2137IND Final Report

RISK REDUCTION
THROUGH
COMMUNITY BASED
DISASTER
PREPAREDNESS PLANS
July 2006
ADPC
PROVENTION CONSORTIUM
RESEARCH GRANT 2005
Researchers
Tapan Patel
Tanvi Patel
Rushabh Hemani
Centre for Integrated Development (C f I D), Ahmedabad,

Gujarat, India
We express our sincere gratitude towards Asian Disaster Preparedness Centre and
Provention Consortium for sponsoring the research work on ‘ Risk reduction Through
Community Based Disaster Preparedness Plans’. We are grateful to Mr. David
Pepiatt, Mr. Aloysius Rego and Mr. Pannawadee Somboon for guiding us throughout
the study. It was indeed a learning experience to understand the complexities and
dynamics of community in aftermath of a huge disaster. It is satisfying to see our hard
work taking shape of a comprehensive report and we are hopeful that this study
would be useful to students, researchers, institutions and organization working for
disaster management in India and abroad.
We are indebted to Mr. Binoy Acharya, who agreed to be the mentor for this study
and guided us with his insights so that the study becomes meaningful for us and
others. We would also like to thank whole staff of Unnati- Organization for
Development Education; especially Mr. Bhanubhai Mistry, Ms. Allice Morris, Mr.
Balaji, Mr. Uday Gaekwad, and field staff at Bhachau for immense support in field
study.
We are grateful to Government officers, Sarpanchs , Panchayat members, local

leaders, villagers of Amardi, Morgar and Nani Chirai, and all those who have
contributed directly or indirectly to the study.
Finally, we are thankful to Mr. Keyur Patel, Ms. Pragna Patel and Ms. Nirali Shah for
rendering their valuable service to enhance quality inputs for the study.
Centre for Integrated Development (CfID) team
Tapan Patel (Team leader for research)

Tanvi Patel (Team Member, Coordinator - Rural Development and Disaster Management)
Rushabh Hemani (Team Member, Expert- Water Resources and Management)
i
Sr. No. Contents Page No.
Acknowledgement I
Abbreviations and Glossary of terms II - III
List of tables, Charts and Maps IV
Executive Summary V-X
CHAPTERS
1 Introduction 1-4
1.1 Background 2
1.2 Research Strategy 2
1.3 Framework of study 2
1.4 Objective 4
1.5 Methodology 4
1.6 Intended beneficiaries 4
1.7 Linkages 4
2 Natural Disasters- An Overview 5-18

2.1 Disasters: World Review 6
2.2 Disasters: India Context 7
2.3 Disasters: Gujarat State 12
2.4 Disaster Impact on Development 15
3 Disaster Management in India 19-27

3.1 Disaster Response Scenario in India 20
3.2 Institutional arrangements for Disaster Management 21
3.3 Other functionaries in disaster management 22
3.4 Paradigm shift 22
3.5 Institutional and Policy Framework 23
3.6 Financial Mechanism 23
3.7 New policies, practices and institutional mechanisms 25
4 Concept of Community Based Disaster Preparedness 28-33

4.1 Rationale 29
4.2 Key Concepts 30
4.3 Methodology for formulating disaster preparedness plans 33
5 Disaster Profile of Kachchh 35-43

5.1 Study Area Profile: Kachchh District 36
6 Case Study 44-65

6.1 Details of study villages 45
6.2 Disaster Risk identification 56
6.3 Disaster Vulnerability Analysis 62
6.4 Coping mechanism, institutional support and gaps 63
7 Disaster Preparedness and Mitigation Strategies 66-79

7.1 Current status of disaster preparedness 67
7.2 Proposed mitigation and preparedness strategies 69
8 Conclusion 80-84
8.1 Observations of the study 81
8.2 Lessons Learnt 82
8.3 Suggestions 83
8.4 Forward Linkages 84
Bibliography 85
Annexure 86-89
1 Resource Maps- Study Villages
BIS Bureau of Indian Standards
BS&G Bharat Scout and Guides
BMTPC Building Material Technology Promotion Council
BPL Below Poverty Line
CAP Contingency Action Plan
CBO Community Based Organisation
CHC Community Health Centre
CMG Crisis Management group
CRC Central relief Commissioner
CRF Calamity relief Fund
CRZ Coastal regulation Zone
DCR Development Control Regulations
DDC District Deputy Commissioner
DMC Disaster Management Commissioner
DRDA District Rural Development Agency
GAU Gujarat Agriculture University
GDCR General Development Control Regulations
GDP Gross Domestic Product
GEB Gujarat Electricity Board
GNP Gross National Product
GoI Government of India
GSDMA Gujarat State Disaster Management Authority
GWSSB Gujarat Water Supply and Sewerage Board
IDNDR International Decade for Natural Disaster Reduction
IMD Indian Meteorological Department
ISDR International Strategy for Disaster Reduction
NCC National Cadet Corps
NCCF National Calamity Contingency Fund
NCDM National Committee on Disaster Management
NCMC National Crisis Management Group
NGO Non Government Organisation
NSS National Service Scheme
NYKS Nehru Yuva Kendra Sangathan
PDS Public Distribution System
PHC Public Health Centre
PMNRF Prime Minister’s National Relief Fund
SADC South Asian Developing Countries
SHG Self Help Group
SIDS Small Island Developing States
TSC Total Sanitation Campaign
ULB Urban local Body
UN United Nations
UNDP United Nations Development Programme
US United States (of America)
UT Union Territory
VDC Village Development Committee
VHAI Voluntary Health Association of India (NGO)
WASMO Water and Sanitation Management Organization- Nodal agency
for reforms in water sector in Gujarat
WMO World Meteorological Organization
ii
Anganwadi Day care center for children below 5 years of age. Run under
central government scheme of Integrated Child Development
Scheme in India
Gochar Pasture land (Gujarati)
kutcha Weak, temporary (Hindi)
Krishi Vigyan Agriculture Science Centre – Research and Extension units of
Kendra (KVK) Agriculture Universities supported by Government
Panchayat Village Level administrative and political body; lowest (village
level) element of democratic setup, base of local self governance
Panjrapol Cattle feed center- normally run by government or community
groups to support cattle in normal time as well as in drought.
Paani Samiti Water Management Committee at village level
PRI Panchayati Raj Institution- Institutions affiliated to Panchayat and
local self governance
pucca Strong, permanent (Hindi)
Kutcha Weak (Hindi)
Rann Desert (of Kachchh) (Gujarati), parched vast land
Sajjata Sena Preparedness Army -Village level group formed by UNDP and
GSDMA for disaster preparedness
Sarpnach Chief of Panchayat, Head of village
Taluka/Tehsil Administrative block in a district; sub district
iii
2.1 Manor Earthquakes in India 1988-2001 7
2.2 Damage due to Natural Disasters in India 14
2.3 Annual damage due to heavy rains, landslide and floods 14
2.4 Losses due to Droughts: 1999-2001 14
2.5 Effects of Natural Disasters in India (1900-2004) 14
5.1 Magnitude and Frequency of Epicenters in Kachchh, 1819-2001 36

5.2 Spatial Variations in Deaths in Kachchh District (2001) 38
5.3 Natural Disaster Vulnerability of Kachchh District (2001) 39
5.4 Four Indicators of Development: Kachchh District, Gujarat and India 42
1999
6.1 Time line of disasters in three villages 56
6.2 Disaster Risk zoning of sample villages 56
6.3 Potential Risk factors of sample villages against various natural 57
hazards.
6.4 Vulnerability Analysis of sample villages 62
6.5 Framework for Disaster Preparedness- Bhachau Block 63
7.1 Action Points for Earthquake preparedness 71
7.2 Action Points for Drought proofing 72
7.3 Action points for flood preparedness 74
7.4 Action point for cyclone preparedness 74
7.5 Action points for Epidemic preparedness 75
1.1 Framework for Disaster Vulnerability Reduction 3

2.1 Great Natural Catastrophes 1950-2002 16
2.2 Community (by continent) affected by disaster 1991-2000 17
4.1 Relationship between Disaster, Capital assets and Well-being 30
4.2 Framework for Disaster Vulnerability Reduction 31
7.1 Role of Panchayats in Disaster Mitigation 78
2.1 Natural Hazard Map of India 8

2.2 Mortality Decline- Natural Disasters in India 9
2.3 GDP impact by natural disasters in India 10
2.4 Wind and Cyclone Hazard Vulnerability Map of Gujarat 13
2.5 Earthquake Hazard Vulnerability Map of Gujarat 13
2.6 Flood Hazard Vulnerability Map of Gujarat 14
2.7 Multiple Hazard Vulnerability Map of Gujarat 14
5.1 Kachchh District 35
5.2 Epicenters of Earthquakes in Kachchh District. 36
5.3 Deaths in Rural and Urban Areas in Kachchh District during Earthquake 37
2001
5.4 Regions of Damage in Kachchh District during Earthquake 2001 38
5.5 Epicenters in Geomorphic zones in Kachchh district 40
6.1 Bhachau Block indicating Study Village 45
iv
In last five years India witnessed three major natural disasters: Earthquake of Gujarat in
2001, Tsunami of South India in 2004 and Earthquake of Kashmir in 2006. Besides, the
floods in Mumbai, Gujarat and Eastern states in 2003, 2004 and 2005; and drought situation
in Rajasthan and Gujarat in 2000, 2001 and 2002 also claimed toll on lives and destroyed
infrastructure and property on large scale. Economy of India is growing at the unprecedented
rate and the effect of disasters on GDP has declined steadily. But whenever a disaster
strikes, it pushes back the development of the region by 5 to 10 years. Major reason for this
is lack of preparedness and coherent development plans to absorb disasters.
Kachchh district of Gujarat State in India was badly affected by earthquake (6.9 on Richter
Scale) on 26th January 2001. More than 14000 people lost their lives all over Gujarat, in
which Kachchh had more than 90% of casualties. There was complete breakdown of all the
services and infrastructure was badly damaged. The response from government, local NGOs
and international agencies was overwhelming and contributed to rapid recovery in the region.
Bhachau block of Kachchh was one of the worst affected blocks with huge number of
casualties. This research work was focused on Bhachau Taluka (block) and tries to
understand the disaster preparedness efforts in the region with community perspective.
Community based disaster preparedness plans for high-risk zones provide acceptable risk
reduction and strengthening of coping mechanism. The research work uses the framework of
Disaster Vulnerability Reduction, which analyses vulnerability context of particular community
and its effect on well-being of the community. The study also aims at developing mechanism
for improving the well-being by reducing vulnerabilities, responsive governance, improving
access to social security and basic rights, improving incomes, ensuring food security and
sustainable use of natural resource base. Whole research work is done keeping in center the
community, its perceptions and capabilities.
For research purpose, three villages with different socio economic and geographic conditions
were selected. These villages were selected in consultation with Unnati♣, which is working in
all the three villages for disaster preparedness. All the three villages are located in Bhachau
block of Kachchh District. First hand information was collected by using participatory tools,
group discussions and interactions with the villagers, local key respondents, PRI members,
block level officers and NGO staff. Secondary data from reports, records and documents also
helped in comprehending the study. Team comprised of social scientist, social worker,
engineer, local youth and NGO staff.
Disaster risk identification was done by understanding the timeline of disaster and its impact
on the village, disaster risk zoning and analyzing the potential risk factors which led to
disasters and affected the severity on well being of community. Vulnerability analysis was
also done with community, in which the sections of community most vulnerable to natural
disasters were identified. Also the effect of disasters on social, economic, physical and
environmental well-being of the community was analyzed. Individuals and families that are
most vulnerable in the village were also identified to strengthen their coping mechanism. The
study tries to understand, how disaster aggravates the stressful situation for vulnerable
♣
Unnati is an Ahmedabad based NGO, working at National Level for Development Education. Organization is
actively involved in strengthening of PRIs, Good Governance, Dalit Rights and disaster preparedness
Risk Reduction Through Community Based Disaster Management Plans V
Executive Summary
families and also investigates the traditional coping mechanism within community,
institutional support available and what are the gaps in coping mechanism. Finally it also
takes a broad look on the efforts by various agencies in the region for disaster preparedness.
The section ahead gives a brief outline of current status of disaster preparedness in three
villages, preparedness and mitigation strategy proposed and how this study will be used
practically.
All the three villages are prone to Earthquake, cyclone and drought in varying severity. While
villagers of Amardi and Morgar are largely affected by recurring droughts, residents of Nani
Chirai are most affected by cyclone. All the three villages are in seismic zone V and are
prone to high severity earthquake. Level of disaster preparedness in three villages as
revealed in the study:
• Physical Vulnerabilities: Most of the houses are concrete structures with earthquake and
cyclone resistant. However small number of marginalized families such as Kolis in Amardi
and fisher folks living in settlement of Kandla (from Nani Chirai) seeks special attention.
• Organization and institutional capacities: Social institutions of most of the upper castes
in Kachchh are very strong and wealthy. These institutions come to the rescue to their
community whenever needed. Social associations of Patel, Ahir, Darbars and Jains were
instrumental for rapid relief and rehabilitation in Kachchh after the earthquake. These
associations have largely flourished outside Kachchh; in Mumbai and other places of
Gujarat and even abroad. However, lower caste people like Koli and Harijan does not
have this kind of support and are entirely dependent on State for the assistance.
• Disaster Management Plans: The efforts by GSDMA and UNDP to prepare Village level
disaster preparedness plans along with some training components was appreciable.
However, with passage of time, the task force seems to be withering out. Linking task force
with continuous development process in the village is important to sustain the effort.
• Behavior change- culture of prevention: Though awareness to be prepared for disaster

has increased in all the three villages of study, there is a long way to go to develop the
culture of prevention. The villagers are still dependent on external agency- be it an NGO or
Government – to mitigate the impact of disaster and tread on the path of development.
Behavior change has not been seen particularly on sanitation and hygiene issues in the
village. All the three villages had poor condition of sanitation and hygiene. Safe disposal of
wastewater, use of toilets for defecation and solid waste management were not practices in
any village.
• Training and awareness programmes: Village level training programmes were initiated
by some agencies including UNDP. However, the study reveals that these trainings bear
no importance and impact on villagers at this date. With no sustainable activities and
incentive to work, the groups tend to fall apart with passage of time.
• Resource Mapping and Inventory: Some organizations like SETU, Abhiyan, Oxfam GB
and others are involved in preparing comprehensive village level database of resources
including NGOs, Experts, Traders that can be useful in times of crises. GSDMA and UNDP
have already prepared village level disaster management plans for all the villages of
Kachchh. These plans have details of village level resources, which can be tapped in crisis
situation.
Risk Reduction Through Community Based Disaster Management Plans VI

Executive Summary
• Early Warning Systems: Warning systems for cyclone are still the traditional ones. The
meteorological department issues warning to state government, which in turn passes the
warning to collector of the respective districts, who issues warning at sub district level. The
warning to villages or coastal settlements is reached through radio and Jeep patrolling.
This method, though working satisfactorily, needs improvements in technology to have
precision of information and immediate reach to villages and settlements.
• Linkages with other institutions: In the post earthquake development process, many
agencies have join hands to integrate their objectives. It has been beneficial to urban
areas, where town planning process has been followed as a part of rehabilitation strategy.
For rural areas, NGOs, research institutions, many government departments and
educational institutions have worked in a team to rehabilitation. However, this teamwork is
not seen disaster preparedness aspect. Here different agencies have worked with their
own objectives and methodology. Many activities have been duplicated and many efforts
have resulted redundant in absence of support agencies. The need of time is to bring
together the agencies interested to work toward disaster preparedness in the region on one
platform, have common understanding on issues and methods and coordinate to have
effective results.
• Legislation: Government of Gujarat has improvised General Development Control

Regulations (GDCR) for the state to incorporate the themes of disaster preparedness in the
by laws and regulations. Bureau of Indian Standards (BIS) have also modified certain
standards for building materials and construction procedures to ensure safety of structures
in seismically active zones. Some of the regulations are already in place to enhance
disaster preparedness- such as Coastal regulation Zone (CRZ) norms.
• Integration in development process: GSDMA has initiated seismic micro zoning for
whole state to have precise and comprehensive information on risks, to develop
preparedness plans. GSDMA is also in progress to have Cyclone preparedness and
Mitigation Plans and Flood Hazard and Vulnerability maps; which can help to make
effective action plans. New town planning processes, development plans lay special
emphasis on land use planning to
Integration of Development Behavior Change to
minimize vulnerability. Processes to reduce mitigate risk
vulnerability
After understanding the current Safe practices
Development regulations Training and Awareness
situation of disaster preparedness, Micro Zoning Create Demand
the strategies to enhance Land use plans Education
Safety and quality standards
preparedness and mitigation were
devised. In context of this study, Disaster
Preparedness
socio economic profile of region,
Disaster preparedness involves
three key elements: Enhancing Coping
mechanisms
• Integration of development
Training and awareness
processes to reduce Technology predation
vulnerability Institutional support
Capacity Building
• Behavior change to mitigate Roles and responsibility
risk
• Enhance coping mechanisms
of society
Risk Reduction Through Community Based Disaster Management Plans VII

Executive Summary
These three aspects lead to design of three programmes that can be taken up by NGO or
any other agency working for development of Bhachau region. These programmes can be:
1. Community based action plan for disaster preparedness

2. Policy level advocacy to interlink development planning with disaster management
3. strengthening capabilities of Panchayati Raj Institutions
1. Community based action plans
1.1 Action plan for earthquake preparedness

No Focal Points Proposed Activities Target Responsible
Population Agency
1 Housing Insurance Linking up with Insurance Co., All families, Insurance co,
Mass Insurance scheme especially Panchayat, NGO
vulnerable
2 Retrofitting Identification and retrofitting of All families, Govt, NGO
damaged/weak houses, especially
damaged
3 Trainings and Conducting training and mass Skilled, youth GSDMA
certification of awareness programmes
masons
4 Rescue team Training youths and equipping Youth, Sajjta Sena,
them GSDMA
5 Buddies for Identification of disabled and Youth, Panchayat, CBO,
disabled and old identifying their buddies youth club, Sajjata
Sena
1.2 Action Plan for Cyclone Preparedness

No Activities Proposed Activities Target Responsible
Population Agency
1 Housing Insurance Link with Insurance Co., Mass All families, esp Insurance co,
Awareness Programme vulnerable Panchayat, NGO
2 Retrofitting Identifying and retrofitting weak All families, esp Govt, NGO
structures especially roof damaged
3 Community Shelter Awareness about safe All families Panchayat, CBO,
structures NGO, Sajjata Sena
4 Buddies for Identifying disabled and their All vulnerable Panchayat, CBO,
disabled and old buddies and disabled youth club, Sajjata
persons Sena
5 Agri insurance Link with Insurance Co. All families, esp Insurance co,
vulnerable Panchayat, NGO
1.3 Drought Preparedness Action Plan

No Action Proposed Activities Target Responsible
Population Agency
1 Revival of village Survey, remedial measures to All villagers NGO, WASMO,
water resources strengthen the bund, Panchayat, CBO
excavation for deepening
pond, clean up of bushes and
baval
2 Agriculture Linking up with Insurance Co., All families, Insurance co,
Risk Reduction Through Community Based Disaster Management PlansVIII

