country
and the course curriculum is invariably followed by the State Boards of Secondary Education.
Teachers are being trained to teach disaster management Syllabus for Class X is being
finalized and will be introduced in the course curriculum soon. The State Governments have
been advised to take similar steps vis--vis their school boards. Several Provincial
Governments have already introduced the same curriculum in Class VII. Ministry is working
with the Council of Board of School Education (COBSE) to facilitate inclusion of disaster
management in public education in all 39 School Boards in the country.
INFORMATION, EDUCATION AND COMMUNICATION
In order to assist the State Governments in capacity building and awareness generation
activities and to learn from past experiences including sharing of best practices, the Ministry
of Home Affairs has compiled/prepared a set of resource materials developed by various
organisations/institutions to be replicated and disseminated by State Governments based on
their vulnerabilities after translating it into the local languages. The voluminous material
which runs in about 10000 pages has been divided into 4 broad sections in 7 volumes. These
sections cover planning to cope with disasters; education and training; construction toolkit;
and information, education and communication toolkit including multi-media resources on
disaster mitigation and preparedness. The Planning section contains material for analyzing a
communitys risk, development of Preparedness. Mitigation and disaster management plans,
coordinating available resources and implementing measures for risk reduction. The model
19 | P a g e

bye-laws, DM Policy, Act and model health sector plan have also been included. Education
and Training includes material for capacity building and up gradation of skills of policy
makers, administrators, trainers, engineers etc. in planning for and mitigating against natural
disasters. Basic and detailed training modules in disaster preparedness have been
incorporated along with training methodologies for trainers, for community preparedness and
manuals for training at district, block, panchayat and village levels. For creating a disasterresistant building environment, the Construction Toolkit addresses the issue of seismic
resistant construction and retrofitting of existing buildings. BIS Codes, manuals and
guidelines for RCC, Masonry and other construction methodologies as also for repair and
retrofitting of masonry and low-rise buildings have been included.
IEC material seeks to generate awareness to induce mitigation and preparedness measures for
risk reduction. Material and strategies used by various States and international organizations,
including tips on different hazards, have been incorporated along with multi-media CDs on
disasters. The material has been disseminated to all the State Governments/UT
Administrations with the request to have the relevant material, based on the vulnerability of
each district, culled out, translated into local languages and disseminate it widely down to the
village level.
SPECIAL FOCUS TO NORTH-EASTERN STATES
A special focus is being given to North-Eastern States and the Andaman & Nicobar Islands.
The North-Eastern Council has been made the nodal agency for the NE States. The NEC has
been provided with a resource person/advisor in disaster management. A detailed presentation
on the vulnerabilities of the NE region and the need for comprehensive disaster management
plan has been made in the Governing Body of NE Council. An action plan has been drawn up
by NEC and a declaration namely Shillong Declaration has been adopted by States in the
NE region for integrating disaster management with development planning. 140 officials and
non-officials have been trained in disaster management to act as resource persons for the NE
region. State and district level sensitization and training programmes are being carried out.
The various prevention and mitigation measures outlined above are aimed at building up the
capabilities of the communities, voluntary organisations and Government functionaries at all
levels. Particular stress is being laid on ensuring that these measures are institutionalized
considering the vast population and the geographical area of the country. This is a major task
20 | P a g e

being undertaken by the Government to put in place mitigation measures for vulnerability
reduction. This is just a beginning. The ultimate goal is to make prevention and mitigation a
part of normal day-to-day life. The above mentioned initiatives will be put in place and
information disseminated over a period of five to eight years. We have a firm conviction that
with these measures in place, we could say with confidence that disasters like Orissa cyclone
and Bhuj earthquake will not be allowed to recur in this country; at least not at the cost,
which the country has paid in these two disasters in terms of human lives, livestock, loss of
property and means of livelihood.