Executive Summary
Insurance Mass Insurance scheme Marginal an Panchayat, NGO

small farmers
3 Livestock Insurance Linking up with Insurance Co., All families, esp Insurance co,
Mass Insurance scheme families Panchayat, NGO
depended on
livestock
4 Watershed/ water Check dams, reviving village All families, esp Govt, Panchayat,
harvesting water resources, water vulnerable NGO, corporates
harvesting structures,
formation of Paani Samiti,
Generating Awareness
5 Pasture land Identifying and developing All families Panchayat, VDC
development Gochar, training for operating
and maintaining it
6 Irrigation technology Trainings and awareness All families, esp GAU, Panchayat
transfer programmes, linking with GAU vulnerable
7 Seed bank Formation of seed bank All families, esp VDC, seed bank
committee under VDC, training vulnerable committee
to operate seed bank
8 Fodder bank Formation of fodder bank All families, esp VDC, seed bank
committee under VDC, training vulnerable committee
to operate fodder bank
9 Credit & SHG Formation of SHGs and All families, esp Women SHGs,
creation training to operate it vulnerable Panchayat, NGO,
rural banks
10 Non farm activities Identification, promotion and Potential skilled, NGO, CBOs
promotion market linkages to Non farm unemployed,
Based activities
11 Vocational trainings Vocation and technical training Youths, women Potential skilled,
to skilled youths unemployed,
youths
12 Food and nutrition Trainings and awareness Women and Vulnerable, daily
security generation among people and children wagers, poor esp
staff of CHC and Anganwadi women ad
on nutrition, monitoring food children
and nutrition
13 Strengthening PDS Constant monitoring, grievance PDS shop PDS shop
redressal system for PDS owner, BPL and owners,
vulnerable monitoring
committee
2. Linking Disaster Plan with Development Plan
It has been learnt from the experience that considering future risks and hazard leads to better
planning and ultimately to less vulnerable communities and assets. Linking disaster
preparedness in development planning needs sound understanding of planning and decision
making authorities along with strong political will. However, in most of the cases, a major
disaster is the wake up call for the authorities, but not before the loss and destruction caused
by the disaster.
Formulation of below given processes, keeping in mind its contribution towards risk reduction
and disaster preparedness will help to build an atmosphere of prevention and preparedness:
Risk Reduction Through Community Based Disaster Management Plans IX

Executive Summary
1) Land use maps: Clear demarcation of land use considering the risks and hazards of the
area
2) Hazard zones: Guidelines for development in hazard zones with signage of warning of
hazard
3) Development Control Regulations: DCR in line with disaster preparedness plan.
Regularization of structures, which are not compatible with DCR including encroachment,
slums and squatters. This will help reduce vulnerability and strengthen disaster
preparedness.
4) Building by-laws: Modification and enforcement of building by laws to minimize structural
vulnerability.
5) Restricted developments:
Identifying safe shelters: Identification and awareness on safe shelters in time of emergency
6) Shelf of projects for disaster preparedness: for rural areas, a shelf of projects that can
help to build the capacity of community to cope disasters should be envisaged and designed.
These projects can be implemented in phases
7) Ear marked funds for disaster preparedness projects: at ULB level also, there should
be earmarked funds for projects, which will help in building coping capacities of the
community and reducing the risk of disasters.
8) Phased implementation to model Disaster Preparedness Plan: To give enough time
and effort so that people can internalize the need, create demand and work towards behavior
change if needed.
9) Insurance: Comprehensive and mass insurance for areas prone to multiple and recurring
hazard should be promoted. Agriculture, livestock, assets and life and health insurance – all
should be covered under various scheme or one comprehensive scheme.
3. Strengthening of PRIs
In India Panchayat is the village level body and lowest yet powerful component of democratic
setup. Panchayat can plat effective role to enhance organising community, forming village
level disaster response committees, developing early warning systems, organising rescue
teams and diversifying livelihood sources. Hence it is extremely important to build capabilities
of Panchayat so that they can act effectively in times of disaster.
The outcomes of the research were shared with Unnati, Sneh Samuday, GSDMA and UNDP.
Unnati, which has its long presence in Bhachau region; have programmes on disaster
preparedness, livelihood and strengthening local self-governance in two villages included in
the study. As Sneh Samuday is working on SHGs in Nani Chirai, the outcomes of the
research were also shared with them so that their programme can be articulated better.
Some of the information was also shared with TARU, consultant to GSDMA to prepare
Cyclone Preparedness Plan for Gujarat. They have agreed to consider the conditions of
vulnerable group of fisher folks which reside just on sea shore, while preparing action plan for
Cyclone preparedness.
The research will be provide valuable insights into the process, stakeholders and dynamics
between them to articulate their programme effectively.
Risk Reduction Through Community Based Disaster Management Plans X

Introduction
This chapter outlines the objective and

rationale of the research. It also explains the
strategies and approaches, which were used
to carry out the study.
1.1 Background
1.2 Research Strategy
1.3 Framework of study
1.4 Objective
1.5 Methodology
1.6 Intended beneficiaries
1.7 Linkages
Risk Reduction Through Community Based Disaster Preparedness Plans 1

Introduction
1.1 BACKGROUND
Gujarat is a multi hazard prone area. Earthquakes, cyclones, recurrent droughts and recent
floods have marked Gujarat as one of the most multi hazard prone regions of India.
Earthquake 2001 was a land mark in history of Gujarat in terms of awareness and
seriousness of disaster preparedness among civil society, policy makers and administrators.
More than 14000 lives were lost, properties and infrastructure worth billions of Rupees
destroyed. It was an eye opener for policy makers, government and local bodies and
completely changed the way they planned the city or developed a rural region.
1.2 RESEARCH STRATEGY
Considering the earthquake of 26th January 2001 as the event of disaster for the study, we
are now in the development and disaster preparedness phase for Kachchh region. Many
NGOs and Government agencies were involved in rehabilitation and reconstruction activities
and some of them are still working in the region. The research is focused on to formulate
effective disaster preparedness programmes and study the ongoing efforts by various
agencies on disaster preparedness. There are seven major components of study:
A) Conceptualising and evolving framework of study
B) Identifying the agency to support and utilize the outcome of study: Unnati-
Organisation for Development Education, agreed to support the study in terms of providing
data and access to the villages. Unnati is working in Bhachau region of Kachchh for disaster
preparedness and strengthening PRIs; and the research outcomes would benefit them to
articulate their programme effectively.
C) Identify the specific geographical area (villages) to carryout study: This was done in
consultation with Unnati. Three villages, having different socio economic conditions and
disaster profiles, were selected in Bhachau block.
D) Evolving tools to carry out research: As outcomes of the study was going to be the
basework for future programmes for Unnati, it was decided to come to a common
understanding on how to carry out research. Tools for carrying out research at field level
were evolved in a two-day pilot study in one of the villages and the lessons learnt were
documented.
E) Field Study: Interaction with villagers using PRA tools. Focused group discussion to
understand the risk, vulnerability and coping mechanism of the villagers.
F) Primary and secondary information collection: Interaction with Panchayat institutions,

government officials, NGOs, and others for data collection, understanding social dynamics
within communities, understanding the gaps in coping mechanisms and external response in
time of disaster, institutional capacities within village.
G) Linkages for future programmes: Linking outcomes of research with action plans of
NGO and other agencies.
1.3 FRAMEWORK OF STUDY
‘Risk reduction through community based disaster preparedness Plan’ would essentially
focus on capturing community perceptions, demands and capabilities to cope with natural
disasters. It involves vulnerability assessment, understanding existing coping mechanism of

Introduction
community, internal and external institution support, identification of gaps in coping

mechanism and identification and linkage with agencies to minimize the gap. Study will also
analyse the efforts done by various agencies in three villages of Bhachau block of Kachchh
district of Gujarat State, which were highly affected during 2001 earthquake. These are the
villages where Unnati (NGO) has been working for long term disaster preparedness through
process of Community Based Disaster Preparedness Plans (CBDP). The study would also try
to understand the underlying factors that contribute to a sound disaster preparedness plan
and sustained implementation in the field. This work would be the base on which Unnati will
be taking up programmes on disaster preparedness. Whole research work was based on the
frame work of ‘vulnerability reduction in context of well being’ which is explained here.
The framework for Disaster Vulnerability Reduction analyses vulnerability context of particular
community and its effect on well-being of the community. It aims at improving the well-being
by reducing vulnerabilities, responsive governance, improving access to social security and
basic rights, improving incomes, ensuring food security and sustainable use of natural
resource base. Community well being is mediated by the policies, institutions and processes.
The framework helps in understanding vulnerability context on the basis of disaster-
development relationship so as to consider factors such as lack of means to cope, socio-
economic and political marginalization, inequitable access to social security and basic
services besides shocks and seasonality and affects the community well being.
The framework also talks about the strategies to reduce vulnerability such as identification of
Economic Social
Well being Well being
Physical Environment
Well being al Well
being
Development Planning,
Resources and Institutions
• Normal time and disaster time
• Access to information
• Access to services and community
assets
• Participation in Resource Planning and
Decision Making
• Civil Society/Government Institutions
Vulnerability Context Strategy
• External factors like hazards – intensity • Identification of gaps

and frequency of occurrence, seasonality • Community based planning,
• Socio-cultural and economic factors such implementation and monitoring
as caste-class and gender inequities, • Vulnerability focus with clear
physical disabilities, ethnicity and targeting
minorities
Chart 1.1 Framework for Disaster Vulnerability Reduction

gaps in coping mechanism; community based planning, implementation and monitoring with
clear focus on vulnerable groups. Based on this framework, the study shall be carried out
Introduction
involving various stakeholders from community, NGO, CBOs, policy makers and
administrators.
Community participation has been recognized as the essential element in disaster

management necessary to reverse the worldwide trend of exponential increase in disaster
occurrence of and loss from small and medium scale disasters, build a culture of safety, and
ensure sustainable development for all. The community-based approach also corrects the
defects of the top-down approach in development planning and disaster management which
failed to address local needs and ignored the potential of indigenous resources and
capacities.
This sets the backdrop of the present study which mainly focuses on development of
mechanism for community based vulnerability reduction by adopting a case-study approach.
1.4 OBJECTIVE:
To develop a mechanism for community based vulnerability reduction in the rural areas of
Bhachau Block in Kachchh district (Gujarat State, India)
1.5 METHODOLOGY:
1. Conceptualizing study
2. Identification of sample villages (3 villages) as case study.
3. Developing field processes
4. Field Study:
Study of village with current development planning and disaster profile.
Identification of well being of the community.
Identification of gaps and resources.
Identification of vulnerability reduction strategies and methods to incorporate it with
the development planning.
Identification of linkages and resources for implementation of the disaster risk
reduction strategies.
5. Discussions of the outcomes with the local government, local/ state disaster Management
Authority, local community, local NGO’s and incorporating their suggestions.
6. Documentation of the study
1.6 INTENDED BENEFICIARIES:
Local Community in Bhachau Block, CBOs, NGOs
1.7 LINKAGES, CONSULTATIONS AND INFORMATION DISSEMINATION:
• UNNATI, Organisation For Development Education, Ahmedabad, India

• Panchayati Raj Institutions (Local Self Government Institutions)
• Gujarat State Disaster Management Authority, Gandhinagar
• District Rural development Agency, Kachchh
• Local Community Based Organisation like Women’s Group, Water Committees.
• Organisation linked with Social Security like Insurance Companies, Health Department,
etc.

Natural Disasters: An Overview
This chapter highlights the situation of

natural disasters worldwide and India, its
effects on communities and the
devastation. Chapter focuses on the
disaster situation in Gujarat State and
the vulnerability of the community.
2.1 Disasters: World Review

2.2 Disasters: India Context
2.3 Disasters: Gujarat State
2.4 Impact on Development

2.1 NATURAL DISASTERS – WORLD REVIEW
During the last decade, more than one billion people were
affected by natural disasters and assets worth
approximately US$730 billion were destroyed, according to
data from the World Disaster Report. Moreover, the losses
from natural disasters are increasing. And in less
developed countries, natural disasters tend to have a
disproportionate impact, causing much greater losses (in
terms of GDP) than in developed ones.
Recognizing the important role of disaster mitigation and

risk management in the reduction of losses from natural
disasters and sustainable development, it is necessary to
shift the traditional focus on assistance for
post-disaster reconstruction toward Global Losses through Natural Disasters
assistance for building a culture of According to Reinsurance Company “Munich Re”
prevention. This new approach costs associated with natural disasters has gone
necessitates research, the development of up 14 fold since the 1950’s. Each year from 1991
new policy and lending instruments, to 2000, an average of 211 million people were
exchange of knowledge, the creation of killed or affected by natural disasters – seven
communities of practice and awareness times greater that the figure for those killed or
raising for governments, civil society, and affected by conflict. Towards the end of the
local communities. 1990’s, the world counted some 25 million
‘environmental refugees’ for the first time more
The increased demand for both disaster
people had fled natural hazards that conflict.
assistance and mitigation capacity building
calls for a structured, comprehensive and Source: Disaster Management in India, Govt. of India,
global risk management framework, one Ministry of Home Affairs
that can be used by regional and national
authorities and by communities themselves.
It is increasingly recognized worldwide that the devastating effects of natural disasters can be
linked to shortcomings of development policies. Disasters are a development problem. First,
because certain natural phenomena tend to have greater effects in developing countries than in
developed countries. Second, because several structural factors associated with a low level of
development exacerbate disasters’ effects. Third, because the negative impact of natural
phenomena on the prospects for long-term development is considerably greater in less
developed countries. Thus, confronting disaster issues in a systematic and coherent fashion
must be an explicit objective of development strategies. This introductory module reviews
worldwide trends in disaster occurrence, regional distribution, and links to global trends such as
persistent poverty, environmental degradation and growing urban density.

2.2 NATURAL DISASTERS – INDIAN CONTEXT
2.2.1 Disaster Profile:
An Internet study reveals that India makes it on the

chart among the top 10 world disasters in the case
of landslide and avalanche, railway and aviation
and tropical cyclone. The striking of disasters in
India is a geographically filled moment. All the
disasters in India carry the tag of the place for their
reference. The High Power Committee report on
the National Disaster Management list 31 types of
disasters in India. The International Federation of
the Red Cross and Red Crescent list 25 disasters. Photo Courtesy: GSDMA, UNDP, India
Box 2.1 India’s Key Vulnerabilities

The Indian sub continent is highly prone to natural
India’s Key Vulnerabilities
disasters. Floods, droughts, cyclones and
Coastal State. Particularly in the earthquakes are a recurrent phenomenon in India.
East Coast and Gujarat are
Susceptibility to disasters is compounded by frequent
vulnerable to cyclones.
occurrences of manmade disasters such as fire,
40 Million hectares land mass is
vulnerable to floods epidemics etc. Between 1988 and 1997, disasters
killed 5,116 people and affected 24.79 million every
68 percent of the net sown area is
vulnerable to earthquakes year. The changing topography due to environmental
degradation has also increased the vulnerability of
Sub Himalayan/ Western Ghat is
vulnerable to landslides the country. In 1988, 11.2 % of total land area was
flood prone, but in 1998 floods inundated 37%
geographical area. Three major disasters that India has experienced in the recent past are the
Super cyclone in Orissa (1999), the Earthquake in Gujarat (2001), Tsunamis in South India
(2004). Frequent disasters lead to erosion of development gains and restricted options for the
disaster victims.
Table 2.1 Major Earthquakes in India 1988-2001
Between the years 1991 to 2000 Asia
Date Location Magnitude
continent has accounted for 83 per cent of the
August 21, Bihar- Nepal 6.4
population affected by disasters globally. 1988 border
While the number of people affected in the October 20, Uttarkashi, Uttar 6.6
rest of the world were 1,11,159, in Asia the 1991 Pradesh
number was 5,54,439.Within Asia, 24 per September Latur- 6.3
30, 1993 Osmanabad,
cent of deaths due to disasters occur in India,
Maharashtra
on account of its size, population and May 22. Jabalpur, 6
vulnerability. Floods and high winds account 1997 Madhya Pradesh
for 60 per cent of all disasters in India. March 29, Chamoli, Uttar 6.8
1999 Pradesh
Many parts of the Indian sub-continent are
susceptible to different types of disasters January 26, Bhuj, Gujarat 6.9
owing to the unique topographic and climatic 2001
characteristics. About 54per cent of the sub-
continent’s landmass is vulnerable to earthquakes while about 4 crore hectares is vulnerable to
periodic floods. The decade 1990-2000, has been 65 one of very high disaster losses within the
country, losses in the Orissa Cyclone in 1999, and later, the Gujarat Earthquake in 2001 alone

amount to several thousand crore of Rupees, while the total expenditure on relief and
reconstruction in Gujarat alone has been to the tune of Rs 11,500 crore.
Similarly, the country has suffered four major earthquakes in the span of last fifty years along
with a series of moderate intensity earthquakes that have occurred at regular intervals. Since
1988, six earthquakes have struck different parts of the country. These caused considerable
human and property losses.
Map 2.1 indicates the major natural hazards occurring in India. It has been observed that India is
prone majoritily to Earthquake, flood, drought, landslides and cyclones. Floods and droughts
significantly impact the majority of India though they are most prevalent in the northwestern and
eastern regions respectively.
Map 2.1 Natural Hazard Vulnerability Maps of India
Source: The Earth Institute, Columbia (website search)

2.2.2 Effects of Disasters:
The dimensions of the damage, emphasize the point that natural disasters cause major
setbacks to development and it is the poorest and the weakest that are the most vulnerable to
disasters.
Geophysical hazards affect the Himalayan region in the north and northeastern portions of the
country where they rank in high deciles for mortality and lower deciles for GDP impact. Cyclones
influence a relatively small area of the country but have high-ranking mortality and GDP
weighted impacts. Lastly, both the multi-hazard mortality and GDP maps demonstrate that
almost the entire country is significantly impacted by at least one hazard and mortality impacts
are particularly concentrated in the north and northeastern regions.
(Mortality Deciles as per Map 2.2 & GDP maps as per Map 2.3)
Map 2.2 Mortality Deciles -Natural disasters in India
Source: The Earth Institute, Columbia

Map 2.3 GDP impact by natural disasters in India

In the earthquake in Gujarat State (India) in year 2001, more than 14,000 lives were lost, ten
lakh houses were damaged and the asset loss has been indicated to be worth 15,000 crore.
Tables 2.1 to 2.5 giives an indication of the magnitude of the damage and losses incurred by the
country in recent natural disasters.
Table 2.2 Damage due to Natural Disasters in India
People Affected Houses & Buildings, partially Amount of property
Year
(Lakh) or totally damaged damage/loss (Rs. In crores)
1985 595.6 2449878 40.06
1986 550 2049277 30.74
1987 483.4 2919380 20.57
1988 101.5 242533 40.63
1989 30.1 782340 20.41
1990 31.7 1019930 10.71
1991 342.7 1190109 10.9
1992 190.9 570969 20.05
1993 262.4 1529916 50.8
1994 235.3 1051223 10.83
1995 543.5 2088355 40.73
1996 549.4 2376693 50.43
1997 443.8 1103549
1998 521.7 1563405 0.72
1999 501.7 3104064 1020.97
2000 594.34 2736355 800
2001 788.19 846878 12000
Source : Annual Reports, Natural Disaster management Division, Ministry of Agriculture, India
Table 2.3 Annual damage due to heavy rains, landslide and floods
Crop
Human Estimated
Villages Population Area Houses Cattle
Districts Life value of loss
Year Affected affected Affected Damaged Loss
Affected loss to houses
(no.) (lakh) (Lakh (no.) (no.)
(no.) (Rs. In crore)
hectares)
1999 202 33158 328.12 8.45 884823 1375 3661 0.72
2000 220 29964 416.24 34.79 2736355 3048 102121 631.25
2001 122 32363 210.71 18.72 346878 834 21269 195.57
Table 2.4 Losses due to Droughts: 1999-2001

Crop
Human
Total Villages Population area Houses
Date of District life Cattle loss
no of Affected affected affected damaged
Occurrence Affected loss (no.)
districts (no.) (lakh) (lakh (no.)
(no.)
Hectare)
17-18 Oct
30 4 5181 37.47 1.58 331580 199 10578
1999
29-30 Oct
30 12 14643 129.22 18.43 1628532 9887 444531
1999
Table 2.5 Effects of Natural Disasters in India (1900-2004):

No. of Total person Avg. Killed Avg. Affected per
Disaster Total Affected
Events Killed per event event
Cyclone 133 162,986 1226 91,322,407 686,635
Drought 21 4,250,430 202,401 1,391,841,000 66,278,143
Earthquake 24 60,396 2,517 27,108,561 1,129,523
Flood 158 51,020 323 663,187,348 4,197,38

2.3 NATURAL DISASTERS – GUJARAT STATE
2.3.1 Context and history of disasters in Gujarat♣
Given the intensity and frequency of disasters in India, the need for a comprehensive approach
to the prevention and mitigation of hazards and the need for mainstreaming the concept of
disaster risk management into ongoing developmental activity cannot but be emphasized more
strongly. Especially so if development gains made over the years through painstaking effort and
the precious lives and livelihoods of the most vulnerable sections of society are to be protected.
The prosperous industrial state of Gujarat experiences droughts, flash floods, cyclones and
earthquakes with depressing regularity. Some of the most devastating disasters which have
stuck the State in previous decades include the Morbi flood of 1978, the epidemic in Surat of
1994, the Kandla cyclone of 1998, the floods which swept across Ahmedabad, Baroda, Surat
and Mehsana in 2000, and the killer quake of January 26 2001. The multi-hazard scenario of the
state is illustrated below:
A. Wind and Cyclone Vulnerable Areas:

Wind Probable
Zone Area
Speed Surge
Very High Damage Kachchh (Coastal Talukas), Jamnagar,
50 m/s 3-7.5 mts.
Risk Zone B parts of Rajkot, Amreli and Bhavnagar
Moderate Damage parts of Anand, Bharuch, Surat,
47 m/s 4-8 mts.
Risk Zone Navsari Valsad
Moderate Damage Part of Kachchh, Banaskantha, parts
44 m/s of Surendranagar and Patan
Risk Zone A
Low Damage Parts of Surendranagar, Patan and
39 m/s Sabarkantha
Risk Zone B
B. Earthquake Vulnerable Areas:

Zone Area Probable Surge
V Kachchh VI to IX or more
Banaskantha, parts of Surendranagar, Patan, Rajkot and
IV V- VIII
Jamnagar
Sabarkantha, part of Panch Mahal, Surendranagar, Amreli,
III Junagarh, Bhavnagar, Anand, Bharuch, Vadodara, Surat, III- V
Danges and Valsad
II Dahod and Parts of Panchmahal < III
Source: Vulnerable Atlas of Gujarat, 1991
C. Flood Vulnerability:
Major River Vulnerable District
Banas Patan,Banaskantha
Sabarmati Ahmedabad,Kheda,Sabarkantha
Mahi Vadodara,PanchMahal
Viswamatry Vadodara,PanchMahal
Narmada Bharuch,Vadodara
Tapi Surat
Damangaga Valsad,
Ambika Valsad
Purna Valsad,
Maps 2.1 – 2.4 depict the vulnerable areas of Gujarat in various disasters.
♣
Disaster Risk Management Program Hand book by Gujarat State Disaster Management Authority and UNDP, India
(Source: Disaster Risk Management Program Hand book by Gujarat State Disaster
Management Authority and UNDP, India. Original Source: BMTPC, India)
Map 2.4 Wind and Cyclone Hazard Vulnerability Map of Gujarat
Map 2.5 Earthquake Hazard Vulnerability Map of Gujarat

Map 2.6 Flood Hazard Vulnerability Map of Gujarat
Map 2.7 Multiple Hazard Vulnerability Map of Gujarat

2.4 IM PACT ON DEVELOPMENT

During the past four decades, natural hazards such as earthquakes, volcanic activity, landslides,
tsunamis, tropical cyclones and other severe storms, tornadoes and high winds, river floods and
coastal flooding, wildfires and associated haze, drought, sand/dust storms, and insect
infestations have caused major loss of human lives and livelihoods, the destruction of economic
and social infrastructure, as well as environmental damage. Economic losses have increased
almost 10 times1 during this period. In recent years, floods in India, Algeria, Bangladesh,
Ethiopia, Guinea, India, Mozambique, Nigeria, Sudan, Thailand, Venezuela and Vietnam,
volcanic eruptions in Ecuador, Democratic Republic of Congo, Indonesia, Montserrat, and the
Philippines, and earthquakes in Afghanistan, El Salvador, India, Indonesia, Japan, Peru and
Turkey, have created widespread social, economic and environmental destruction. . In some
cases, natural disasters can amplify manmade emergencies or vice versa, as epitomized by the
drought, earthquakes and unfolding events in Afghanistan.
The escalation of severe disaster events triggered by natural hazards and related technological
and environmental disasters is increasingly threatening both sustainable development and
poverty-reduction initiatives. The loss of human lives and the rise in the cost of reconstruction
efforts and loss of development assets has forced the issue of disaster reduction and risk
management higher on the policy agenda of affected governments as well as multilateral and
bilateral agencies and NGOs. This trend led to the adoption of the International Strategy for
Disaster Reduction (ISDR)2 by governments to succeed and promote implementation of the
recommendations emanating from the International Decade for Natural Disaster Reduction
(IDNDR, 1990-1999). The aim of the ISDR is to mobilize governments, UN agencies, regional
bodies, the private sector and civil society to unite efforts in building resilient societies by
developing a culture of prevention and preparedness. The Secretariat of the International
Strategy for Disaster Reduction (UN/ISDR), which falls under the direct authority of the Under-
Secretary-General for Humanitarian Affairs, was established together with the United Nations.
Inter-Agency Task Force (IATF) on Disaster Reduction,3 as the international mechanisms to
coordinate the development and implementation of the ISDR.
In addition to the projected estimate of 100,000 lives lost each year due to natural hazards, the
global cost of natural disasters is anticipated to exceed $300 billion annually by the year 2050,4
if the likely impact of climate change is not countered with aggressive disaster reduction
measures. The environmental impact of natural hazards, in particular the loss of environmental
services (water, forest, biodiversity, ecosystem function, etc.), is still difficult to assess and is
often underestimated. Indirect economic losses of ‘market share,’ following the disruption to
trade after a disaster, can also go largely unnoticed. For example, almost seven years after the
Great Hanshin-Awaji earthquake (1995) in Kobe, Japan, devastated the facilities of one of the
country’s primary ports, the equipment and harbor facilities have all been rebuilt and
modernized, yet the amount of shipping trade in Kobe has dropped by about 15 percent from
pre-earthquake revenues.
Floods in 2002- affected over 17 million people worldwide (29 August 2002, WMO) Floods in
more than 80 countries have caused hardship for more than 17 million people world-wide since
the beginning of 2002, according to the World Meteorological Organization (WMO).
1
Munich Re Topics 2000, Natural Catastrophes—the current position.
2
Resolution, UN General Assembly 54/219.
3
By UN General Assembly resolution 54/219, on 3 February 2000, reconfirmed in resolution 56/195, January 2002.
4
SEI, IUCN, IISD: Coping with Climate Change: Environmental Strategies for Increasing Human Security, August 2001
(Source: Munich Re and UNEP).

Almost 3000
people have lost
their lives while
property damage is
amounting to over
thirty billion US
dollars. The total
area affected by the
floods is over 8
million square
kilometers, almost
the size of the
United States of
America. At any
time throughout the
world a river
somewhere is in
flood and its waters
are threatening
Chart 2.1 Great Natural Catastrophes 1950-2002 communities, their
property and even
their lives. Few of these events are reported in the headlines due to their local impact. However,
the floods in Central Europe and China have drawn international attention. At the other end of
this extreme water overload are droughts that have been and are still occurring around the world
at the same time. Droughts and floods both have major impacts on the socio-economic well
being of countries. In some cases, countries experience both extremes simultaneously as is
currently occurring in India and Niger. Serious droughts are occurring in the SADC countries of
southern and central Africa, which is resulting in starvation and global outcry for food aid. In
North America, over 37% of the United States are suffering from a severe drought with the
longest-lived drought in the southeastern states. A delayed monsoon in India has resulted in
unseasonably hot and dry conditions throughout northern and western parts of the country; its
impact is a 10 million-ton drop in India’s rice crop. Australia is stricken by severe rainfall
deficiencies across eastern portions of the country, resulting in serious crop loss and a need for
drought aid packages to farmers.
While no country in the world is entirely safe, lack of capacity to limit the impact of hazards
remains a major burden for developing countries. An estimated 97 percent of natural disaster
related deaths each year occur in developing countries5 and, although smaller in absolute
figures, the percentage of economic loss in relation to the Gross National Product (GNP) in
developing countries far exceeds that in developed countries. This fact becomes even more
relevant for small island developing States (SIDS). In addition, 24 of the 49 least developed
countries still face high levels of disaster risk; at least six of them have been hit by between two
and eight major disasters per year in the last 15 years, with long-term consequences for human
development.6 These figures would be much higher, and some experts estimate at least double
or more, were the consequences taken into account of the many smaller and unrecorded
disasters that cause significant losses at the local community level. The chart 2.1 also clearly
demonstrates the considerable geographic variations in the occurrence and impact of natural
hazards. Asia is disproportionately affected with approximately 43 percent of all natural disasters
in the last decade. During the same period, Asia accounted for almost 70 percent of all lives lost
5
World Bank, World Development Report, 2000-1:170.
6
UNDP, ERD: Disaster Profiles of the Least Developed Countries, May 2001.
due to natural hazards.7 During the two El Niño years of 1991/92 and 1997/98, floods in China
alone affected over 200 million people in each year. While the world has witnessed an
exponential increase in human and material losses due to natural disasters, there is an ongoing
debate about the increase of the frequency and intensity of extreme hydro-meteorological
events due to, in particular,
climate change. There is,
however, no evidence of more
frequent or intense
earthquakes or volcanic
eruptions. For these geological
hazards, the reasons for
increased losses are found in
the global rise of people’s
vulnerability, induced by
currently determined paths of
development. The effects of
climate change and the risks
posed by the increasing
degradation of the
environment, epitomized by
deforestation, loss of
biodiversity and associated
knowledge, reduced water
supply and desertification, can
only contribute to increased
concern on these issues. The
capacity to cope with the
Chart 2.2 Community (by continent) affected by disaster 1991-2000 impact of disasters is
determined by a number of
factors, including the composition and circumstances of the social group affected; for example,
whether the group is rich or poor, male or female, young or old, able or disabled.
2.4.1 Human vulnerability, environmental degradation and increasing impoverishment in

developing countries
There is a close correlation between increased demographic pressure, especially in developing
countries (and most notably in the least developed countries), growing environmental
degradation, increased human vulnerability and the intensity of the impact of disasters.
Detrimental development and inappropriate use of resources are contributory factors to natural
disasters. They can accelerate or amplify recurrent phenomena such as droughts.
Environmental degradation increases the intensity of natural hazards, and is often the factor that
transforms the hazard, or a climatic condition such as heavy downpour, into a disaster. For
example, river and lake floods are aggravated by deforestation, which, in turn, causes erosion
and clogs rivers. Floods or droughts leading to famines dislocate families who become refugees
as they are forced to migrate elsewhere. Poverty and hazard vulnerability are integrally linked
and mutually reinforcing. The poor are forced to exploit environmental resources for survival,
thereby increasing both the risk and exposure to disasters, in particular those triggered by
floods, drought and landslides. Sustainable and integrated management of natural resources,
including reforestation schemes, proper land use and good management of rivers and coastal
areas, will increase the resilience of communities to disasters by reversing current trends of
7
EM-DAT database, CRED, 2002, see: www.cred.be

environmental degradation. Globalization has increased the risks faced by the marginalized and
excluded. Whilst no country is safe from natural hazards, lack of capacity to limit the impact of
hazards remains a major burden for developing countries. Traditional coping mechanisms have
come under severe pressure and adaptation strategies, once valid, are no longer appropriate.
Globalization has weakened the organizational capacities that still exist in small towns and rural
areas to deal with hazards by introducing dependency factors. Due to inequitable access to
resources, poor people in developing countries are far more vulnerable to negative
environmental changes than their wealthier counterparts, since they lack the means to cope and
recover from the impact of such changes.
Deforestation, land degradation, and related food security are shaped by the practices of men
and women who make livelihood decisions about how to use these resources. It can be claimed
that the major impacts upon these issues are due to unsustainable western consumption
patterns and investment decisions in the richer nations. In poorer communities, motivated by
poverty, migration, illness, etc., these decisions may also have a profound impact on the
environment. In some cases, rural development practices have marginalized and segregated
farming and livestock which, in many cases, have turned agriculture into an independent area of
economic growth, without linkage to economic and food security of the broader community.
2.4.2 The ecological footprint

Every human requires an area of land and shallow sea for food, water, shelter, transport,
energy, commerce and waste. This is called an ecological footprint. Demographic pressures
result in more forest loss and more land degradation. This means increased flooding, drought, or
both. In rich nations such as the US, this ecological footprint is almost 10 hectares per person.
But even in the poorest places in the US this footprint is at least one hectare. Every day, another
200,000 newborns will require up to 200,000 hectares of what might have been a benign and
necessary wilderness. More people also means more fossil fuel consumption, which means
more carbon dioxide emission, which means climate change. Such a world, climate scientists
have warned repeatedly, is a world with a greater frequency of extreme events. The combination
of climate change and population growth will exact a price. The latest UN calculation is that
three decades from now, around 70 per cent of the world’s land will be affected in some way by
human activity and half the people in the world will be short of water. Many of the other half will
be at risk from increased flooding. By that time, there could be eight billion people on the
♣
planet.
Least developed countries are more vulnerable to natural hazards. They are subject to the
highest rates of population growth, which is projected to double in less than 30 years. Poverty
and social and economic pressures, such as migration, unemployment and illegal land tenure
practices, make people more vulnerable by forcing them to live in dangerous locations, often on
unsafe land and in unsafe shelters or low-cost dwellings, because there is no other land
available at reasonable cost sufficiently close to employment opportunities. Disasters contribute
to, and are also exacerbated by other factors that make people vulnerable, for example:
unemployment, political instability, poor economic conditions, unequal distribution of wealth,
food insecurity, lack of personal security, and violation of human rights. Repeated exposure to
disasters can lead the poor into a downward spiral of chronic poverty, even though poverty
alone is not the only vulnerability factor.
♣
Source: Living with Risk: A global review of disaster reduction initiatives, ISDR, 2002

Institutional Mechanism For Disaster Management in India
This chapter gives an overview of institutional mechanism to

respond to a natural or manmade disaster. It explains role of
various stakeholders in the society in responding to a disaster,
financial mechanism in time of emergency and policy directives.
Major part of the chapter is excerpts from document ‘Disaster
Management in India’, Ministry of Home Affairs, Government of
India; and ‘Hazards, Disasters and your Community- A primer for
Parliamentarians’ , Government of India, National Disaster
Management Division.
3.1 Disaster Response Scenario in India

3.2 Institutional arrangements for Disaster Management
3.3 Other functionaries in disaster management
3.4 Paradigm shift
3.5 Institutional and Policy Framework
3.6 Financial Mechanism
3.7 New policies, practices and institutional mechanisms

3.1 DISASTER RESPONSE SCENARIO IN INDIA
Disaster response in India has traditionally been State driven with initial response from local
community. For years, it had remained adhoc and without any standard process. Typically its
focus is on rehabilitation and compensation for a large-scale disaster. Of late, national level
and state level authorities have been set up for disaster response, mitigation and
preparedness for disaster in an organized manner. Finance for this type of response is
earmarked in the Union budget under two heads called National Calamity Contingency Fund
(NCCF) and Prime Minister’s National Relief Fund (PMNRF). The programmes for
rehabilitation and compensation are carried out through administrators, mostly the Revenue
Department with assistance of other departments. Collectorate of the respective province
plays important role in the process of compensation and relief distribution.1
Keeping in view the new developments and initiatives, the disaster management setup in
India is trying to orient itself towards a strong focus on preventive approaches, mainly through
administrative reforms and participatory methods. Preparedness measures such as training
of role players including the community, development of advanced forecasting system,
effective communication, and above all a sound and well networked institutional structure
involving the government organizations, academic and research institutions, the armed forces
and the non governmental organizations have greatly contributed to the overall disaster
management in the country. Identification of vulnerable communities, integrating disaster
prevention into habitat planning and developing a culture of prevention are new emerging
approaches for disaster management and has been propagated by High Powered Committee
on Disaster Management. The Government of India, after the Gujarat Earthquake has
established a National Committee on Disaster management (NCDM) headed by the Prime
Minister, to provide a forum to political parties to share and discuss the issues related to
disaster management and mitigation. This committee is supposed to suggest the institutional
and legislative measures to strengthen the existing disaster management structure of the
country. The Planning Commission has incorporated, for the first time, disaster management
as one of its areas of concern. A chapter titled ‘Disaster Management- The Development
Perspective” has been included in the Tenth Plan document to make whole gamut of
planning process sensitive to various dimensions of disaster management. The Tenth Plan
also addresses the community based disaster preparedness and management by the way of
strengthening and capacity building of Panchayati Raj Institutions (PRIs) and Urban Local
Bodies (ULBs). A special mention has been made about the role of youth in disaster
management, not only through educational institutions but also through youth movements like
Nehru Yuva Kendra Sangathan (NYKS), National Cadet Corps (NCC), National Service
Scheme (NSS), Bharat Scout and Guides (BS &G), etc.
1
Hazards, Disasters and your Community- A primer for Parliamentarians; Government of India, National Disaster
3.2 INSTITUTIONAL ARRANGEMENTS FOR DISASTER MANAGEMENT- INDIA2
3.2.1 Central Level

Central Government plays a key role for providing financial and logistic support in case of
major disasters and coordinates the effort of Central Ministries/ Departments/ Organizations.
Cabinet Committee on Natural Calamities is placed at apex level. The scope of the
Committee has also been enlarged so as to address mitigation and preparedness measures
also. National Crisis Management Committee (NCMC) headed by Cabinet Secretary gives
direction to Crisis Management Group (CMG), Ministries and Departments for specific action
needed in mitigating the crisis situation. CMG, chaired by Central relief Commissioner
annually review contingency plans formulated by various ministries
/departments/organizations in their respective sector coordinates activities of Central
Ministries and State Government in relation to disaster preparedness and relief and obtains
information from nodal officers. In event of disaster, CMG meets frequently to review relief
operations and extends assistance to the affected State. It is proposed to create Disaster/
Emergency Management Authorities at State and National level with representatives of
relevant Ministries/Departments and experts to have a multidisciplinary team.
3.2.2 State Level
The states have been asked to set up Disaster Management Authorities under the Chief
Ministers with Ministers of relevant Departments as members. 11 States and Union
Territories – Tamilnadu, Arunachal Pradesh, Uttaranchal, Orissa, Gujarat, Kerala, Nagaland,
Rajasthan, Delhi, Andaman & Nicobar administration and Chandigarh administration have
notified the authority. At the state level, the work of post calamity relief is handled by the
Departments of Relief and Rehabilitation. The Government of India is working with the State
Governments to restructure the Departments of Relief and Rehabilitation into Departments of
Disaster Management with an enhanced responsibility to include mitigation and
preparedness along with relief and rehabilitation. The states have been advised to restructure
the officers/staff within the department with definite functions to pursue holistic approach to
disaster management. The four functional groups to be assigned with specific tasks are
• Functional Group 1: Hazard Mitigation
• Functional Group 2: Preparedness and Capacity Building
• Functional Group 3: Relief and Response
• Functional Group 4: Administration and Finance
3.2.3 District Level
At the district level, the District Magistrate is the chief coordinator and focal point for
coordinating all activities relating to prevention, mitigation and preparedness apart from his
existing responsibilities pertaining to relief and response. The District Coordination and Relief
Committee is being reconstituted/ re-designated into Disaster Management Committees with
officers from relevant departments being added as members. District Disaster Management
Committees have been constituted in 256 districts.
3.2.4 Block/ Taluka/ Tehsil Level
Similarly, Sub divisional Disaster Management Committees are being constituted. At village
levels such committees and teams will help drawing Disaster Preparedness Plan along with
youth organizations, CBOs and NGOs.
2
Hazards, Disasters and your Community- A primer for Parliamentarians; Government of India, National Disaster
3.3 OTHER FUNCTIONARIES IN DISASTER MANAGEMENT
3.3.1 Role of Armed Forces