21 | P a g e

CHAPTER-3
THE DISASTER MANAGEMENT
DEFINITION OF DISASTER
Disaster is a crisis situation that far exceeds the capabilities.
- Quarentelly, 1985
Disaster is defined as a crisis situation causing wide spread damage which far exceeds our
ability to recover. Thus, by definition, there cannot be a perfect ideal system that prevents
damage, because then it would not be a disaster. It has to suffocate our ability to recover.
Only then it can be called as disaster.
Disasters are not totally discrete events. Their possibility of occurrence, time, place and
severity of the strike can be reasonably and in some cases accurately predicted by
technological and scientific advances. It has been established there is a definite pattern in
their occurrences and hence we can to some extent reduce the impact of damage though we
cannot reduce the extent of damage itself. This demands the study of disaster management in
methodical and orderly approach.
DISASTER MANAGEMENT
A disaster can be caused by humans or nature. Disasters are events that are sometimes
unpredictable. It is important for any government to manage disasters. Government provides
legislation, allocates resources and does rational planning and sustainable development.
Disaster management and planning is a key part of government work.
This guide includes the following:

The importance of disaster management plans

The role of municipalities in disaster management
What does it mean when a place is declared a disaster area?
Identifying potential disaster hazards in your area
22 | P a g e

Preventing disasters in your households and communities: What to do

How can we prevent fire disasters?

3.1 THE IMPORTANCE OF PUTTING DISASTER

MANAGEMENT PLANS IN PLACE
Disasters are events that have a huge impact on humans and/or the environment. Disasters
require government intervention. They are not always unpredictable. Floods take place in
valleys and flood plains, droughts in areas with unstable and low rainfall, and oil spills
happen in shipping lanes. This predictability provides opportunities to plan for, prevent and to
lessen the impact of disasters.
Disasters arise from both natural and human causes, and the responses needed could stretch
community and government capacity to the limit. For example, during 2000 we saw a series
of disasters in South Africa: huge floods devastated the Limpopo Province, Mpumalanga and
neighbouring countries; massive fires and an oil spill threatened Cape Town; and separate
floods hit rural communities in KwaZulu-Natal and the Eastern Cape. In 2004 Cape Town
experienced a drought disaster attributed to global warming. From April 2004 to January
2005, the province experiences 376 disasters, mostly fire and flood.
Disasters are inevitable although we do not always know when and where they will happen.
But their worst effects can be partially or completely prevented by preparation, early warning,
and swift, decisive responses.
Disaster management aims to reduce the occurrence of disasters and to reduce the impact of
those that cannot be prevented. The government White paper and Act on Disaster
Management define the roles of Local Authorities as well as Provincial and National
government in disaster management.

3.2 THE ROLE OF MUNICIPALITIES IN DISASTER

MANAGEMENT
Every municipality must have a disaster management plan as part of its Integrated
Development Plans according to the Municipal Systems Act.
23 | P a g e

Structure and Mechanism: This plan must set up the structure and mechanisms for dealing
with disasters and it must anticipate future disasters. Plans must be developed to deal with
disasters that occur regularly - for example flooding of informal settlements and roads.
Protection Services Department: In each municipality, the Protection Services department is
responsible for Disaster Management. The department usually deals with traffic policing, fire
brigades, law enforcement, and sometimes ambulances on an agency basis for provincial
government, The role of Disaster Management is to coordinate the response to disasters and
emergencies, ensuring that resources are applied effectively, whatever it may be. Fire
services, ambulance services, emergency medical services, engineers and traffic services can
all become involved in Disaster Management.
Capacity: When a disaster exceeds the capacity of a local authority, the district, province or
national can become involved, coordinating and facilitating the response and efforts of
various local authorities. Other parties such as the SANDF as well as volunteer organizations
such as the Red Cross, St John's and the National Sea Rescue Institute can also be drawn in if
needed.
Disaster Management Activities: Disaster Management Activities include the co-ordination of
disaster response agencies, the compilation and exercising of contingency plans, and Disaster
Management education and training.
Funding: Following the finalisation of the Act, the national government will announce on a
funding mechanism for provinces and municipalities to finance their comprehensive disaster
management plans.

3.3 WHAT DOES IT MEAN WHEN A PLACE IS DECLARED A

DISASTER AREA?
The disaster management policy and legislation makes provision for government to declare
disaster areas, and allow for resources to be allocated for immediate relief, as well as
reconstruction. This includes things like food, blankets and medical supplies as relief and
building materials for reconstruction. The local and provincial government have to prepare
the submission to the national Department of Provincial and Local Government for this to be
done speedily.
24 | P a g e

The Disaster Management Act focuses on speeding up response and cutting red tape to ensure
that disasters are dealt with efficiently and effectively - by giving clear guidelines for the
classification of disasters and the declaration of states of disaster.

3.4 IDENTIFYING POTENTIAL DISASTER HAZARDS IN

YOUR AREA
These can include all or some of the following:

Mass-event situations (concerts, sport, other social gatherings - for example the 2001

Ellis park disaster during the Pirates-Chiefs game)

Storms and storm damage;
Flooding;
Fires: Domestic, mountain and veld;
Oils spills, at sea, on land;
Transport accidents;
Hazardous material spills (spilling of chemicals, etc from factories, trucks);

3.5 PREVENTING DISASTERS IN YOUR HOUSEHOLDS AND

COMMUNITIES
WHAT TO DO
"In South Africa, it is not necessarily the 'classic', comparatively rare events - which receive
massive media coverage - that we should be focusing on, but rather on building alert,
informed, self-reliant and resilient communities who have the capacity to withstand, cope and
recover from these relatively less spectacular events which affect them on a regular basis"
Pat Reid, former president of Disaster Management of Southern Africa. (SAPA. 3 January
2004)
ROLE OF ORGANISATIONS AND COMMUNITY WORKERS
Here are some of the things development workers can advise communities to prepare and
deal with disasters:

25 | P a g e

Know the emergency numbers. Remember that all municipalities have emergency

centers - get these details

Report incidents - don't take it for granted that someone else has already reported it;
Do not build houses in unsafe areas - for example close to a river-bed (even if it has

been dry for years) or on dolomite invested areas

Keep a bucket of sand next to your door so that any small fires can be put out quickly

- sand works on paraffin and electric fires, water does not

Gain knowledge of basic first aid, fire training and CPR;
Remember that swimming pools, dams and rivers are a danger to children;
Always follow the rules when: swimming in rivers, dams, pools and the ocean;
camping and making fires;

3.6 HOW CAN WE PREVENT FIRE DISASTERS?

A very important way of preventing fire disasters is to have a good disaster plan in place. The
emphasis should be on public education, prevention and containment.
One of the common disasters in poor areas and informal settlements are fires. These fires are
often caused by accidents with paraffin or candles. The Paraffin industry is involved in the
"Ufudo" campaign. Because of the building practices in informal settlements, and the
building materials used in these settlements, everyday tools such as a primus stove, paraffin
lamp or candle can become extremely dangerous if used incorrectly. The "Ufudo" kits
provide tools to make primus stoves, paraffin lamps and candles more stable and less prone to
fall over.
The Paraffin Safety Association also promotes safe storage and use of paraffin through safe
bottles and dispensers - any registered dealer can get access to this.
People in informal settlements should be educated about leaving enough space between
houses to prevent the spread of fires and to allow emergency vehicles into the area. Fire
fighting volunteers can also be trained.

26 | P a g e

CHAPTER-4
SCHEME OF NATURAL DISASTER

4.1 BRIEF NOTE ON OPERATION OF SCHEME OF NATURAL

DISASTER MANAGEMENT PROGRAM
1. Name of the Scheme: Natural Disaster Management Program.
2. Type of Scheme: Central Sector
3. Year of inception: 1992-93
Approved by Department Sanctioning Committee in December. 1993
4. Pattern of assistance : 100 per cent by Government of India.
5. Objective:
To focus on disaster preparedness with emphasis on mitigation measures.
To increase level of awareness of community about disasters, prepare them
adequately to face the crisis situation
6. Activities
Human Resources Development,
Research and Consultancy Services.
Documentation of major events,
Operation of Faculty on NDM in State level training States.
Operation of National Centre of Disaster Management.
Public education and community awareness program
7. Eight Plan Outlay & Expenditure
Plan Outlay: Rs. 900.00 lakh
Progress of expenditure: (Rs. in lakh)

Year

Allocation

Expenditure

Percentage

1992-93

20.00

17.00

85%

1993-94

110.00

23.00

20.91%
27 | P a g e

1994-95

110.00

48.00

43.64%

1995-96

200.00

120.00

60%

1996.97

200.00

123.00

61.5%

8. Ninth Plan Outlay & Expenditure

Plan Outlay: Rs 20.00 core (allocated by the DAC)
Progress of Expenditure: (Rs. in lakh)
Year

Allocation

Expenditure

Percentage

1997-98

220.00

191.00

86.82%

1998-99

210.00

189.00

90%

1999-00

325.00

316.08

97%

2000-2001

500.00

69.95

13.390%

9. Achievements
Setting up of a National Centre for Disaster Management in the Indian Institute of

Public Administration in 1995.