In a disaster situation or an emergency, armed forces are looked upon for the immediate
rescue operation and maintaining law and order in India. The country has not been able to
develop a separate trained and specialized indigenous groups or teams for rescue operations
in case of natural hazards. Some efforts made by Central government and some of the state
governments to prepare a trained group for such operations are too little to carryout such a
specialized job. In case of Gujarat earthquake, expertise and efficiency of foreign rescue
teams proved far more and better equipped than Indian counterparts.
3.3.2 Role of Local Community

The initial rescue and response to people trapped in a disastrous situation is most often from
the local community. Hence community based disaster preparedness and developing a
culture of disaster preparedness will have far reaching implications on disaster management.
3.3.3 Role of NGOs

NGOs play vital role in coping with disasters. They enhance the outreach for relief and rescue
immediately after the disaster and play crucial role in rehabilitation ensuring participatory
methods, community well being and acting as a bridge between the community and the
government. In recent years, role of NGOs have become even more proactive and articulate.
NGOs have been given decisive roles in some of the government relief schemes ensuring
more transparency and effectiveness of the programmes. They are now playing roles as
partners in development and not seen as mere activists to oppose the government.
3.4 PARADIGM SHIFT
Over the years of experience there has been paradigm shift towards Disaster Preparedness
from Disaster Mitigation in modus operandi of Government and Non Government
organizations. Recently focus on integrating Disaster Preparedness in development plan
itself has gained widespread acceptability among policy makers as well as grass root
workers. Experiences of recent disasters in India underscored the need to adopt a multi
dimensional endeavor involving diverse scientific, engineering, financial and social
processes; the need to adopt multi disciplinary and multi sectoral approach and incorporation
of risk reduction in the developmental plans and strategies and have forced policy makers in
the Government to invest in Disaster Preparedness rather than reacting in aftermath of a
disaster, which in turn proves beneficial socially, physically and economically. Proper
planning and implementation of Disaster Preparedness plan can reduce vulnerability of a
society towards any potential disaster.
The steps being taken by the Government emanate from the approach outlined above. The
approach has been translated into a National Disaster Framework [a roadmap] covering
institutional mechanisms, disaster prevention strategy, early warning system, disaster
mitigation, preparedness and response and human resource development. The expected
inputs, areas of intervention and agencies to be involved at the National, State and district
levels have been identified and listed in the roadmap. This roadmap has been shared with all
the State Governments and Union Territory Administrations. Ministries and Departments of
Government of India, and the State Governments/UT Administrations have been advised to
develop their respective roadmaps taking the national roadmap as a broad guideline.

3.5 INSTITUTIONAL AND POLICY FRAMEWORK3

At the national level, the Ministry of Home Affairs is the nodal Ministry for all matters
concerning disaster management. The Central Relief Commissioner (CRC) in the Ministry of
Home Affairs is the nodal officer to coordinate relief operations for natural disasters. The
CRC receives information relating to forecasting/warning of a natural calamity from India
Meteorological Department (IMD) or from Central Water Commission of Ministry of Water
Resources on a continuing basis. The Ministries/Departments/Organizations concerned with
the primary and secondary functions relating to the management of disasters include: India
Meteorological Department, Central Water Commission, Ministry of Home Affairs, Ministry of
Defence, Ministry of Finance, Ministry of Rural Development, Ministry of Urban Development,
Department of Communications, Ministry of Health, Ministry of Water Resources, Ministry of
Petroleum, Department of Agriculture & Cooperation, Ministry of Power, Department of Civil
Supplies, Ministry of Railways, Ministry of Information and Broadcasting, Planning
Commission, Cabinet Secretariat, Department of Surface Transport, Ministry of Social
Justice, Department of Women and Child Development, Ministry of Environment and Forest,
Department of Food. Each Ministry/Department/Organization nominate their nodal officer to
the Crisis Management Group chaired by Central Relief Commissioner. The nodal officer is
responsible for preparing sectoral Action Plan/Emergency Support Function Plan for
managing disasters.
3.5.1 National Crisis Management Committee (NCMC): Cabinet Secretary is the highest
executive officer, heading the NCMC. Secretaries of all the concerned Ministries
/Departments as well as organizations are the members of the Committee. NCMC gives
direction to the Crisis Management Group as deemed necessary. The Secretary, Ministry of
Home Affairs is responsible for ensuring that all developments are brought to the notice of the
NCMC promptly. The NCMC can give directions to any Ministry /Department/Organization for
specific action needed for meeting the crisis situation.
3.5.2 Crisis Management Group: The Central Relief Commissioner in the Ministry of Home
Affairs is the Chairman of the CMG, consisting of senior officers (nodal officers) from various
concerned Ministries. The CMG’s functions are to review yearly contingency plans formulated
by various Ministries/Departments/Organizations in their respective sectors, co-ordinate
measures required for dealing with a natural disasters, coordinate the activities of the Central
Ministries and the State Governments in relation to disaster preparedness and relief and to
obtain information from the nodal officers on measures relating to above. During Natural
disaster, CMG meets frequently to review the relief operations and extends all possible
assistance required by the affected States to overcome the situation effectively. The Resident
Commissioner of the affected State is also associated with such meetings.
3.5.3 Control Room (Emergency Operation Room): An Emergency 24 hours Operations

Center (Control Room) exists in the nodal Ministry of Home Affairs. It assists the Central
Relief Commissioner in the discharge of duties, collects and transmits information concerning
natural calamity and relief, keeps close contact with governments of the affected States,
interacts with other Central Ministries /Departments /Organizations in connection with relief,
maintains records containing all relevant information relating to action points and contact
points in Central Ministries etc., keeps up-to-date details of all concerned officers at the
Central and State levels.
3
Disaster Management in India; Ministry of Home Affairs, Government of India.
3.5.4 Contingency Action Plan: A National Contingency Action Plan (CAP) for dealing with
contingencies arising in the wake of natural disasters has been formulated by the
Government of India and it had been periodically updated. It facilitates the launching of relief
operations without delay. The CAP identifies the initiatives required to be taken by various
Central Ministries/Departments in the wake of natural calamities, sets down the procedure
and determines the focal points in the administrative machinery.
3.5.5 State Relief Manuals: Each State Government has relief manuals/codes, which
identify that role of each officer in the State for managing the natural disasters. These are
reviewed and updated periodically based on the experience of managing the disasters and
the need of the State.
3.6 FINANCIAL MECHANISM
Funding mechanism: The policy and the funding mechanism for provision of relief
assistance to those affected by natural calamities is clearly laid down. These are reviewed by
the Finance Commission appointed by the Government of India every five years. The
Finance Commission makes recommendation regarding the division of tax and non-tax
revenues between the Central and the State Governments and also regarding policy for
provision of relief assistance and their share of expenditure thereon.
3.6.1 Calamity Relief Fund

(CRF) has been set up in each State as per the recommendations of the Eleventh Finance
Commission. The size of the Calamity Relief Fund has been fixed by the Finance
Commission after taking into account the expenditure on relief and rehabilitation over the past
10 years. The Government of India contributes 75% of the corpus of the Calamity Relief Fund
in each State. 25% is contributed to by the State. Relief assistance to those affected by
natural calamities is granted from the CRF. Overall norms for relief assistance are laid down
by a national committee with representatives of States as members. Different States can
have State-specific norms to be recommended by State level committee under the Chief
Secretary. Where the calamity is of such proportion that the funds available in the CRF will
not be sufficient for provision of relief, the State seeks assistance from the National Calamity
Contingency Fund (NCCF) - a fund created at the Central Government level. When such
requests are received, the requirements are assessed by a team from the Central
Government and thereafter the assessed requirements are cleared by a High Level
Committee chaired by the Deputy Prime Minister.

3.7 NEW POLICIES, PRACTICES AND INSTITUTIONAL MECHANISM4
The changed policy/approach, however, mandates a priority to full disaster aspects of

mitigation, prevention and preparedness and new institutional and policy mechanisms are
being put in place to address the policy change.
It is proposed to constitute a National Emergency Management Authority at the National

level. The High Powered Committee on Disaster Management, which was set up in August
1999 and submitted its Report in October 2001, had inter alia recommended that a separate
Department of Disaster Management be set up in the Government of India. The organization
at the Apex level will have to be multi-disciplinary with experts covering a large number of
branches. The National Emergency Management Authority has, therefore, been proposed as
a combined Secretariat/Directorate structure – a structure which will be an integral part of the
Government and, therefore, will work with the full authority of the Government while, at the
same time, retaining the flexibility of a field organization. The National Emergency
Management Authority will be headed by an officer of the rank of Secretary/Special Secretary
to the Government in the Ministry of Home Affairs with Special Secretaries/Additional
Secretaries from the Ministries/Departments of Health, Water Resources, Environment &
Forests, Agriculture, Railways, Atomic Energy, Defence, Chemicals, Science & Technology,
Telecommunications, Urban Employment and Poverty Alleviation, Rural Development and
India Meteorological Department as Members of the Authority. The Authority would meet
frequently to review the status of warning systems, mitigation measures and disaster
preparedness. When a disaster strikes, the Authority will coordinate disaster management
activities. The Authority will be responsible for:-
• Coordinating/mandating Government’s policies for disaster reduction/mitigation.
• Ensuring adequate preparedness at all levels in order to meet disasters.
• Coordinating response to a disaster when it strikes.
• Coordination of post disaster relief and rehabilitation.
The National Emergency Management Authority will have a core permanent secretariat with
three divisions – one for Disaster Prevention, Mitigation & Rehabilitation, the other for
Preparedness and the third for Human Resource Development.
At the State level, disaster management was being handled by the Departments of Relief &
Rehabilitation. As the name suggests, the focus was almost entirely on post-calamity relief.
The Government of India is working with the State Governments to convert the Departments
of Relief & Rehabilitation into Departments of Disaster Management with an enhanced area
of responsibility to include mitigation and preparedness apart from their present
responsibilities of relief and rehabilitation. The changeover has already happened in eight
State Governments/Union Territory Administrations. The change is under process in other
States.
The States have also been asked to set up Disaster Management Authorities under the Chief
Minister with Ministers of relevant Departments [Water Resources, Agriculture, Drinking
Water Supply, Environment & Forests, Urban Development, Home, Rural Development etc.]
as members. The objective of setting up an Authority is to ensure that mitigation and
preparedness is seen as the joint responsibility of all the Departments concerned and
4
disaster management concerns are mainstreamed into their programmes. This holistic and
multidisciplinary approach is the key to effective mitigation.
At the district level, the District Magistrate is the chief coordinator and focal point for
coordinating all activities relating to prevention, mitigation and preparedness apart from his
existing responsibilities pertaining to response and relief. The District Coordination and Relief
Committee is being reconstituted/ re-designated into Disaster Management Committees with
officers from relevant departments being added as members. Because of its enhanced
mandate of mitigation and prevention, the district heads and departments engaged in
development will now be added to the Committee so that mitigation and prevention is
mainstreamed into the district plan. The existing system of drawing up preparedness and
response plans will continue. There will, however, also be a long-term mitigation plan. District
Disaster Management Committees have already been constituted in several districts and are
in the process of being constituted in the remaining multi-hazard prone districts.
Similarly, government is in the process of creating Block/Taluka Disaster Management

Committees in these 169 multi-hazard prone districts in 17 States. At the village level, in 169
multi-hazard prone districts, constituting Disaster Management Committees and Disaster
Management Teams. Each village will have a Disaster Management Plan. The process of
drafting the plan has already begun. The Disaster Management Committee which draws up
the plans consists of elected representatives at the village level, local authorities;
Government functionaries including doctors/paramedics of primary health centers located in
the village, primary school teachers etc. The plan encompasses prevention, mitigation and
preparedness measures. The Disaster Management Teams at the village level will consist of
members of voluntary organizations like Nehru Yuvak Kendra and other non-governmental
organizations as well as able-bodied volunteers from the village. The teams are provided
basic training in evacuation, search and rescue etc. The Disaster Management Committee
will review the disaster management plan at least once in a year. It would also generate
awareness among the people in the village about dos’ and don’ts for specific hazards
depending on the vulnerability of the village. A large number of village level Disaster
Management Committees and Disaster Management Teams have already been constituted.
The States have been advised to enact Disaster Management Acts. These Acts provide for
adequate powers for authorities coordinating mitigation, preparedness and response as well
as for mitigation/prevention measures required to be undertaken. Two States [Gujarat &
Madhya Pradesh] have already enacted such a law. Other States are in the process. The
State Governments have also been advised to convert their Relief Codes into Disaster
Management Codes by including aspects of prevention, mitigation and preparedness.
In order to further institutionalize the new approach, the Government of India has decided to
enunciate a National Policy on Disaster Management. A draft policy has accordingly been
formulated and is expected to be put in place shortly. The policy shall inform all spheres of
Central Government activity and shall take precedence over all existing sectoral policies. The
broad objectives of the policy are to minimize the loss of lives and social, private and
community assets because of natural or manmade disasters and contribute to sustainable
development and better standards of living for all, more specifically for the poor and
vulnerable sections by ensuring that the development gains are not lost through natural
calamities/disasters.

The policy notes that State Governments are primarily responsible for disaster management
including prevention and mitigation, while the Government of India provides assistance where
necessary as per the norms laid down from time to time and proposes that this overall
framework may continue. However, since response to a disaster requires coordination of
resources available across all the Departments of the Government, the policy mandates that
the Central Government will, in conjunction with the State Governments, seek to ensure that
such a coordination mechanism is laid down through an appropriate chain of command so
that mobilization of resources is facilitated.
5
The broad features of the draft national policy on disaster management are enunciated
below: -
• A holistic and pro-active approach for prevention, mitigation and preparedness will be
adopted for disaster management.
• Each Ministry/Department of the Central/State Government will set apart an appropriate
quantum of funds under the Plan for specific schemes/projects addressing vulnerability
reduction and preparedness.
• Where there is a shelf of projects, projects addressing mitigation will be given priority.
Mitigation measures shall be built into the on-going schemes/programmes
• Each project in a hazard prone area will have mitigation as an essential term of reference.
The project report will include a statement as to how the project addresses vulnerability
reduction.
• Community involvement and awareness generation, particularly that of the vulnerable
segments of population and women has been emphasized as necessary for sustainable
disaster risk reduction. This is a critical component of the policy since communities are the
first responders to disasters and, therefore, unless they are empowered and made capable
of managing disasters, any amount of external support cannot lead to optimal results.
• There will be close interaction with the corporate sector, nongovernmental organizations
and the media in the national efforts for disaster prevention/vulnerability reduction.
• Institutional structures/appropriate chain of command will be built up and appropriate
training imparted to disaster managers at various levels to ensure coordinated and quick
response at all levels; and development of inter-State arrangements for sharing of
resources during emergencies.
• A culture of planning and preparedness is to be inculcated at all levels for capacity building
measures.
• Standard operating procedures and disaster management plans at state and district levels
as well as by relevant central government departments for handling specific disasters will
be laid down.
• Construction designs must correspond to the requirements as laid down in relevant Indian
Standards.
• All lifeline buildings in seismic zones III, IV & V – hospitals, railway stations, airports/airport
control towers, fire station buildings, bus stands major administrative centers will need to
be evaluated and, if necessary, retro-fitted.
• The existing relief codes in the States will be revised to develop them into disaster
management codes/manuals for institutionalizing the planning process with particular
attention to mitigation and preparedness.
5
Key Concepts of Community Based Disaster Preparedness
The chapter sequentially explains

the rational, key concepts and
methodology of formulating
Community Based Disaster
Preparedness Plan.
4.1 Rationale
4.2 Key Concepts
4.3 Methodology for formulating
disaster preparedness plans
Risk Reduction Through Community Based Disaster Management Plans 28

4.1 RATIONALE
Community based approaches for disaster management emerged as an alternative during

the 1980’s and 1990’s. Over the last two decades it has become apparent that top-down
approaches fail to address the needs of vulnerable communities, often ignoring local
capacities and resources. A top down approach can undermine project improvements in
quality of life, security and resilience. The aim of community based disaster management
through preparation of disaster preparedness plan aims to reduce vulnerabilities and to
increase the capacities of vulnerable groups to prevent or minimize loss and damage to life,
property, livelihoods and the environment, and to minimize human suffering and hasten
recovery. ♣
The response to repetitive disasters that have plagued India over the years has, in most
cases, been spontaneous and supply driven. The government in its official capacity and non-
governmental organisations including the corporate sector has provided assistance mainly in
the form of relief and rehabilitation to the victims of major calamities. These initiatives though
well intentioned were inadequate in two ways, firstly, they failed to incorporate preparedness
and mitigation measures into the rehabilitation and reconstruction effort and secondly the
initiatives were in the 'provision' mode whereby the community became the beneficiary by
default.
The emerging paradigm shift in disaster management worldwide from response to prevention
and preparedness has prompted mitigation measures such as the drought proofing programs
in Gujarat, Orissa and Rajasthan and the propagation of the retrofitting technology in
Maharashtra and Gujarat after the Latur (1993) and Kachchh(2001) earthquakes
respectively. Moreover the Gujarat earthquake rehabilitation programme has been one of the
best examples of GO-NGO collaboration. However, a truly comprehensive approach to
disaster management entails hazard specific preparedness, mitigation and prevention
measures being undertaken by communities who are most affected by such events. This
approach termed as Community Based Disaster Preparedness as exemplified in disaster
prone countries such as the Phillipines, Bangladesh, and Nepal has gained momentum in
India in the aftermath of the super cyclone of Orissa in 1998 and the devastating earthquake
of January 26th 2001. The approach aims to prevent as far as possible and to mitigate
against the impact of natural and man-made disasters through raising awareness and
building upon local coping mechanisms and knowledge, thus creating a disaster resilient,
self-reliant and less vulnerable community; a community equipped with the necessary skills
sets and aware of the steps to be taken pre, during and post disaster to protect their lives and
property.
♣
Building Disaster Risk Reduction in Asia: A way forward. ADPC look ahead to 2015. Dec 2004
4.2 KEY CONCEPTS
4.2.1 Disaster Risk Reduction through Vulnerability Reduction
Before we discuss the strategic processes for disaster preparedness planning, it is important
to understand and define ‘vulnerability’ as this forms the key concept of our processes.
Vulnerability is propensity to loss/ adverse impacts with implicit notion of differential
magnitude and type of impacts to different groups of the community. Most of the literature on
vulnerability identifies the uncared aged, the very young, the poor, the socially and physically
isolated, the disabled and the minority groups as being particularly vulnerable. To understand
what makes people vulnerable, we need to look at wider set of influences: the whole range of
social, economic, environmental, cultural, institutional and political factors that shape a
community’s life. In addition to poverty, there are also other aspects such as caste-class,
community structure, community decision-making processes and political issues that
determine the vulnerability of the poor. The disaster preparedness planning would require
that we identify and strengthen the attributes and coping mechanisms of these groups which
reduce vulnerability and which enhance resilience.
Disaster risk reduction is being recognized as a challenge for development. The Disaster
Risk Index developed by UNDP recognizes and identifies development factors that contribute
to the vulnerability and risk. Therefore, disaster preparedness with implicit objective of
reducing long term vulnerabilities requires mainstreaming with development planning. This
provides us an appropriate perspective for developing framework for our intervention.
4.2.2 Relationship Between Disaster And Aspects Of Well-Being:
High Frequency/
Intensity
Sound Capital Poor Capital