Setting up of separate Disaster Management Faculties in State Administrative
Training Institutes in 18 out of 25 States. These Sates are Andhra Pradesh, Arunachal
Pradesh, Assam, Bihar, Gujarat, Haryana, Jammu & Kashmir. Karnataka, Kerala,
Madhya Pradesh, Maharashtra, Mizoram Orissa, Punjab. Rajasthan, Tamil Nadu,

Uttar Pradesh and West Bengal.

Documentation of major events like UP. and Maharashtra earthquakes, research
studies On land slides in Kerala, Sikkim and Uttar Pradesh, Research study on

Drought in Rajasthan.
Preparation of source book for use of trainees of the Lal Bahadur Shastri National

Academy of Administration
Organised/sponsored about 100 training Programs/workshops on various aspects of

Natural Disaster Management

Public education and community awareness campaign through newspapers, postal
stationery, audio-visual media and observation of World Disaster Reduction Day

annually.
10. Increase in activities
28 | P a g e

The occurrences of major natural disasters like Maharashtra earthquake of 1993 and cyclone
of Andhra Pradesh in 1996 and Orissa in 1999 have been instrumental in generating a lot of
concern among the various agencies of Government. non-governmental organisations and the
public at large about the adverse impact of natural disasters. This has increased the tempo of
activities under the Plan Scheme as many institutions /organisations States are showing
interest in the field of disaster reduction activities. Keeping in view the magnitude and
frequencies of natural disasters visiting various parts of the country annually; there is need to
provide substantial budget provision in the Annual Plan to commensurate with the
requirements of a vast country like ours in order to embark upon such activities in a big way
in the context of fast developing scientific and technological advancements in the world.
11. Thrust Areas
Public education and community participation campaign,
Information Technology,
building up data base,
involvement of NGOs, strengthening of State faculties on NDM,
regional cooperation on sharing of experience,
expertise and technology in various fields of natural disaster
preparedness and mitigation.

4.2 STATUS POSITION ON EFC MEMO ON NATURAL

DISASTER
MANAGEMENT
IN
FORMATION
SYSTEM
SUBMITTED BY NRSA.
Name of the Proposal: Natural Disaster Management Information Support Services through
Space Technology (NDM) ISS.
Proposal received from: NRSA, Hyderabad
Activities covered:

Drought monitoring
Drought early warning
Drought damage assessment
Flood monitoring and inundation
29 | P a g e

Cyclone impact, mapping dam-age assessment

R & D support to operation a services
Data base creation and data integration services

Amount proposed for 9th Five Year Plan : Rs 2.05 crore

Present status:
Draft EFC Memo was sent to Planning Commission for their comments/views. Based on
these observations necessary action is being taken to finalise the EEC Memo. Thereafter it
will be circulated to all concerned Ministries before convening the meeting of EFC.
Preventive medicine has played a very important role in reducing the mortality and morbidity
in any population with regard to several important diseases such as plague, syphilis, cholera
during several different times in the history of man. But, one grey area that has often taken us
by surprise is the occurrence of disasters. The most recent example is Tsunami. The literature
relating to disaster management is meager and there are several hollows that need to be
explored. We shall now review the importance of Preventive medicine in terms of disaster
management.

CHAPTER-5
DISASTER MANAGEMENT CYCLE
DISASTER MANAGEMENT CYCLE
Disaster management cycle includes the following stages/ phases
1.
2.
3.
4.
5.

Disaster phase
Response phase
Recovery/ Rehabilitation phase
Risk Reduction/ Mitigation phase
Preparedness phase

Disaster phase:

The phase during which the event of the disaster takes place. This
phase is characterized by profound damage to the human society. This
damage / loss may be that of human life, loss of property, loss of
30 | P a g e

environment, loss of health or anything else. In this phase, the

population is taken by profound shock.
Response phase:

This is the period that immediately follows the occurrence of the

disaster. In a way, all individuals respond to the disaster, but in their
own ways. The ambulances and medical personnel arrive, remove the
injured for transportation to medical camps or hospitals and provide
first aid and life support. The public also take part in relief work. One
can even find injured victims help other injured ones. Almost everyone
is willing to help. The needs of the population during this phase are
immediate medical help, food roti, clothing kapda and shelter
clothing.