Assets Disaster Assets
Low Frequency/
Low/ Intensity Severe
moderate impact
impact
Well Being Well Being

Maintained Destructed
Chart 4.1 Relationship between Disaster, Capital assets and Well-being

Although there are no evidences of increase in natural forces causing the disaster, the felt
impact of disaster on communities have increased many folds due to non-ability of the
assets- to withstand against the forces of the disasters. The severity of disaster impact is
evident by fact that the insurance industry worldwide paid out $48 billion for claims from
weather-related losses during 1990 to 1996. The chart 4.1 shows the inter-relationship
between disaster and well-being. On one hand, a disaster affect the well being of the
community/household through altering status of their physical, economic, social and
environmental conditions, while its access decides severity of disasters’ impact on community
and their coping capacities. Thus Disaster Preparedness Planning which is sum total of
anticipating, structuring response and laying a framework for recovery from the impact of the
event, should essentially take in to consideration impact on physical, economic, social and
environmental- well being of the community to reduce impact of disaster at the time of
disaster and enhance quality of life in normal time.
4.2.3 Framework for Disaster Vulnerability Reduction:
The framework for Disaster Vulnerability Reduction analyses vulnerability context of particular
community and its effect on well-being of the community. It aims at improving the well-being
by reducing vulnerabilities, responsive governance, improving access to social security and
basic rights, improving incomes, ensuring food security and sustainable use of natural
resource base. Community well being is mediated by the policies, institutions and processes.
The framework helps in understanding vulnerability context on the basis of disaster-
development relationship so as to consider factors such as lack of means to cope, socio-
economic and political marginalization, inequitable access to social security and basic
services besides shocks and seasonality and affects the community well being.
Economic Social
Well being Well being
Physical Environme
Well being ntal Well
being
Development Planning,
Resources and Institutions
• Normal time and disaster time

• Access to information
• Access to services and community assets
• Participation in Resource Planning and
Decision Making
• Civil Society/Government Institutions
Vulnerability Context Strategy
• External factors like hazards – intensity • Identification of gaps

and frequency of occurrence, seasonality • Community based planning,
implementation and monitoring
• Socio-cultural and economic factors such
as caste-class and gender inequities, • Vulnerability focus with clear
physical disabilities, ethnicity and targeting
minorities
Chart 4.2 Framework for Disaster Vulnerability Reduction

The framework identifies four aspects of community well being - physical, economic,
social and environmental and seeks to maintain them in disaster time and enhance them
in normal times and particularly targets the vulnerable. The four aspects of community
well being are as follows:
Physical: access to land, housing, basic services, communication, transportation, etc.
Economic: employment, incomes, savings, access to credit, productive assets, skills,
health etc.
Social: networks, groups, trust, access to institutions, knowledge & information,
participation in decision making processes, etc.
Environmental: land, water, rivers, ponds, bio-diversity, forests, environment, etc.
This analysis made in participatory way with the community provides collective insights
and raises understanding. Subsequent to this, It is proposed to develop strategies with
the community to fulfill the identified gaps and strengthen the coping mechanisms.
4.2.4 Concept of Risk reduction through community driven disaster management plans
Communities are at the frontline of disasters. Over the last two decades it has become
apparent that top-down approaches to disaster risk management alone fail to address the
specific local needs of vulnerable communities, often ignoring the local capacities and
resources. At times this approach further increases the vulnerability of the community. In
response to the limitations of this top-down methodology, the community-based disaster
management emerged as an alternative approach, during the decades of 1980s and
1990s.Community action for disaster risk management is a crucial element in promoting a
“culture of prevention” and creating safer communities. Concept of Risk reduction through
community driven disaster management plans is based on realization of following aspects.
• Institutionalization of the community based disaster risk management in the policy,

planning and implementation of the government ministries and departments
• Intensive work with community for information dissemination and awareness
generation
• Development of frameworks and tools to support the work of decision-makers and
practitioners;
• Development of new training tools to enhance the capacity of practitioners;
• Development of a regional information and technical support center on CBDRM
practices

4.3 Methodology for Formulating Community Based Disaster Preparedness Plan:
A disaster preparedness plan incorporates all important aspects of different types of disasters
to mitigate them effectively. It also describes the means to address a disaster, detailing the
mechanisms for operations at the onset of a potential disaster. The community based
planning involves discussing and sharing with the people about existing coping mechanisms,
past experience & existing resources. Further it ensures that the community owns, accepts
and sustains the process of making and implementing the disaster preparedness plans. The
disaster preparedness plans typically include risk assessment, vulnerability analysis,
resource inventories and planning, mitigation and management strategy, roles and
responsibilities of community, institutions and other participants. Disaster preparedness plans
bring a perspective for understanding vulnerabilities of the community and reduce them in
long term. The most essential element for preparing this type of plans is the involvement of
community right from the concept development to implementation.
Sequential Steps for Community Based Disaster Preparedness Plan
Study ongoing efforts on disaster

preparedness and role of various actors
Study Disaster History and severity
Risk Identification and analysis Vulnerability analysis and

identifying vulnerable groups
Study Coping mechanism within Identifying Gaps in coping

society Mechanism
Identifying resources and

institutions
Action Plan for Disaster

Preparedness
Assigning responsibilities and

establishing linkage with institutions

Disaster Profile: Kachchh Region
This chapter highlights the history,

physical attributes and severity of
natural disasters in Kachchh District
(Gujarat State), India. The chapter
also describes social, economic and
physical vulnerability of community
towards natural disasters.
5.1 Study Area Profile: Kachchh

District

5.1 STUDY AREA PROFILE: KACHCHH DISTRICT
5.1.1 Kachchh: Land of multiple disasters:
India
Kachchh
Gujarat
Map 5.1: Kachchh District Source: Census of India, 2001

Kachchh district lies on the northern part of Gujarat State occupying about 45,652 square
kilometers. It is surrounded by Gulf of Kachchh in the south and by desert and salt marshes
on other three sides. The district of Kachchh has ten Blocks, Bhuj, Bhachau, Anjar,
Gandhidham, Rapar, Mundra, Mandvi, Nakhatrana, Lakhpat, and Abdasa. These cover 884
villages and 10 towns. The towns are Bhuj, Madhapar, Anjar, Mundra, Mandvi, Gandhidham,
Rapar, Abdasa, Bhachau, and Naliya. Bhuj being the administrative headquarter is an
important trade centre and the largest urban centre.
Kachchh is a land of multiple disasters with major seismic belt extending 400 Kilometers east
to west and 150 north to south. Forming a sensitive part of west continental margin of India,
the district falls in the high tremor risk zone v where earthquakes of magnitude eight or more
occur. Kachchh also faces major cyclones due to the Gulf of Kachchh and Arabian Sea on its
west and south. Along with these two major disasters, Kachchh has been repeatedly facing
creeping disaster of drought due to its hydro geology and low rainfall pattern. The district is
classified as a severely drought prone area where rainfall deficiency is more than 50 per cent.
♣
All such multiple and compounded disasters make it a high disaster prone area.
5.1.2 Natural Disaster Profile- Kachchh Region:
A. Earthquakes:
Kachchh has a history of earthquake strike at least one in 15 years. The earliest recorded
earthquake to have occurred in close vicinity of Kachchh was in 893 A.D. A systematic and
continuous record of earthquake occurrence is available from 1819 onwards. Since this time,
of the 91 earthquakes, 56 occurred in the Rann of Kachchh while the remaining 35 were
spread over the mainland. There were 25 earthquakes from 1819 to 1901 and 66 from 1901
♣
Source: DISASTERS IN INDIA-Studies of grim reality-Anu Kapur & Neeti, Meeta, Deepmita, Roshani, Debanjali.
(Chapter: Kachchh: Land of multiple Disasters)
to 2001. There are no earthquakes from 1851 to 1860; eight were recorded in the period from
1981 to 1990 and seven in the 1990s.
Kachchh has generally experienced earthquakes ranging from 4 to 8 magnitudes on the

Richter scale. Of the total 91 earthquakes 12 were of magnitude 5 to 8 and 79 were of low
magnitude with less than 4 to 5. The latter form 87 per cent of the total occurrence.
(Table 5.1)
Table 5.1: Magnitude and Frequency of Epicenters in Kachchh, 1819-2001

Magnitude (Richter scale) Numbers of Epicenters
Less than 4 14
4 to 5 65
5 to 6 05
More than 6 07
Total 91
Based on records of the Indian Meteorological Department, 2001.
The three most devastating earthquakes with an intensity of more than 6, before 2000 are
Allah Bund earthquake of 1819, the Anjar earthquake of 1956 and Bhuj earthquake of 2001.
In Peninsular India, which is a stable continental mass, the largest intraplate event that
occurred was the great Kachchh earthquake of 1819 of magnitude 7.8 that caused heavy
losses. The earthquake was felt over an area of 3 million square kilometres, killing nearly
1,500 people. The ground deformation was dramatic, affecting stream direction and causing
marshy conditions and diverted the course of Indus river permanently from Kachchh. A six to
nine metre
high scrap was
formed with an
east west
trend for least
90 kilometres.
The Anjar
earthquake of
6.1 magnitude
occurred at a
distance of 7
kilometres
south from the
site of the
1819
earthquake.
The tremors of
Map 5.2 Epicenters of Earthquakes in Kachchh District. this
earthquake
were felt over entire Saurashtra and other parts of Gujarat, causing considerable damage in
Anjar and central Kachchh. The third and most destructive earthquake in the history of
Kachchh occurred on 26th January 2001 at a distance of 80 kilometres from 1819 earthquake
in the south-east direction. The earthquake is known as Bhuj earthquake despite the fact that
its epicenter was in Bhachau.

A.1 Bhuj Earthquake 2001
The Bhuj earthquake on 26th January 2001, occurred with magnitude of 6.9 on Richter scale
at depth of 25 kilometers from earth’s crust. The epicenter was Lodai village near Bhachau
block. The depth of origin was shallow. The tremor of main shock lasted for 30 seconds.
Some foreshocks were experience in the Saurashtra Peninsula located on the south of
Kachchh district in Gujarat within time frame of 1 year before this devastating earthquake
occurred. The main shock was followed by 638 aftershocks, for 65 days from 26 January to
31st March 2001. Out of these, 12 aftershocks had magnitudes ranging from 5 to 5.7 on the
Richter scale.
The earthquake caused severe loss of life, injury and damage to the property and
infrastructure in Gujarat. About 38 million people spread over the state of Gujarat and beyond
were affected. Of the 25 districts in Gujarat, 21 sustained some level of damage. District like
Rajkot, Jamnagar, Ahmedabad, Surendranagar, Patan and Banskantha were highly affected
after Kachchh. Nearly one million homes were damaged leaving two million people rendered
homeless in state.
Kachchh recorded 92 per cent of total deaths and 82 per cent of total injuries. Three hundred
and forty three villages or 39 per cent out of its 884 villages were demolished to the ground.
Extensive damage was also reported from other villages. From the total 10 town, five, namely
Bhuj, Bachau, Anjar, Rapar, and Gandhidham were seriously affected. The impact, even
though widespread, was not uniform over space (Table 5.2). Within the district of Kachchh,
Bhachau
Block
Kachchh recorded 39
Deaths in Rural and Urban Area per cent
deaths, Bhuj
and Anjar
together
accounted
for another
53 per cent.
All these
Blocks were
near the
epicenter of
the
earthquake.
The
concentratio
Map 5.3 Deaths in Rural and Urban Areas in Kachchh District during Earthquake 2001 n of deaths
Source: Records of Kachchh Earthquake branch, District Development Office, 2001 was highest
in and near
urban centres of Bhuj and Anjar . Deaths in villages were more widespread. Bhuj city
recorded maximum deaths among the urban areas and Bhachau Block the maximum among
the rural areas.

Table 5.2 Spatial Variations in Deaths in Kachchh District (2001)

Deaths in rural Per cent to Deaths in
Blocks Per cent to total
areas total urban areas
Bhachau 3321 70 1146 30

Anjar &
1184 34 2288 66
Gandhidham
Bhuj 728 24 2317 76
Rapar 567 85 99 15
Mundra 72 100 0 0
Mandvi 44 73 16 27
Nakhatrana 21 100 0 0
Abdasa 20 100 0 0
Lakhpat 02 100 0 0
Total 5959 49 6166 51
A.1.1 Spaciality of Damage
Kachchh
Regions of Damage
Map 5.4 Regions of Damage in Kachchh District during Earthquake 2001

Source: Based on Z score calculation on damage data collected from District Development Office, 2001
Bhuj, Bhachau and Anjar blocks were highly damaged. There was a difference among rural
and urban damages.. The urban areas of Bhuj had recorded highest death, injuries and
higher house collapse among other rural areas. An exception was Bhachau, which was
severely affected irrespective of it being a small urban centre as well as epicenter of the
earthquake. The reported house damage was more in rural areas as compared to the urban
counterparts.

B. Cyclones:
Kachchh has a long coastline of 352 kilometers. It thus faces high cyclone risk. These
cyclonic storms are concentrating to the southwest monsoon months. The most destructive
part of cyclones are storm surges. Ocean waters are pushed and dragged onto the coast by
winds, generating waves up to five to 10 metres high, strong winds, heavy rains and floods.
This is reflected in the 1998 cyclone that crossed the coast near Porbander with a wind
speed of 170 to 250 kilometres per hour, and with a storm surge of five to eight metres. Out
of total 884 villages in the district, 412 villages were affected, killing 19 and displacing
246,123 persons. The tents and hutment of thousands of salt workers, residing in the creeks
surrounding Kandla port, were washed away due to these continued tidal storm surge.
C. Drought:
Low annual rainfall with its seasonal concentration coupled with high velocity wind, extremes
of temperature, and high rates of evapo-transpiration, enhances the vulnerability of the
district to droughts. The Bhuj earthquake occurred at a time when the district of Kachchh was
already reeling under the impact of drought and had experienced a devastating cyclone two
years back. All this compounded the damage.
Table 5.3 Natural Disaster Vulnerability of Kachchh District (2001)

Type of Natural Disaster Risk Zone Area under effect Type of Damage
vulnerability zone
Earthquake Zone V Whole of Kachchh Highly vulnerable
Cyclone Risk Zone B Coastal blocks of Very High damage
Drought Arid Area Whole of Kachchh Highly vulnerable
Flood Zone Nil
Source: Gujarat State Disaster Management Authority
5.1.3 Dimensions of Vulnerability- Kachchh Region:

Physical:
Due to its geographical location the district of Kachchh inherited geological, geomorphical,
hydrological and climatic features, which endow it with a high degree of physical vulnerability.
This area is classified as Zone V in the seismic map of India published by the Geological
Survey of India in 1998. This is a high-risk zone where earthquakes of magnitude eight or
more have occurred. The framework within which earthquakes take place thus becomes an
important ingredient accounting for the vulnerability of the district.
Kachchh rift basin is a block surrounded by well-defined structural features. Five principal
faults make district of Kachchh vulnerable to earthquakes: Nagar Parker fault, Island Belt
fault, South Wagad fault, Kachchh Mainland fault and the North Kathiawar fault. Besides
these, numerous minor tensional and shear faults of low magnitude occur in all the uplifted
land, consisting of the Allah Bund fault. Katrol Hill fault, Banni fault and Vagodi fault. The
island belt fault in the north consists of an east-west chain of four uplifts namely, Panchhani,
Khadir, Bela and Chorar. Further north of the island belt is the Allah Bund fault and to its
north is the Nagar Parkar fault, to the south of it is Nagar Parkar uplift (Map 5.6).

Earthquakes show a tendency to cluster near three main faults namely: Nagar Parkar fault,
Island Belt fault and Allah Bund. The other cluster of earthquakes is in the central part of
Kachchh mainland in east west direction towards Katrol Hill fault, Kachchh mainland fault and
between these southwest trending Vigodi faults. These faults manifest active plate tectonics
in the region. The proximity of this region to the triple junction formed by Indian, Eurasian and
Arabian plates and the active plate boundaries influence its seismicity. These structural
features endow the district of Kachchh with a geomorphic landscape that reflected active
tectonism (Map 5.6).
Kachchh
Epicenters in Geomorphic Zones
Map 5.5 Epicenters in Geomorphic zones in Kachchh district

Source: Disasters in India, Studies of Grim Reality, Anu Kapur & others
The two Ranns, one in the north of Kachchh and the other between Kachchh and Gujarat
mainland are a saline wasteland. The Rann of Kachchh (Great Rann) has an area of about
16,000 square kilometres being 256 kilometres from west to east and 128 kilometres north to
south. The little Rann is much smaller and does not exceed 6,000 square kilometres in area.
Rising barely above sea level both the Ranns are separated from each other by the highland
of Kachchh.
Both the Ranns are dry during non-rainy season, while during monsoons they are not
effectively drained resulting in water logging. Forty eight per cent area of the district comes
under two Ranns but due to harsh conditions they are completely devoid of any population.
The two Ranns cover 48 per cent of the area and are agriculturally unproductive. The
population resides only within the remaining 52 per cent of the area of the district that
includes the three geomorphic zones in Kachchh mainland, Banni plains and the coastal
zone.
A spatial distribution of epicenters shows the spread of earthquakes over all three
geomorphic zones except the coastal zone. The Ranns record 58 per cent, Kachchh
mainland 38 per cent and Banni plains four per cent of the total earthquake epicentres. The
fact that more than half of earthquakes occurred in the Rann could be considered a saviour