Recovery phase :

When the immediate needs of the population are met, when all medical
help has arrived and people have settled from the hustle bustle of the
event, they begin to enter the next phase, the recovery phase which is
the most significant, in terms of long term outcome. It is during this
time that the victims actually realize the impact of disaster. It is now
that they perceive the meaning of the loss that they have suffered. They
are often housed in a camp or in some place which is often not their
house, along with other victims. During this time, they need intensive
mental support so as to facilitate recovery. When the victims have
recovered from the trauma both physically and mentally, they realize
the need to return back to normal routine. That is, to pre-disaster life.
During this phase, they need resources and facilities so as to enable
them to return back to their own homes, pursue their occupation, so
that they can sustain their life on their own, as the help from the
government and other non-governmental organizations is bound to
taper in due course. Thus, they are provided with a whole new
environment, adequate enough to pursue a normal or at least near
normal life. This is called Rehabilitation.

Risk reduction phase: During this phase, the population has returned to predisaster standards
of living. But, they recognize the need for certain measures which may
be needed to reduce the extent or impact of damage during the next
31 | P a g e

similar disaster. For example, after an earthquake which caused a lot of

damages to improperly built houses, the population begins to rebuild
stronger houses and buildings that give away less easily to
earthquakes. Or, in the case of tsunami, to avoid housings very close to
the shore and the development of a green belt- a thick stretch of trees
adjacent to the coast line in order to reduce the impact of the tsunami
waves on the land. This process of making the impact less severe is
called Mitigation.
Preparedness phase: This phase involves the development of awareness among the
population on the general aspects of disaster and on how to behave in
the face of a future disaster. This includes education on warning signs
of disasters, methods of safe and successful evacuation and first aid
measures. It is worth to note that the time period for each phase may
depend on the type and severity of the disaster.

5.1

TYPES OF DISASTER

Disasters are mainly of 2 types,

1. Natural disasters. Example earthquakes, floods, landslides, etc.
2. Manmade disasters. Example war, bomb blasts, chemical leaks, etc.

5.2 VICTIMS AND SURVIVORS

Almost everyone in the population is affected by a disaster. No one is untouched by it. Those
who suffer damage are called victims. The victims may die or live. Those who manage to live
are called survivors. These survivors can be classified as,

Primary survivor One who is exposed to the disaster first-hand and then survives.

They are called survivor victims.

Secondary survivor One who grieves the loss of primary victims. Example, a
mother who lost her child, or a man who lost his friend.

32 | P a g e

Third level survivor The rescue and relief personnel. These people are also affected
due to the disaster as they are at the site of disaster and undergo almost the same

mental trauma as the other victims.

Fourth level survivor Reporters, Government personnel, traders, etc.
Fifth level survivor People who read about or see the event in media reports.

5.3 THE SECOND DISASTER

The actual disaster results in a lot of damage to the population in terms of loss of life and
property. This direct result can be dubbed as the first disaster. The impact of the first
disaster sends another wave of damage triggered by chain of events relating to the first
disaster by means of cause-and-effect, resulting in indirect damage to people remote from the
original disaster. This can be called the second disaster. For example, tsunami had caused
loss in terms of life, damage to houses, etc. This is the first disaster. This leads to disruption
in the trade of fishing industries, which suffers massive financial losses. The losses suffered
by these industries results in lower wages and salaries to those involved in the fishing
business. These people cannot repay their loans, resulting in losses to money lenders, and so
on. Such events can also result in higher incidences of heart attacks, strokes, suicides and
homicides. This is called second disaster and can be in greater magnitude than the first
disaster. Proper rehabilitation and care of the victims of first disaster can break the chain of
events leading to the second disaster.

5.4 PECULIARITIES OF TSUNAMI

There are few ways in which tsunami differs from other disasters,

Time duration of the attack was very small. The entire attack took place in a matter of

a few minutes.
Extent of damage was very large, grossly disproportionate to the duration of attack.
Extensive damage took place in a matter of few minutes, which took the people by
surprise and awe. Everything seemed to be normal.. all of a sudden water flows
in.. Boom! Everything seems different. There was no time for people to adapt to the
disaster.
33 | P a g e

The victims are either alive and healthy or simply dead. There was very less physical

injury and hence there was no great need for medical facilities, unlike other disasters.
There have been no precedents of this type. People have not even heard of this type of

a disaster.
There were no outbreaks of any infections, which are common in floods. This point is
of note because in floods, it is freshwater a good culture medium for organisms.
And, when water stagnates, organisms flourish even more. But, in tsunami, it was
seawater which is hypertonic saline which is unfavorable for microorganisms.
Moreover, there was no stagnation as the water receded back completely.

5.5 PSYCHO SOCIAL ASPECTS OF DISASTER

Often, minimal importance is given to the mental trauma suffered by the victims of a disaster.
They are overshadowed by the excessive importance to physical and financial needs of the
victims which are considered by the relief personnel to be more than sufficient to alleviate the
suffering of the victims. Unlike physical and material damage, the damage to the psyche
(mind) cannot be obviously seen, until and unless, it is looked for. And, to look for, the relief
personnel need to be aware of the possible effects on the mind, which can be permanent and
disabling.
The psycho social needs are generally seen as something too secondary to attract the
attentions of relief agencies, relief workers & governmental organizations
- Jaswan 2000
There is a phenomenal increase in the incidence of psychiatric disorders in the affected
population. The common problems include
1.
2.
3.
4.
5.
6.

Acute stress disorder

Post-traumatic stress disorder
Anxiety disorders
Depression
Alcohol and drug abuse
Aggravation of previous disorders if any.

5.6 POST TRAUMATIC STRESS DISORDER

34 | P a g e

The most important of the above is post-traumatic stress disorder (PTSD), which if occurs is
a permanent damage. There is definitive damage to the hippocampus of the brain, and hence
is important to identify the people vulnerable and provide adequate psychiatric intervention.
There are several abnormal behaviors and complaints that have been seen in disaster victims
such as
1. excessive crying
2. irritation
3. restlessness
4. fatigue
5. sleeplessness
6. flashbacks
7. panic attacks
8. mood swings
9. Guilt
10. anger
The list is long and indefinite. But one thing is to be borne in mind - all these are not
abnormal reactions. They are just normal reaction to an abnormal event. But these reactions
must resolve in due course, failure of which is the diagnosis referred to as PTSD. This should
be prevented as it is disabling disorder with very less promising outcomes

5.7 DISASTER SYNDROME

This is an observed disorder that can be identified in disaster victims. As a matter of fact,
about 75% of the population of the population is affected, immediately following the disaster
(Duffy, 1998). By the 10th week, there is a significant drop, and by the end of the first year, it
drops to about 30 40% of the disaster affected population. It is also observed, that there is a
17% higher occurrence of long-term sequelae in the disaster affected population, as compared
to other control populations (Roubonis, 1991).
The observation by Duffy of the widespread occurrence of symptoms following a disaster
(75%) implicates that they are a normal reaction to an abnormal event (by the concept of
Normality by majority). The ensuing drop in the prevalence of symptoms in the following
year shows that they are resolving on the own. The rest who suffer continual symptoms
may be the victims of a failure of resolution of the normal reaction. Though there is a view
that these psycho social issues should not be medicalised (WHO, 1992), the logical deduction
35 | P a g e

from the observations of Duffy and Roubonis implicates that facilitation of the resolution can
bring about lower psychiatric morbidity in the disaster affected population.

5.8 MEANING OF LOSS

It has been oft repeated mistake to assess severity of a disaster by means of calculating the
loss in terms of numbers, quantity figures or units such as number of deaths, number
wounded, number of houses damaged, surface area of affected land, etc. But, this is not the
actual measure. The meaning of the loss rather the loss itself is a much more significant
measure. In other words, the impact of the disaster rather the disaster itself is more important.
For example, the loss of a neighbour may mean a great loss to one person but a minimal loss
to another. Similarly, loss of animal life may mean nothing for one victim but may mean a lot
for an animal lover. The loss of a house may mean less for someone who is thankful for
having survived, but more for someone who has a sentimental attachment to his house. Thus,
the actual damage being less, the impact may be disproportionately severe. Though the entire
population experiences the same disaster, each one perceives it in a different and unique way.
The governmental relief agencies need to see the damage alone, but we, health care personnel
cannot afford to do that. We much see what the loss means to the victim; only then, can we
assess the impact the disaster has had on that person.