for the region, as it is the non-ecumene part of the district. But impact of earth quakes
extends well beyond the location point of an epicentre. The close proximity of the geomorphic
zones leads to damage in all zones. For instance the 1819 earthquake occurred in Great
Rann but it killed 1,500 persons in the Kachchh mainland.
The Kachchh mainland is a geomorphic zone prone to the maximum number of earth quake
followed by Banni plains and coastal plains. The mainland is overlain by large number of
faults and is the most densely populated. Bhuj city and three villages surveyed are located in
this zone.
Besides the control of land, even the drainage is also not favourable to the district. It has no
perennial river, no glacial fed river. This leads to the scarcity of water. Few tributary streams
and even fewer small streams find their way either to the Rann or to the Gulf of Kachchh. All
the rivers here are of a short length. The Katrol range in the central area forms a watershed,
with the rivers flowing northward and southward. All originate from the central highland and
move towards the sea in the south and Little Rann in the south-east. The main south flowing
streams are Kanakwati, Khari, Mithi, Rakamati, Bhukhi Sai, Nairai and Sakra. The north
flowing streams are Bharaud, Kali, Khari, Ray and Kaswati. These originate from the northern
flank of Katrol hill range and flow across Bhuj lowland and Northern hill range and debauch
into shallow intervening depression on the southern flank of the Banni plains. These north
flowing streams on crossing the Kachchh mainland fault give rise to conspicuous semi-
Circular conical alluvial fans at the base of Kachchh uplift. Drainage in the district of Kachchh
is fed mostly by monsoon torrents, retaining water only for few days after the rains and most
of the rivers drying out during the summers. The seasonal nature of streams leads to adverse
conditions for agriculture. No major irrigation scheme could be introduced to support
agriculture. Some minor and medium irrigation schemes were of course, introduced. These
include Rudramata Kanakwati, Kaswati, Mitti, Nara and Bhuki. The extensive damage to
dams during the earthquake adversely affected agriculture and livelihood of people.
While the geological and structural foundations clearly place the district of Kachchh into the
earthquake Risk Zone, added to this are the climatic problems such as droughts and
cyclones that affect the district. Kachchh is an arid tract, with tropical monsoon climate.
Overall, the district remains dry with scanty arid uncertain rainfall even during the south-west
monsoon season. The mean annual rainfall is only 39 centimetres, distributed over 13 rainy
days, practically all during June to September.
About 484 villages in Kachchh district were found as water scarce in year 2001 while the
remaining 400 were noted for semi-scarcity. All the villages thus suffer from water shortage
and frequent droughts.
Scarcity of water, harsh climatic conditions, inland drainage, all conspire to make the soils of
Kachchh unproductive. Three types of soils dominate in the district namely: alluvium sandy,
black soil and red soil. Alluvium sandy soil covers vast areas of Kachchh mainland and the
Rann. The soil here is saline with sandy texture that is often shallow and unproductive. The
alluvial soils of the Rann of Kachchh are saline and are grey to black in colour. Often silty,
they have a laminar to blocky structure. Because of aridity and heat, the surface is badly
cracked. These have developed under poor drainage conditions and an arid climate. In
Kachchh, the soil becomes saline because of impeded drainage. Red soil occurs in patches
all over the district. Harsh climatic conditions result in lowering the moisture retention capacity
of soil, which makes the growth of vegetation difficult. This has resulted in sparse Vegetation
Cover of the district. The natural vegetation cover in the Kachchh comprises of small trees or
open shrub. The hills of Kachchh are bare because of low rainfall. The reason is the
persistence of anti cyclonic conditions in the upper atmosphere of the entire northwest Indian
subcontinent which does not allow uplift and condensation of the monsoon. In the drier north,
vegetation turn thorny and tend to assume xerophytic character, with some sites for cattle
grazing. Occasionally these are bamboo plantations, but there are virtually no trees that can
yield timber. The dry shrub makes way for poor grass and bush.
In Kachchh, almost 39 per cent is barren uncultivable wasteland, 35 per cent is cultivable
wasteland and four per cent is cultivable fallow land. Net sown area is only 13 per cent of the
districts total area. Irrigated area is only 14 per cent of the net sown area. Pastoral activities
are important but rain failure leads to scarcity of fodder.
Kachchh is thus one of the seismically and tectonically active areas outside the Himalayan
mountain belt. Along, with unstable land and active tectonism leading to frequent
earthquakes. The district also falls in high cyclone risk. Climatologically, it is prone to severe
droughts leading to difficult conditions for living and sustenance. In a physical setting that
poses hindrances, the low socio-economic backdrop of the territory makes it more
susceptible to create disasters.
Socio-Economic Vulnerability:
Besides geological and physiographical factors, the socio-economic conditions also play a
major role in the increased vulnerability of community in this region. However there are
spatial variations in socio- economic vulnerability in this region. Such variations were
recorded by the district of Kachchh in general and rural and urban areas in particular.
Kachchh district has a low development confirmed by the four indicators of urban population:
Literacy level, female literacy rate, and percentage of industrial workers. The district is below
the national and state average in all of these four variables (Table 5.4).
Table 5.4: Four Indicators of Development: Kachchh District, Gujarat and India 1999
Indicators of development Kachchh Gujarat India
Urban Population (% to total) 31 35 26
Literacy Level (in %) 53 61 52
Female Literacy Rate (in %) 40 48 52
Industrial workers (in %) 10 15 10
Based on Census of India 1991
The table indicates low literacy, specifically female literacy, and low percentage of industrial
workers as compared to Gujarat State and India. In whole, the district of Kachchh emerges
distinctly as an under-developed region. The typical geographical conditions, its remote
positioning and physical characteristic let as a serious constraint in the development on one
hand and enhance the vulnerability on the other.
Besides overall parameters a specific feature on which the socio-economic vulnerability in an
earthquake prone area can be assessed is the quality of housing conditions. A large number
of houses in the region were either completely or partially damaged during the Bhuj
earthquake. Housing could therefore be the main parameter defining vulnerability. In fact it is
the collapse of houses that lead to high casualties and a very high percentage of injured
population getting trapped under the debris.
In 1991, the district of Kachchh had 2.5 million houses. Of these 69 per cent were in rural
areas and 31 per cent were in urban areas. The average size of a house in rural area was
200-250 square feet while that in an urban area was 150-400 square feet (Building Material
Technology Promotion Council, 2001). The rural houses were mostly single storied, with
country tile roof and stone/mud walls. Those in urban areas were two to three storied high
with country tile roof or asbestos cement sheet roof or reinforced concrete cement roof with
walls made of stone or cement concrete blocks or red bricks in few cases.
The fact of the matter is that the building structures were non-resistant with poor quality
construction material and flawed designs coupled with poor maintenance led to massive
house collapses during the earthquake 2001. The field survey confirmed that houses were
reduced to rubble because of their inability to resist the earthquake-generated tremors.
Houses made by superior construction material with reinforcements and proper designs
faired well even without proper seismic safety codes. Inspite of frequent earthquake in the
district of Kachchh no improvement has occurred to strengthen house types taking into
account appropriate building codes till year 2001. The survey reveals that majority
respondent were weavers, potters, agricultural labourers with limited and un-assured income.
This low income not only deprived people of basic necessities but also forced them to select
inferior quality of construction material.
Overall the houses in the district of Kachchh reflect poverty related to income, a fact
highlighted by the living conditions, structure and construction material used in the houses. In
1993-94, almost 26 per cent of the households in the district of Kachchh lived below the
poverty line. The low level of income not only deprives the people of their basic necessities
but is also a reason for their selecting inferior quality of construction material. The economy
of the district is primarily agricultural. Twenty six per cent of the people are cultivators and 25
per cent agricultural labourers. These together constitute 51 per cent of the main workers,
against the state average of 57 per cent. Industrial development in the district is as low as
only 10 per cent of the workers are industrial as compared with 15 per cent in the state. In
rural areas 77 per cent of the workers were engaged in agriculture and Iivestock sector, while
in urban areas 45 per cent of the workers were in trade and service sector with another 18
per cent in manufacturing and repair. Only 16 per cent of the rural population and 40 per cent
of urban population on were employed in government services, and therefore were assumed
to be financially secure.
Problems like salinity and aridity have resulted in low level of returns in agriculture. The
district had been severely affected by droughts of 1998 and 2001. Moreover, 40 per cent in
rural areas and 24 per cent in urban areas worked as labourers, such as weavers, black
smiths, potters, masons, carpenters, tailors and drivers. This reflects a lower level of income
and limited employment opportunities. Most of the population is engaged in the unorganized
sector.
One of the major vulnerability of the community in this region is that youth, specifically from
rural areas have migrated to major towns in the district or in the state for employment
generation. This has resulted in physical as well as social vulnerability of the aged people in
the region.

Case Study
The first part of this chapter highlights

village level profile with focus on
natural disasters (3 villages identified
as sample).
6.1 Details of Study Villages
6.2 Disaster Risk Identification
6.3 Disaster Vulnerability Analysis
6.4 Identifying Coping Mechanisms,

Gaps and Probable Actions

Case Study
6.1 DETAILS OF STUDY VILLAGES

For research purpose, three villages with different socio economic and geographic conditions
were selected in consultation with Unnati.♣ NGO working in these villages for disaster
preparedness. All these villages are located in Bhachau block of Kachchh District. Adjacent
maps show the location of villages. First hand information was collected by using
participatory tools, group discussions and interactions with the villagers, local key
respondents, PRI members, block level officers and NGO staff. Secondary data from reports,
records and documents also helped in comprehending the study. Team comprised of social
scientist, social worker, engineer, local youth and NGO staff. Most of the data given here are
the outcome of PRA exercises and records available at village level.
Kachchh District
India
Kachchh
Gujarat
Bhachau Taluka
BHACHAU
Map 6.1 Bhachau Block indicating Study Village
♣
Unnati is an Ahmedabad based NGO working for development education. Organization works at National level.
Case Study
6.1.1 VILLAGE PROFILE: AMARDI VILLAGE
A. Physical Profile
A1. Location
Amardi village is located 12 Km North to Bhachau on Bhuj-Bhachau highway in Kachchh
district. Village touches state highway and has good connectivity to major destinations like
Bhuj and Bhachau
A2 Geographical Area
Amardi is spread across 1036 hectares. The village has been primarily divided into 3 parts:
the core village, agricultural fields adjacent to highway and the new plots developed after the
earthquake 2001.
A3 Land and Soil Type

About 810 hectares are used to agricultural purpose, out of which 629 hectares is irrigated
and remaining non-irrigated. The agricultural land is divided in two patterns in village. The
eastern side of village is called ‘Dhrago’, which has good quality ground water but does not
have fertile land. Western side is called ‘Kantho’ which is rich in fertility but has brackish
groundwater-unsuitable for agriculture. Most of the bore wells are in Dhrago. There is a waste
land of about 155 hectares located near Kantho.
A4 Climate
Summers are dry and hot with maximum temperature reaching to a high of 48 degree
Celsius. In winters the mercury goes down to a chilling 3 degree Celsius as minimum
temperature. Rainfall is scanty and erratic. Average annual rainfall is about 286mm with only
13 rainy days in a year.
A5 Accessibility of village
Amardi is adjacent to Bhuj-Bhachau state highway. Hence it is accessible with state transport
and private services directly to the village.
A6 Demographic Profile
The total village population of 1150 persons is formed by 620 females and 530 men. (as per
the census 2001) The village comprises of 285 families of diverse social pattern. Of total 285
families, 20 fall under the BPL category. About 150 Adivasis, who came in search of
livelihood post earthquake, have also become a part of Amardi village.
A7 Socio Economic Profile

The main castes among the villagers of Amardi are Patel, Sathwara, Muslim, Ahir , Koli,
Vankar, Rabari Major occupation of the people in Amardi is agriculture and general labour
work. Most of the agriculture is rain-fed. Some people are also engaged in small trades,
government jobs and animal husbandry.
Agriculture is dominated by Patels and Sathwaras and some of the Harijans. They own
agriculture land and normally carry out work through crop sharing method. Local people are
hired on a percentage basis of the production. With the advent of Adivasis (Tribals) from
Panchmahal, there has been a decrease in employment opportunities for local people,
specifically in percentage based agriculture. Most of the local people have now resorted to
other livelihood options like working as daily waged labours in near by factories, construction
etc. Some have resorted to migration for better livelihoods.

Case Study
Muslims are engaged in motor driving, repairing and labour work. Others are engaged in
general labour work in construction, and factories near by.
A8 Literacy
Literacy level in the village is about 42%.
A9 Infrastructure Profile
Infrastructure type Type of facility available
Drinking water source House tap connection from local ground water source
Electricity Yes. Gram Jyoti village. Electricity supply available for 12 hr/day
Approach Road Metal
Internal Roads Kutcha /Mud
Telephone Gram telephone, connectivity with mobile
Post office In village
Street lighting Yes
Transportation S.T. and private vehicles
School Primary
Health facility Dispensary (CHC)
Anganwadi Yes (One)
PDS shop Food available throughout the year
A10 Natural Resource

Water Body : There are two ponds for domestic and cattle feed purpose managed by
Panchayat. These ponds retain water all year round and are often desilted in Governments
drought relief work. There are three stand posts managed by water committee, which are
used occasionally.
B Administration
Amardi is administered by Amardi Gram Panchayat with 8 members is headed by Female
Sarpanch. Panchayat comprises of 60% females
C Institutions linked
There are couple of youth clubs (Ashapura Mandal & Navratri Mandal) in the village which
takes initiatives in organizing functions and festivities in the village. They also help financially
and morally to disabled and poor at some time. Some well off families of Kolis and Harijan
outside the village come to occasional help to the families of same caste in the village. Patels
and Sathwaras have their caste mandals for their support. Many of these group work for
breaking evil customs prevalent in their caste and promote Samuh Lagn and girl education.
There also exists support from Voluntary Organizations/ NGO’s in normal and disaster times.
Setu, Bhachau has supported the village in establishing the village database in terms of
physical and demographic characteristics of village. Unnati, Organization for Development
Education based at Bhachau supports the village in developmental education. The
organization has also supported in linkages of disabled for physical and financial support.
Organization has also undertaken temporary house support Post Earthquake.

Case Study
D Disaster Profile
Year Disaster Impact Possible risks

1819 Earthquake Huge loss of Possibility of EQ greater
property and life than magnitude of 6 = 1:
50 Years
50 Years
1998 Cyclone Damage to property Cyclone with similar or
high intensity: 1: 15 years
2004,2002,2001,2000, Recurring Crop failure, loss of Recurring. 1:3 years
1997,1996,1995 Drought livestock, scarcity of
(in last 10 years) water
50 Years
Amardi village comes under Zone V of seismic disturbances in India. This puts the region in
high risk factor for earthquakes. Last 50 years has seen two major earthquakes in the region
resulting in great loss of life and property. Still the possibility of an earthquake of similar
magnitude cannot be ruled out in 50-100 years of time. This region is also prone to cyclonic
winds from the West coast. A cyclone in 1998 had damaged houses and properties of the
village to large extent. Drought seems to be a regular feature in this region. Thus micro-
planning for disaster preparedness and implementation of plan in stipulated time with specific
objectives will be necessary. Although in a crisis situation, village as a whole comes under
severe threat to loss of life and property, but falia-wise disaster planning and specific
designed response can be crucial to save valuable lives at initial phase of disaster and
ensure equity in relief phase.
The village is prone to cyclone, earthquake and drought.
Village Resource Map: Attached as per Annexure 1

Case Study
6.1.2 VILLAGE PROFILE: MORGAR VILLAGE
A. Village History
The village is 350 years old. It is believed that after a conflicts between Meghjibhai Patel, a
highly reputed landholders of the Dhudhai village, and other landholders of the village, he
decided to move out of Dhudhai village and settled in Morgar, where he owned land. Many
families belonging to Patel, Ahir, Bawajii and Dalits community in favour of Meghjibhai also
settled with him. This led to formation of Morgar Village. Village Desalpar which is also a part
of this village administration is about 6 kms from this main village. This is a small settlement,
which is now completely reconstructed after earthquake 2001
B. Physical Profile
B1. Location
The village Morgar is located 21 kms to the west of the Bhachau Taluka, of Kachchh district
in Gujarat State. It is located on the Bhachau – Bhuj state highway. The village boundaries
form:
North Agriculture land and desert area.
East Pond near the village, stream, and agriculture land
South The Arabian sea (distance is 25 – 30 kms by air)
West Village, agriculture land and desert area
B2 Geographical Area
The village is settled near the old river and the approach road is very close to the village. The
total area of the village is 2683.10 hectare, which include residential area, agriculture land,
wasteland, grazing land, forest, and water bodies.
B3 Land and Soil Type

The land and the property of the village is under the control of the revenue department. The
total area of the village is 6630 hectare. 74% of the total land is fertile and is used for
cultivation. Rest of the land is pastureland, wasteland and non-cultivable land.
Type of land and Land use Percentage

Irrigated land 74%
Waste land 11%
Pasture land 3%
Land not cultivated 3%
Non cultivable land 9%
B4 Climate
Celsius. In winters the mercury goes down to a chilling 3 degree Celsius as minimum
temperature. Rainfall is scanty and erratic. Average annual rainfall is about 286mm with only
13 rainy days in a year.
B5 Accessibility of village
Morgar village is accessible from Bhuj-Bhachau state highway. It is located about 3 kms from
the state highway. There are paved roads for accessibility to the village from state highway.
Approach to Desalpar is a Kachchha (unformed) road from Moragar. There are agricultural
field beyond Desalpar.
Case Study
B6 Demographic Profile
Old (above Children
Disabled
Adult (16 yrs-50 yrs.) 50yrs) (below 16yrs) Total
Male Female Male Female Male Female Male Female
344 267 49 63 258 239 11 5 1236
Total population of livestock

Live stock Goats and sheep Cow, bull and buffalo Total
Number 3204 192 3396
Total number of houses and type of houses

Morgar Village Tiles Fibre R/f Total
Tiled Slab Bhunga/ Total houses Domes
houses Thatched/huts 17 36 53
270 166 21 457
B7 Socio Economic Profile

The major community of the village form Harijan, Patel, Ahir, Rabari, Suthar, and Rajput.
Agriculture is a major source of livelihood of the village. Agriculture, agriculture labour and
cattle rearing are some of the main occupation. Some of families are self employed and
engaged in Block printing. The Rabari community is mainly involved in animal rearing.
Agriculture - There are only total 63 people who are engaged in cultivation. Most of them
belong to Patel community. The main crops that are cultivated is wheat, mustard, cotton,
jawar and til.
Labour- There are 34 people who depend on agriculture and daily labour for their livelihood.
The belong to the koli, rabari, muslim and dalit community. Casual labourers are engaged in
mason work and loading and unloading goods.
Self-employed: There are 34 families who are engaged in block printing. They are Harijan
and Muslim families. Some families run small shops, flourmill, government fair price shop and
in transport service. They drive chakdaa which is the mode of transport apart for the State
transport bus.
B8 Literacy
Education level is medium in this village. Literacy level about 42% in the village.
B9 Infrastructure Profile
Infrastructure Morgar Desalpar
Water Individual tapped water 2 stand post provided by
connection through water supplied GWSSB. One well and pond (
by GWSSB. Village pond and well water available for 6-8 months).
for other domestic purpose
Transport State transport buses are Dsalpar is accessible by state
accessible to the villagers of transport through Morgar only. 2
Morgar. There are 4 motor vehicle private jeeps are used by
and 6 jeeps available and run by community to travel to Desalpar
the private in emergency. In normal times
people travel by cycles or
walking.

Case Study
Health No health facility in village. No health facility in village.

Nearest CHC at Bhachau 21 kms Nearest CHC at Bhachau 27
away and PHC at Amardi adjacent kms away and PHC at Amardi
to this village. 1 health worker and adjacent to this village.
1 birth attendant/midwife visit
village twice a week.
Communication Private telephones available in Private telephone and television
many houses. However, no public available in two houses only. No
booth available. Private radios and public booth available.
televisions available in most of the
houses
Market 3 small shops, 1 government fair Desalpar have their access from
price shop and 1 flourmill in the Morgar.
Morgar village.
Education 1 Primary School and Anganwadi. 1 primary school. Further study
For further study they go to Bhuj in Bhuj, Bhachau or Anjar.
or Bhchau or Anjar.
Solid Waste No proper system for collection and storage at household/street
Management level. Dumped near house and in waste lands near by village.
Public Security Police Station at Bhachau, Fire Station at Gandhidham about 44
kms and recently built in Bhachau -15 kms away.
Electricity GEB power supply available to all houses. Bhachau is the main
centre for repairs and complaints
Community Hall 1 community hall is constructed by 1 community hall is constructed
local NGO by local NGO
B10 Natural Resource

Water Body: A river is located in the eastern side of the village and it is used for irrigation and
domestic purpose. A pond and a open well is also another source of domestic water. In
Desalpar, a lake with huge catchment is located adjacent to the locality. However, it needs to
be rejuvenated on periphery for good water storage.
Pasture and waste land : The Babool tree is one of the common species grown in non
cultivated land. The pastureland is used for the grazing cattle. Most part of the wasteland is
rocky and it is not used for any purpose.
C Administration
Morgar and Desalpar have been constituted in Morgar Village Panchayat (local administrative
body).
D Institutions linked
CARITAS India, supported housing reconstruction (36 fibre R/f Plastic domes) after
earthquake 2001
Unnati Organisation for Development Education, Bhachau for savings group and livelihood
generation activitites
Aparajita for savings groups and community structure reconstruction like community hall.
SETU for demographic documentation.