36 | P a g e

CHAPTER-6
APPROACHES

6.1

INTEGRATED APPROACH

There is need for a change in the approach towards disaster management. There is now no
orientation among health care providers. This is because the health care providers are actually
oblivious of the actual needs of the victims. The need of the hour is integration . Integration
of what? Integration of medical help and resource provision. And integration of mental health
services with other medical services.
A lot of victims suffer from mental agony and pain that needs grief counselling, so that the
recovery happens. Else, it results in permanent psychiatric squeal. But, the victims
themselves are not ready to seek psychiatric help as they feel that they dont need it. This is
because food, clothing and shelter are the most essential needs which need to be satisfied
urgently. The next most significant need is that of financial support. Without these,
psychiatric help will not sought by the victims. So it is essential that medical personnel and
mental health care providers dont go empty handed. In other terms, financial and basic need
support should reach them as soon as possible so as to be able to make the victims ready for
counselling. Thus, mental health care will not be accepted if financial needs are not met.
Yet, the importance of mental health services should not be underestimated. Without a
healthy mind and sound mental health, the relief measures will not serve its end in improving
the general quality of life of the disaster affected individuals. Thus, financial help does not
serve its end without mental health care provision. Now it should be clear what an integrated
37 | P a g e

approach means. Integration of financial support with mental health care, in the right
temporal sequence the right thing at the right time.

6.2

THE LATEST PERSPECTIVE

When, there is major disaster such as the tsunami, where the affected population is huge, to
the tune of several lakhs, it is very difficult to get enough health care personnel to work there,
especially for a long time. All non-governmental organizations and international aid will offer
help for a few weeks or few months to alleviate the immediate crisis, but they cannot afford
to stay for a long time. But long term continuing health care is essential for improved long
term outcomes. Moreover, when mental health care is considered, it is very important that the
counsellors and psychiatrists speak the native language. This is true to some extent even
when medical help in general is considered. Thus it is easier, more cost effective and yielding
to train volunteers from the population who are willing to work for the aggrieved to identify
those in need for specialist consultation by consultants who are often in lack. For example,
the affected population in Sri Lanka after tsunami runs in lakhs but there are only 27
psychiatrists or so. Though the Tamil speaking population was affected at large, only 3 out of
the 27 were Tamil speaking, out of which only one was actively practicing in the affected
areas. These few consultants are overwhelmed by the number of cases, the majority of which
dont need specialist help and can be handled by trained counsellors and primary health care
workers. And, it is nearly impossible for consultants to visit the affected site. So, a new plan
has been proposed a way to handle this POST TRAUMA COUNSELLING. It involves
training of volunteers to become counsellors who meet every victim, collect the identity
details and talk to them. These counsellors are taught to identify normal grief reactions from
abnormal reactions. The normally aggrieved victims are counselled
and the abnormally aggrieved are referred to the consultants. The advantages of this method,
1. The case load for the consultants is reduced, making it more comfortable to spend
more time on each case and work up completely.
2. The method is cost effective. It is unfeasible to pay consultants to see so many cases
3. The method is time saving. We always have fewer consultants than counsellors. Few
consultants take more time to scan the population than many counsellors doing the
same job.
38 | P a g e

4. The victims feel easier to talk to counsellors who are often from affected lot rather
than to a specialist.
5. It is easier for counsellors to keep track of the victims who may drop off. The
counsellors can visit the victims at their doorsteps and ensure continued surveillance
of the victims.
There is an age old aphorism God cannot be everywhere so, he created mothers .
Similarly, psychiatrists cannot be everywhere, so, we create counsellors.

6.3 WORKSHOP ON POST TRAUMA MANAGENMENT &

COUNSELING
Under this plan, a nongovernmental organization called the Chartered Management
Institute(CMI), with their central office in UK and a branch in Sri Lanka, in collaboration
with The Management Club(TMC), an association of leading corporate personnel in Sri
Lanka, requested the Indian Association of Private Psychiatry (IAPP) which under the
instance of Dr. M. Thirunavukarasu, its national level advisor, sent a six member delegation
of mental health care personnel to the affected areas to train volunteers to become counsellors
so as to identify those in need of psychiatric intervention. The program was recognized and
welcomed by the WHO representative to Sri Lanka Mr. Kun Tan. It was two day program in
three places Colombo, Galle and Batticaloa. The total number of participants was about
200.
The first day included the following seminars,
1.
2.
3.
4.
5.
6.
7.
8.