Case Study
E Disaster Profile
The village is prone to cyclone, earthquake and drought.
Cyclone
The Arabian Sea is on the southwestern side of the village and this increases the possibility
of the village being hit by cyclone. The cyclone occurred in the year 1998 in which destruction
took place in the eastern side of the village. The kuchha, semi-pucca and the tiled roof
houses were destroyed. Only the slab houses were not affected by the cyclone and the
community took shelter in these houses at the time of cyclone. The trees fell down and the
crops in the field were destroyed. The loss of human life was less as compared to the recent
earthquake but people got injured. The community also experienced the loss of livestock. The
livestock that were left loose during cyclone were lost.
Earthquake
An earthquake occurred in the year 1956 in which Sukhpar village, 7 k.m away from the
Morgar was completely destroyed. In this village the impact was comparatively less and only
Kachchha houses were destroyed. But in the recent earthquake of 2001, the village
experienced severe loss of houses and infrastructure and 37 people died.
Drought
From last eighteen years the rainfall has been below normal. Due to low rainfall despite the
fact that many families own land they are not able to cultivate any crop. The salinity of the
land is also increasing that lead to increase in the percentage of non- cultivable land. The
community is shifting to livestock related activities and daily labour. Migration is also on the
increase. Based on the experience of the people the pattern of rainfall is as follow:
¾ Heavy rainfall occurs once in ten years.
¾ Medium rainfall occurs once in three to five years.
¾ In the remaining years rainfall is very low causing drought in the area.

Case Study
6.1.3 VILLAGE PROFILE: NANI CHIRAI VILLAGE
A. Village History
Nani Chirai underwent drastic social change after the earthquake in 2001. Before 2001, the
main castes population in the village was residing in an cohesive and integrated manner.
Upper castes like Patel, Jadejas, Ahirs were well off, while one third of the population, i.e
Muslims were mainly engaged in fishing occupation. Few among them were big traders while
most of them are subsistence fishermen. More than six months a year, they reside in a
settlement near Kandla port on sea face for fishing. These settlements have temporary
hutments with no facilities of basic infrastructure like road, water supply, sanitation, electricity
or communication. These settlements also do not have any legal sanctions and are
vulnerable to cyclone and other disasters.
After the earthquake, village was divided into three major societies surrounding the original
village. Muslims chose to remain the original village, while Rabaris formed a new settlement
called Gokulgam; and Jadejas and Ahir formed another settlement called Jashodadham.
Some of the families from Moti Chirai also settled here.
Harijans and Kolis, the lowest ebb of the society, worked as labourers in the farms of high
caste people. Displacement of well off population also leads to displacement of these
labourers. The Rabaris gave them small plots in their new settlement at nominal cost to retain
the labours.
There are about 300 Muslim families residing in the village. Out of these, about 150 families
are engaged in fishing. They live in temporary settlements at Kandla just facing the sea.
These settlements do not have any infrastructure like water supply, sanitation, road, power or
permanent shelters. Most of the families have small engine boats and they live in settlement
for almost 11 months a year. This community is vulnerable to cyclones and tidal waves.
For this study, the original village, where there are 100 Muslim families residing at present,
was selected.
B. Physical Profile
B1. Location
Nani Chirai is located 15 kms from Bhachau National Highway 8. It falls under Bhachau block
of Kachchh district. The village is covered with land area on its east, west and north, while to
the south is located Gulf of Kachchh.
B2 Geographical Area
The total area of the village is 2322 acres.
B3 Land and Soil Type

The village is a costal village and most of its soil is silty and sandy murram. Agriculture
largely depends on rainfall.
B4 Climate
Celsius. In winters the mercury goes down to a 7 degree Celsius as minimum temperature.
Rainfall is scanty and erratic. Average annual rainfall is about 286mm with only 13 rainy days
in a year.

Case Study
B5 Accessibility of village
Nani Chirai is accessible from Bhachau National Highway 8.
B6 Demographic Profile
Male Female Total Children Old /Aged
2820 1988 4808 380 464
Total population of livestock

Live stock Goats and sheep, hen Cow, bull and buffalo Camel Total
Number 154 439 1 594
Total number of houses and type of houses

Slab
Tiled Total
houses
15 85 100
B6 Socio Economic Profile

Muslim is the only community residing in the original village. Most of them are casual labours.
Around 150 men are engaged in fishing work and they stay in settlements in Kandla Port for
most of the year.
B7 Literacy
Education level is as low as 50% in the village.
B8 Infrastructure Profile
Infrastructure Nani Chirai
Water Piped water supply by GWSSB with house hold tap connections. Recently
Narmada pipeline has augmented the supply. There are two stand post
one open well and a pond in the village.
Transport State transport buses are accessible to the villagers.
Health There is no health facility in the village. Nearest CHC at Bhachau 15 kms
away. There are no para-meds and trained birth attendants in the village.
Communication Private telephones available in about 25 houses. However, no public
booth available. Private radios and televisions available in most of the
houses
Market 1 government fair price shop and a kerosene shop.
Education 1 Primary School and Anganwadi. For further study they go to Bhuj or
Bhachau or Anjar. Anganwadi not operational.
Solid Waste No system of solid waste management. The debris after the earthquake is
Management still a major nuisance for the villagers, even after five years of earthquake.
Public Security Nearest Police Station is at Bhachau- 15 Km
Electricity Electricity is provided in the village by GEB.
Community 1 community hall is constructed by Unnati NGO and other is constructed
Hall by another NGO.
B9 Natural Resource
Water Body : One village pond, which is largely unused.
Pasture and waste land : there are no pasture lands and most of the waste land is occupied
by rapid industrialization.

Case Study
C Administration
Nani Chirai has its independent Panchayat Body and includes Jashodadham and Gokulgam
settlements.. Mr. Adamiyaji Sheikh, resident of original Nani Chirai is the Sarpanch
D Institutions linked
A number of NGOs helped in initial rescue and relief operations in the village. Two major
NGOs involved in reconstruction of houses in new settlement site- Jashodanagar and
Gokuldham were KRIBHCO1 and VRTI2. However, there are no CBOs and youth clubs in the
village. Lately, Action Aid project called ‘ Sneh Samuday’ has started SHG activities in the
village with women and youth members.
E Disaster Profile
The village is largely prone to cyclone, earthquake and drought. There was one incidence of
flooding in 1979.
Cyclone
The Arabian Sea is on the south side of the village and this increases the possibility of the
village being hit by cyclone. The cyclone of year 1998 in affected badly in the village. The
kuchha, semi-pucca and the tiled roof houses were destroyed. Only the slab houses were not
affected by the cyclone and the community took shelter in these houses at the time of
cyclone. The trees fell down and the crops in the field were destroyed.
Earthquake
Major earthquake occurred in the years 1956 and 2001. In year 2001, the village experienced
severe loss of life, assets including houses and infrastructure. There were 60 casualties in
the village in earthquake.
Flood
The village is located near the coastline and is thus prone to floods. Major flood occurred in
1979 , which destroyed agriculture and livestock to a great extent.
Drought
The salinity of the land is increasing and that lead to increase in non- cultivable land.
For village map see Annexure 1
Inference of discussion and village map

Main problem of the village is nuisance of debris spread all over the village. Tonnes of
debris lie in the village causing major problems of insects and snakes breeding
beneath the debris, stagnant water as breeding ground for mosquitoes. Children
playing in debris are often bitten by harmful insects and worms. Pigs and dogs find
their place for breeding and often bite the children playing near by.
Disposal of household drains is done in the rivulet near the village.
No health facilities available in the village. People were not aware about the ANM visit
the village. They had no health cards for pregnant and lactating women and infants.
Anganwadi is not functional in the village.
No representation and awareness about Gram sabha.
Sarpanch not sensitive of development needs
Panchayat do not disseminate any information on development schemes.
1
KRIBHCO: Krishak Bharti Cooperative, working for promoting technologies and research for agriculture
2
VRTI: Vivekanand Research and Training Institute, Mandvi, Kachchh- a prime research and training institute
Case Study
6.2 DISASTER RISK IDENTIFICATION
When a disaster strikes, it affects the weakest section of society or services. The gaps in the
system are the most vulnerable points for penetration of ill effects in a crisis situation. Hence
it becomes all very important to first identify the gaps ad weakness of the system and
structure and then to devise mechanism to overcome the weakness. Given the status of
services, infrastructure and socio economic condition, the potential threats and risks are
identified for the three villages. Disaster risk and threats for the three villages are more or
less same except Nani Chirai due to similar geographical location, livelihood pattern and
climate. Research tries to identify risks and assess vulnerability through people’s perception.
PRA tools like Time line, social and resource mapping, social and economic matrix, transect,
group discussion etc were used to capture people’s perception and wisdom on disaster
preparedness. Major outcomes of these exercises done in all the three villages are explained
here.
6.2.1 Disaster Time Line
Table 6.1 Time line of disasters in three villages

Year Disaster Impact
Amardi Morgar- Nani Chirai
Desalpar
1819 Earthquake Huge loss of property and life
1956 Earthquake Huge loss of property and life
1979 Flood Nil Nil Heavy loss to livestock
and agriculture.
1998 Cyclone Damage to property
2004,2002,2001, Recurring Crop failure, loss of livestock, scarcity of water
2000,1997,1996, Drought
1995
(in last 10 years)
2001 Earthquake Huge loss of property and life. Worst earthquake after
1819.
Minor and medium scale earthquakes and the aftershock are still occurring in the Bhachau
block
6.2.2 Disaster Risk Zoning
Table 6.2 Disaster Risk zoning of sample villages

Disaster Village Disaster Risk Zone Probability of risk
Type
Earthquake Amardi, Zone V ( as 6 to 8 Possibility of Earthquake with
Moragar, Nani per hazard intensity magnitude greater than 6, 1:
Chirai vulnerability on Ritcher 50 years. Villages close to
map of Scale Katrol hill fault. Active Vagad
Gujarat, and Banni faults are also near
Gujarat State by, which increases probability
Disaster of small and medium quakes
Management every year. Currently Vagad
Authority) fault is very active and small

Case Study
quakes are experienced every

month
Wind & Amardi, Very high Wind 1:15 years
Cyclone Moragar, Nani damage zone speed 50
Chirai m/s or
more
Flood Nani Chirai Very High 1:20 years
damage zone
Amardi, Medium –high 1: 50 years
Morgar damage zone
Drought Amardi, Very high 1: 3 years
Moragar, Nani
Chirai
6.2.3 Potential Risk Factors

Natural hazards put various elements to risk, which creates disaster. Following table
indicates degree of risk to various elements with 6 probable natural disasters. This chart
basically indicates the extent of vulnerability/damage while natural hazard occurs.
Table 6.3 Potential Risk factors of sample villages against various natural hazards.
RISK Factor Drought Earthqua Cyclone Epidemic Flood Fire
ke
Life threat Med High High High Med High
Shelters & Nil High High Nil High High
property loss
Infrastructure Nil High High Nil High Low
and services
Disruption
Agriculture crop High Low High Nil High High
loss
Social security High Med Med High Med Med
risk/ exclusion
Debt trap High High High Med High High
Stress Migration High Med Low High High Low
Education loss High High High High High Low
Water scarcity High Med High Med High Low
Health hazard High Med Med High High Low
and Mal-nutrition
Stress selling High Med Med Med Med Med
Livestock loss High Med High High High Low
and health
hazard
Livelihood High High High High High High
disturbed

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6.3 DISASTER VULNERABLITY ANALYSIS
Vulnerability against disaster can be analyzed based on social, economic and physical capacities of community and their resources to resist against
hazard. Following chart indicates vulnerabilities against natural hazard for sample villages.
Table 6.4 Vulnerability Analysis of sample villages

Type of Type of Village
Hazard/ vulnerability
Problem
Amardi Morgar- Desalpar Nani Chirai
Physical Semi – permanent houses of Kolis Semi – permanent houses of Kolis 15 houses with tiled roof are vulnerable to
(Infrastructure are specifically vulnerable to are specifically vulnerable in cyclone. The community center with tiled roof
and Shelter) collapse during earthquake. earthquake and cyclone. Complete was also damaged in low intensity wind
absence of health facility whirls.
Economic Heavy loss in agriculture due to Heavy loss in agriculture due to About 150 families from the village live in
(livelihood and recurring droughts recurring droughts settlements in Kandla. They are subsistence
income) fisher-folks and range of issues like debt trap,
poverty, education and health issues.
Social (Exclusion Kolis are the most marginalized Kolis are the most marginalized Being a Minority caste, they are often
Earthquake,
and customs) community and lowest ebb of the community and lowest ebb of the sidelined in the development process. They
Cyclone,
society. In migration of labours society. In migration of labours have limited representation in local
Drought
from other states and drought adds from other states and drought adds governance. Also as they are involved in
to their grief of unemployment. to their grief of unemployment. fishing, which is considered a occupation of
Kolis also do not have access to Kolis also do not have access to sin in this area which is dominated by upper
basic health facilities. basic health facilities. caste Hindus and strictly vegetarian.
Environmental Ground water table constantly Salinity ingress in the land and Degradation of Mangroves on sea shore,
depleting because of over vicinity to desert affects badly on polluting industrial units in the village, effluent
exploitation. Polluting industries agriculture. Polluting industries and waste dumped into the sea- great threat
have been set up on the village have been set up on the village to ecology, flora and fauna in the region.
land. land.

Case Study
6.4 IDENTIFYING COPING MECHANISMS, GAPS AND PROBABLE ACTIONS
It is essential to understand the local coping mechanisms of the people to understand the capacity of society to withstand and respond to a disaster
situation. The study tries to get a broad picture of issues in normal time and how it gets aggravated in crisis situation, the support institutions available
to the society, coping mechanism of community, gaps in coping mechanism and proposed actions to fill in the gaps.
Table 6.5 Framework for Disaster Preparedness- Bhachau Block

Issues Coping Support
Gaps Actions
Aspects of Well being Normal time Stress situation Mechanism Institutions
A. Physical
Lack of Drip irrigation,
awareness on water Lack of Transfer of
Land (Agriculture; new techniques / harvesting GAU, Private technology, lack of Watershed, training Seed bank,
1 Housing) Productivity loss Crop failure structures Companies awareness Agriculture insurance
Lack of
awareness on
safe construction Damage/collaps Training/ awareness on EQ &
2 Shelter practices e of house No - Cyclone resistant construction
Water (Irrigation, Tankered water GWSSB, Lack of awareness, Infrastructure, Revival of
3 Domestic) No/less irrigation Scarcity Panchayat water resources traditional sources
NGOs/communi Navratri youth Corruption, Monitor through Panchayat/
4 Food (General, PDS) Quality/ quantity Social exclusion ty group mandal monitoring CBO
Panjrapol
Distress sell/ (Cattle feed Fodder bank, livestock
5 Fodder Scarcity livestock deaths Distress sell center) Livestock insurance insurance
6 Fuel - scarcity -
Lack of fodder & Fodder, water, Often Vets are far Para Vets, fodder bank, cattle
7 Livestock vet services vet service - off and costly troughs
8 Road Kutcha road Non Accessible State Gov Local rep
Traditional
9 Electricity Load shed No electricity tools GEB Local rep
10 Sanitation Poor Non existent Temporary TSC
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Gaps Actions
arrangements
11 Water drainage Poor Filthy Model
Informal
12 Education/school Drop outs High Drop out education State NGO interventions Incentives and policy changes
Common
13 Community center Non functional Non existent places
Timely, regular
supplies of basic
Lack of Lack of staff, and critical
medicines and operating units, Transport to medicines, regular
injections, people treatment facility nearest CHC, PHC, doctor visit, Networking with nearest hosp
14 Medical pay for medicines too far PHC/Hosp VHAI contingency plan for rapid transit in emergencies
Lack of
Absentees, non knowledge to Training,
15 Panchayat Office responsive coordinate Outside help Panchayat Awareness PRI trainings
B. Economic
Debts, stress Borrowing, Occupational insurance, easy
1 Livelihood Unemployment selling stress selling Lenders, Insurance, credits credit banks
Savings Credits,
2 bank, SHG Non functional Non existent Awareness, SHG
No agency to cover
Lack of comprehensive
3 Insurance awareness Non functional risks Agri/ Livestock
C. Social
Civil Society,
Highhanded Leaders, Social reform agents,
1 Caste Hierarchy Civil exclusion Riot admin police NGOs, Police Reform drive Education, Peace Committees
2 Political affiliation Civil partisan Disturbance Compromise Awareness Educating political persons

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Gaps Actions
Security and Distress sell of
safety of land and land and Old people stay Augmenting livelihood
3 Migration property property back activities
Domestic violence
4 Gender relationship on women Suicides - NGOs Reform, education Education and reforms
D. Environmental
Over exploited Buying water Panchayat, Reforms in water
1 Water resource and filthy Water Scarcity externally WASMO sector, laws Awareness generation
Technical assistance,
2 Solid waste disposal Filthy conditions Epidemic - Panchayat Awareness, priority networking of villages
Technical assistance,
3 Waste water disposal Filthy conditions Epidemic - Panchayat Awareness, priority Awareness
It could be noted from above chart

1. The problem at normal time surely gets aggravated and serious in times of disaster. This is more often true for marginal communities and poor families, which
don’t have institutional support and inherent capacity to cope with crisis.
2. The study also indicates that there are intuitions like Agriculture University, insurance companies, available near by the village, which can be of great help in
strengthening the preparedness aspect, but the comprehensive design and planning is lacking.
3. Main gaps found in coping with disasters are attributed to either lack of awareness or malfunction of established system, mainly government services.
4. There is a great need to revive and reform health and education sectors in the rural areas of Kachchh.
5. One of the most prominent inferences from this study can be that- disaster preparedness cannot be effective without overall development of the region.
Social, economic, physical and environment well being of a society has to be improved simultaneously.
6. The problem at normal time surely gets aggravated and serious in times of disaster. This is more often true for marginal communities and poor families, which
don’t have institutional support and inherent capacity to cope with crisis.
7. The study also indicates that there are intuitions like Agriculture University, insurance companies, available near by the village, which can be of great help in
strengthening the preparedness aspect, but the comprehensive design and planning is lacking.
8. Main gaps found in coping with disasters are attributed to either lack of awareness or malfunction of established system, mainly government services.
9. There is a great need to revive and reform health and education sectors in the rural areas of Kachchh.
10. One of the most prominent inferences from this study can be that- disaster preparedness cannot be effective without overall development of the region.
Social, economic, physical and environment well being of a society has to be improved simultaneously.
Disaster Preparedness and Mitigation Strategies
This chapter is a summary of Disaster

Preparedness Plan for Sample
Villages. The plan has been displayed
in following Context:
7.1 Current Status of Disaster

Preparedness
7.2 Proposed Mitigation and
Preparedness Strategy

7.1 CURRENT STATUS OF DISASTER PREPAREDNESS
Working out a strategy or plan for disaster preparedness and mitigation measures needs
thorough understanding of coping mechanisms at community level and broad external
structures at block, district, state and national level. Let us first understand the present
scenario on various aspects of disaster management, which were observed during the
research study. Level of Disaster Preparedness in three villages as revealed in the study:
• Physical Vulnerabilities: Most of the houses are concrete structures with earthquake and
cyclone resistant. However small number of marginalized families such as Kolis in Amardi
and fisherfolks living in settlement of Kandla (from Nani Chirai) seeks special attention.
• Coping Mechanisms: Residents of Kachchh are resilient in nature and demonstrated

great unity in time of crises. External support for most of communities is strong. Here
again, the special attention should be on poor and marginalized. Their coping mechanisms
against disaster, post earthquake, have definitely strengthened due to more awareness.
• Organization and institutional capacities: Social institutions of most of the upper castes
in Kachchh are very strong and wealthy. These institutions come to the rescue to their
community whenever needed. Social associations of Patel, Ahir, Darbars and Jains were
instrumental for rapid relief and rehabilitation in Kachchh after the earthquake. These
associations have largely flourished outside Kachchh; in Mumbai and other places of
Gujarat and even abroad. However, lower caste people like Koli and Harijan does not
have this kind of support and are entirely dependent on State for the assistance.
• Disaster Management Plans: The efforts by GSDMA and UNDP to prepare Village level
disaster preparedness plans along with some training components was appreciable.
However, with passage of time, the task force seems to be withering out. Linking task force
with continuous development process in the village is important to sustain the effort.
• Behavior change- culture of prevention: Though awareness to be prepared for disaster

has increased in all the three villages of study, there is a long way to go to develop the
culture of prevention. The villagers are still dependent on external agency- be it an NGO or
Government – to mitigate the impact of disaster and tread on the path of development.
Behavior change has not been seen particularly on sanitation and hygiene issues in the
village. All the three villages had poor condition of sanitation and hygiene. Safe disposal of
wastewater, use of toilets for defecation and solid waste management were not practices in
any village.
• Training and awareness programmes: Village level training programmes were initiated
by some agencies including UNDP. However, the study reveals that these trainings bear
no importance and impact on villagers at this date. With no sustainable activities and
incentive to work, the groups tend to fall apart with passage of time.
• Resource Mapping and Inventory: Some organizations like SETU, Abhiyan, Oxfam GB
and others are involved in preparing comprehensive village level database of resources
including NGOs, Experts, Traders, which can be useful in times of crises. GSDMA and
UNDP have already prepared village level disaster management plans for all the villages of
Kachchh. These plans have details of village level resources, which can be tapped in crisis
situation.