Introduction to Mind and Mental Health

Impact of Tsunami
What is Disaster?
Psycho- social aspects of Disaster
What is counselling?
Basics of Counselling
Management of children affected by the disaster.
Summary

The second day consisted of,

1. A recap of previous day topics
2. Interview techniques
3. Difficult to handle victims
39 | P a g e

4. Role play of simulated counselling situations by participants

5. Introduction of questionnaires to record responses by victims
6. Interactive session
In addition to the interactive session participants were encouraged to ask doubts and share
their experiences after each topic. Paper, pens, student files and feedback forms were given.
The response from the Sri Lankan public was superb and surpassed expectations. The
feedback showed the overwhelming response of the Sri Lankan public for these measures.
The mental health services now are taking place actively with the aid of trained counsellors,
in Sri Lanka. The questionnaires provided to them are expected to give us ample material for
further study.

CONCLUSION
Natural disasters happen almost all over the world all of a sudden causing heavy loss of
human life, destruction of infrastructure and properties. Usually natural disasters cannot be
stopped. However, the magnitude of disasters can be reduced if preventive measures be taken
in due time for which pragmatic government policies and public awareness are of utmost
importance. This is especially true if the government, community and the people work
together to this end. The effects of natural disasters have shown the necessity to intensify
international cooperation for natural disaster mitigation.
Above and over, international and regional cooperation in this field is very necessary.
Establishment of the institutions like : Asian Disaster Reduction Centre (ADRC) at Kobe,
Japan and Asian Disaster Preparedness Centre (ADPC) at Bangkok, Thailand could help
greatly to redress the situation by means of collecting and disseminating information and
conducting trainings and organizing meetings. This kind of gatherings at international,
regional and sub-regional basis will promote international cooperation, mutual understanding
and help among the countries by exchanging ideas and sharing experiences between the
fellow participants. Such meeting will also help to learn from each others experiences. This
Second ADRC International Meeting could contribute significantly in reducing natural
disasters as it aims to share disaster- related information and to exchange views and opinions
among disaster reduction experts from Member countries so as to promote further
cooperation for disaster reduction in Asia based on the First ADRC International Meeting

40 | P a g e

held at Kobe in February, 1999. Outcome of this kind of gathering will be very much useful
for the participant and his/her country and institution.

MEASURES TO SOLVE THE PROBLEMS

Despite of the various problems, appropriate policy measures could help to solve the
problems. As public awareness is one of the vital problem in managing the disaster in Nepal,
it is felt necessary to work at increasing the literacy rate. Moreover, disaster management
course should be included in the school and university curriculum. It is also necessary to train
school teachers, selected students, women leaders, health workers and social workers to
educate others in measures to prevent or mitigate the natural disasters. Such types of
programmes may convince people to believe that natural disasters are not an act of God. To
attain all this, there is the need of the strong political determination, pragmatic policy
formulation and quick decision making. Moreover, active people's participation is also very
necessary. On the other hand it will be better to include disaster management component in
the development plans and programs of concerned agencies for the effective implementation
of disaster mitigation programs.
It is also needed very much to improve road infrastructure, transportation and communication
facilities to carry out rescue and relief works effectively and efficiently. In order to prevent
inappropriate construction of buildings, the building code should be strictly implemented.
To prevent duplication of relief works and the lack of cooperation, it is needed to establish
mutual understanding and frequent dialogue between the focal persons. It is felt necessary to
amend the Natural Disaster Relief Act, 1982 and formulate the Natural Disaster Relief
Regulations whereby the role, functions, duties and responsibilities of all the disaster
management related agencies could be specified so that no agency could ignore or shift their
responsibilities.

41 | P a g e

BIBLIOGRAPHY

Alexander, D., 2002, Natural Disasters, London: Routledge, ISBN 1-85728-094-6

Alexander, D., 2002, Principles of Emergency planning and Management, Harpended:

Terra publishing, ISBN 1-903544-10-6

Wisner, B., P. Blaikie, T. Cannon, and I. Davis, 2004, At Risk - Natural hazards,
people's vulnerability and disasters, Wiltshire: Routledge, ISBN 0-415-25216-4

WEBSITES

http://www.unep.org/ik/Pages.asp?id=Natural%20Disaster%20Management

%20Overview
http://www.col.org/SiteCollectionDocuments/Disaster_Management_version_1.0.pdf

42 | P a g e