• Early Warning Systems: Warning systems for cyclone are still the traditional ones. The
meteorological department issues warning to state government, which in turn passes the
warning to collector of the respective districts, who issues warning at sub district level. The
warning to villages or coastal settlements is reached through radio and Jeep patrolling.
This method, though working satisfactorily, needs improvements in technology to have
precision of information and immediate reach to villages and settlements.
• Linkages with other institutions: In the post earthquake development process, many
agencies have join hands to integrate their objectives. It has been beneficial to urban
areas, where town-planning process has been followed as a part of rehabilitation strategy.
For rural areas, NGOs, research institutions, many government departments and
educational institutions have worked in a team to rehabilitation. However, this teamwork is
not seen disaster preparedness aspect. Here different agencies have worked with their
own objectives and methodology. Many activities have been duplicated and many efforts
have resulted redundant in absence of support agencies. The need of time is to bring
together the agencies interested to work toward disaster preparedness in the region on one
platform, have common understanding on issues and methods and coordinate to have
effective results.
• Legislation: Government of Gujarat has improvised General Development Control

Regulations (GDCR) for the state to incorporate the themes of disaster preparedness in the
by laws and regulations. Bureau of Indian Standards (BIS) have also modified certain
standards for building materials and construction procedures to ensure safety of structures
in seismically active zones. Some of the regulations are already in place to enhance
disaster preparedness- such as Coastal regulation Zone (CRZ) norms.
• Integration in development process: GSDMA has initiated seismic micro zoning for
whole state to have precise and comprehensive information on risks, to develop
preparedness plans. GSDMA is also in progress to have Cyclone preparedness and
Mitigation Plans and Flood Hazard and Vulnerability maps; which can help to make
effective action plans. New town planning processes, development plans lay special
emphasis on land use planning to minimize vulnerability.

7.2 PROPOSED MITIGATION AND PREPAREDNESS STRATEGY
Looking at the current status of disaster preparedness in three villages of study area, three
pronged strategy can be adopted to develop a comprehensive plan for disaster
preparedness.
In context of this study, socio economic profile of region, Disaster preparedness involves
three key elements:
9 Integration of development processes to reduce vulnerability

9 Behavior change to mitigate risk
9 Enhance coping mechanisms of society
Integration of Development Behavior Change to

Processes to reduce mitigate risk
vulnerability
Safe practices
Development regulations Training and Awareness
Micro Zoning Create Demand
Land use plans Education
Safety and quality standards
Disaster
Preparedness
Enhancing Coping
mechanisms
Training and awareness
Technology up gradation
Institutional support
Capacity Building
Roles and responsibility
1. Integration of development processes to reduce vulnerability: Administrative

measures like development regulations, microzoning and check on safety and quality
standards play a major role in reducing vulnerability. In redevelopment of Kachchh, these
aspects have been taken care of. Deputation of engineers by Government to monitor the
‘owner driven’ reconstruction programme has helped in maintaining quality and regulations
for earthquake resistant houses in this region. Commissioning of a separate body called
Bhachau Area Development Authority for carrying out all town planning related works also
helped to smoothen the process, which the local municipal body of Bhachau was incapable to
handle.
2. Behaviour change to mitigate risk: It is very important to create demand within

community so that they ask for quality and safe practices to reduce vulnerability. Awareness
programmes, education, training etc play important role in behaviour change of people and
build a culture of prevention in the society. This, in turn acts as pressure point on
manufacturers, service providers, administrators and Government to deliver quality services
and goods. NGOs have worked hard with community on this issue and results are showing
up lately. In Vondh village in Bhachau block, the villagers demanded technical audit of the
primary school as they felt that the school was not built using safe technology by the

Government contractor, which was doctored to build their own houses. Some of the
educational institute have included subject of earthquake engineering and disaster
management in the syllabus. GSDMA♣ has set up Gujarat Disaster Management Institute to
train and generate awareness to government officers at various level on issues of disaster
mitigation and preparedness. At community level too, it as a feeling of ownership and pride
for building safe houses.
3. Enhancing coping mechanism:

As truly said, ‘Problem can’t be solved at the level it was generated’; it needs extra effort and
capability to overcome a crisis situation. Enhancing coping mechanism is an invariable part of
any disaster preparedness plan. There can be more than one ways to enhance coping
mechanism of a community. These may be training and awareness programmes, technology
upgradation, institutional support, capacity building, assigning roles and responsibilities etc.
Revision of General Development Control Regulation (GDCR) to regulate construction and
land use planning is an important step by government to reduce vulnerability. It was also
noticed that the support from the people and especially from the same community residing
outside Kachchh was unprecedented and spontaneous. It reveals that institutional
mechanism within the community to respond to disaster situation is strengthening.
In given socio-politico-economic condition of Kachchh these three aspects play vital role in
building a culture of prevention.
These three aspects lead to design of three programmes that can be taken up by NGO or
any other agency working for development of Bhachau region. These programmes can be:
1. Community based action plan for disaster preparedness

2. Policy level advocacy to interlink development planning with disaster management
3. strengthening capabilities of Panchayati Raj Institutions
Core thematic aspects of these three programmes have been explained here
7.2.1 Community based action plan for disaster preparedness
All the three villages are prone to Earthquake, cyclone and drought in varying severity. While
villagers of Amardi and Morgar are largely affected by recurring droughts, residents of Nani
Chirai are most affected by cyclone. All the three villages are in seismic zone V and are
prone to high severity earthquake.
Disaster Mitigation and preparedness has been planned in consultation with local community
and local governing bodies with view of available resources. The strategies are so formed to
integrate with development planning in order to have a long-term preparedness measures.
The disaster profile and issues of all the three villages are more or less same due to their
proximity in geographical location, livelihood pattern and social conditions.
7.2.1.1 Preparedness against Earthquake
Earthquake is a rapid onset disaster, which gives no warning. The effects of an earthquake
can be disastrous, as we have experienced it in recent past. Hence the response and
preparedness for this kind of disaster should be quick and effective.
It has been observed that most of the damages to life occur due to collapse of buildings and
infrastructure rather than mere shaking of ground in this region. Hence single most important

factor here is the safety of the structure. This includes shelters, community halls, Panchayat
building, schools, PHC/CHC.
Reconstruction of highly damaged structures and retrofitting of weak structures should be the
top most priority for earthquake disaster preparedness. Technical audit of all the houses for
structural safety can be carried out on priority and the vulnerable houses should be retrofitted
on priority basis.
Old people, disabled are the most vulnerable in an event of earthquake. A pre assigned
buddy to each disabled, who will take care of rescue of these people in any eventuality will
help save their life. This buddy can be a family member or any other person who can quickly
get into action and save the life.
Sajjata sena (Preparedness Committee) in the village can play a crucial role in rescue
operations in the time of crisis. This team can be well trained an equipped. Immediate
Evacuation should be taken care by Sajjata Sena for the disabled enlisted as vulnerable.
Sajjata Sena can also play role in ensuring first aid, when the medical means are not
available immediately.
A long-term disaster preparedness goal should be training and certification of masons for
earthquake resistant construction practices.
Table 7.1 Action Points for Earthquake preparedness

No Focal Points Proposed Activities Target Population
1 Housing Linking up with Insurance All families, especially vulnerable
Insurance Co., Mass Insurance scheme
2 Retrofitting Identification and retrofitting All families, especially damaged
of damaged/weak houses,
3 Trainings and Conducting training and Skilled, youth
certification of mass awareness
masons programmes
4 Rescue team Training youths and Youth,
equipping them
5 Buddies for Identification of disabled and Youth,
disabled and old identifying their buddies
7.2.1.2 Preparedness against Drought

Villages in Kachchh are most vulnerable to drought because of scanty and erratic rainfall.
This is one of the slow onset disasters that lead to more widespread and complex crisis,
which affects large population. Water scarcity, food and nutritional deficit, epidemics,
migration, stress selling, livestock deaths, debt traps, exploitation, social exclusion, etc are
largely contributed by a single harsh drought.
Small farmer, marginal farmers and the poor are the most vulnerable from drought. Although,
big farmers incur great loss due to crop failure, but the daily wage labours and poor farmers
are hit the worst. Water scarcity; both drinking and domestic; affects the health severely.
Women and children are the most vulnerable for health hazards and mal nutrition.
Creation of fodder bank and seed bank within the village will largely help the villagers to
sustain their live stocks in stressful conditions of drought and reduce burden of financial loss
in case of crop failure.

Crop failure, depleting ground water levels, salt intrusion and lack of moisture content in the
soil affects the productivity of the land and results in great financial loss for the farmers.
Agriculture insurance is of paramount importance in this region. Also better and subsidized
credit facilities will help poor farmers in reducing their financial stresses. It will also put a
check in exploitation by money lenders and debt traps. Insurance cover for livestock will also
help poor villagers to cope up with their losses due to death of their cattle.
Other activities like promoting non-farm activities, vocational trainings to youth, SHG groups
etc will act as income generators. Linkages with Agriculture University, Gochar development
and watershed activities will help in improving the quality and quantity of agriculture yield,
help in natural resource conservation and management and provide defective drought
proofing. Strengthening of PDS and regular monitoring of quality and quantity of ration issue
from PDS shop will help in keeping check over mal nutrition.
Rooftop rainwater harvesting can be initiated at individual and community level. Check dams,
well recharging and other watershed activities can be planned out with villagers.
Revival of traditional sources of water also holds importance to provide water security. There
are two ponds in the village. Strengthening of earthen bunds of village ponds and cutting out
bushes from the pond will help to create water security in the village. It will also help to
recharge ground water and benefit the wells in the farms in vicinity of the pond.
Table 7.2 Action Points for Drought proofing

N Action Proposed Activities Target Responsible
o Population Agency
1 Revival of Survey, remedial measures to All villagers NGO,
village water strengthen the bund, excavation WASMO,
resources for deepening pond, clean up of Panchayat,
bushes and baval CBO
2 Agriculture Linking up with Insurance Co., All families, Insurance
Insurance Mass Insurance scheme Marginal an small co,
farmers Panchayat,
NGO
3 Livestock Linking up with Insurance Co., All families, esp Insurance
Insurance Mass Insurance scheme families co,
depended on Panchayat,
livestock NGO
4 Watershed/ Check dams, reviving village All families, esp Govt,
water water resources, water vulnerables Panchayat,
harvesting harvesting structures, formation NGO,
of Paani Samiti, Generating corporate
Awareness
5 Pasture land Identifying and developing All families Panchayat,
development Gochar, training for operating VDC
and maintaining it
6 Irrigation Trainings and awareness All families, esp GAU,
technology programmes, linking with GAU vulnerables Panchayat
transfer

7 Seed bank Formation of seed bank All families, esp VDC, seed
committee under VDC, training vulnerables bank
to operate seed bank committee
8 Fodder bank Formation of fodder bank All families, esp VDC, seed
committee under VDC, training vulnerables bank
to operate fodder bank committee
9 Credit & SHG Formation of SHGs and training All families, esp Women
creation to operate it vulnerables SHGs,
Panchayat,
NGO, rural
banks
10 Non farm Identification, promotion and Potential skilled, NGO, CBOs
activities market linkages to Non farm unemployed,
promotion Based activities
11 Vocational Vocation and technical training Youths, women Potential
trainings to skilled youths skilled,
unemployed,
youths
12 Food and Trainings and awareness Women and Vulnerables,
nutrition generation among people and children daily wagers,
security staff of CHC and Anganwadi on poor esp
nutrition, monitoring food and women ad
nutrition children
13 Strengthening Constant monitoring, grievance PDS shop owner, PDS shop
PDS redressal system for PDS BPL and owners,
vulnerables monitoring
committee
7.2.1.3 Preparedness against Cyclone
Cyclone is another rapid onset disaster which gives very less or no warning. Cyclone can
affect physical structures as well as agriculture. Hence cyclone resistant housing and
infrastructure is the key for preparedness. Retrofitting of the structures to withstand the
cyclonic winds will reduce the threat of loss of life and property to a grate extent. In most of
the cases, roof of the structure is the most vulnerable element in cyclone. Retrofitting of roof
will quite reduce the damage to the structure. A model cyclone resistant shelter in villages
can be used as community shelter in case of cyclone. School building or community hall or
any other safe building can be pre assigned for utilizing as emergency shelter during crisis. In
normal time it can be used as community hall for various purposes. This will ensure that there
is no loss of life in any eventuality of cyclone.
Again housing and agriculture insurance will be of great help for rural community. Here too,
buddies for disabled will play important role in saving their lives.
Technical audit of houses for cyclone safety for roofs can be carried out. Emphasis should be
on the houses with country tile roof with no anchorage with rafters and walls. Retrofitting of
weak houses should be carried out immediately.

Table 7.3 Action point for cyclone preparedness

No Activities Proposed Activities Target Responsible
Population Agency
1 Housing Link with Insurance Co., All families, esp Insurance co,
Insurance Mass Awareness vulnerable Panchayat, NGO
Programme
2 Retrofitting Identifying and All families, esp Govt, NGO
retrofitting weak damaged
structures especially
roof
3 Community Awareness about safe All families Panchayat, CBO,
Shelter structures NGO, Sajjata Sena
4 Buddies for Identifying disabled and All vulnerable Panchayat, CBO,
disabled and old their buddies and disabled youth club, Sajjata
persons Sena
5 Agri insurance Link with Insurance Co. All families, esp Insurance co,
vulnerable Panchayat, NGO
7.2.1.4 Preparedness against Flood

Due to scanty rainfall, flood is not a regular feature in this part of region. However erratic
rainfalls of high intensity can cause a deluge and flood like situation in low-lying areas of the
villages. Nani Chirai is more prone to floods due to proximity if Gulf of Kachchh. Once there is
deluge, it leads to other hazards such as epidemic, inaccessibility, shortage of water and food
items, crop failure and damage to property and sometimes even threat to life.
Table 7.4 Action points for flood preparedness

No Activities Proposed Activities Target Remarks
Population
1 Housing Link with Insurance Co All families, esp Insurance co,
Insurance and mass awareness vulnerable Panchayat, NGO
programme
2 Access roads and Putting up demand of All families, esp Govt, NGO
drainages roads in Government damaged
3 Community Use of Sajjata Bhavan All families Panchayat, CBO,
Shelter and awareness about the NGO, Sajjata Sena
safe shelter
4 Agriculture Link with Insurance Co. All families Insurance co,
insurance vulnerable Panchayat, NGO
5 Rescue team Training of youth and Youth and Sajjata sena
equipping them women
6 Buddies for Identifying disabled and Disabled, weak Panchayat, CBO,
disabled and old their buddies and vulnerable youth club, Sajjata
Sena
7.2.1.5 Epidemic
Epidemic can be a result of widespread unhealthy and unhygienic conditions, deluge, vector
spread or external agents. The most vulnerable people to epidemic are the children and
women. Early diagnosis and control actions are crucial in these situations. Once there is a

panic among the villagers, epidemic can trigger other crisis such as mass migration, riots,
and social disturbances and in some instances even sabotage and loot.
Strengthening health service is the single largest factor to prevent and control epidemics.
Also improvement in hygiene conditions in the village contributes a lot in prevention of
diseases.
Continuous water logging can lead to health and sanitation degradation in the surrounding
areas and can get worsen in monsoon months. Soak pit can be constructed to allow the
water percolation into the ground and avoid water logging. Additional ground dressing for
slope or channels can be constructed to divert the water into the soak pit.
Table 7.5 Action points for Epidemic preparedness

No Actions Proposed Activities Target Responsible
Population Agency
1 Strengtheni Strengthening infrastructure- All families, esp PHC/ CHC,
ng and staff, equipments, medicines, vulnerable, Govt,
Networking storage, communication and women and Panchayat,
PHC/CHC transit children NGOs and
Corporate
2 Periodic Team of trained persons All families, esp Govt, NGO
monitoring monitors health condition in vulnerable
system the village regularly
3 Women Training of youth and women Youth and skilled CBO, NGO
volunteers
4 Medical Link with Insurance Co All families, esp Insurance co,
insurance vulnerable Panchayat,
NGO
5 Emergency Planning for medicines, transit, All vulnerable Sajjata sena,
Planning- communication, first hand CHC/PHC,
treatments, awareness volunteers, NGO
generation
7.2.2 Linking Disaster Preparedness Plan with Development Planning:
Natural Hazards damage the region or society, but the extent of damage depends on
vulnerability of that society or region. The quantum of loss due to disaster, natural or
manmade is a result of vulnerability to a society/region to disaster. The capacity of a society
to resist the impact of these forces finally decided the degree of loss to it by hazard and this
depends on the precautions, the society has taken, during various stages of development.
Thus the disasters are inextricably linked to the development and it is the development
pattern of society that decides its susceptibility/ vulnerability to disasters. Taking this aspect
into consideration, it is utmost importance that development pattern of region. Society is to be
tailored in such a way, so that the development along with decreasing its vulnerability to
natural hazards also makes society strong and resistant enough to withstand their adverse
impacts.
A planned and systematic development in a region certainly helps in reducing the

susceptibility of a region and society to disaster losses. Development is an inextricable
component of disaster management, which is universally applicable, but it is more relevant in

the areas with continuous threat and frequencies of disasters. In such areas, disaster
management activities are to be considered as developmental activities and vice-versa. The
approach of developmental programmes in the areas should be positive one, with stress on
building strong and resilient socio-economic and physical structures, capable to resist the
impact of natural hazard. It is also necessary to view disaster management activities as
developmental activities, while revising structural as well as non0structural vulnerability
reduction strategies and recognize and integrate the positive elements of indigenous
technology.
The main emphasis of disaster management system should be on reducing vulnerability,

which will automatically take care of post-disaster stages. As development pattern and
vulnerability are two aspects of a single problem and are inter-dependent, the approach of an
appropriate disaster management should be tailor development of the region in such a
manner, so that susceptibility of a society to disaster is minimised. Conventional development
is not able to take care of vulnerability and this is why the areas with high disaster frequency
need specialized development planning.
A planned sustainable development contributes greater to disaster preparedness than

anything else. It has been learnt from the experience that considering future risks and hazard
leads to better planning and ultimately to less vulnerable communities and assets. Linking
disaster preparedness in development planning needs sound understanding of planning and
decision making authorities along with strong political will. However, in most of the cases, a
major disaster is the wake up call for the authorities, but not before the loss and destruction
caused by the disaster.
Formulation of below given processes, keeping in mind its contribution towards risk reduction
and disaster preparedness will help to build an atmosphere of prevention and preparedness:
1) Land use maps: Clear demarcation of land use considering the risks /hazards of the area
2) Hazard zones: Guidelines for development in hazard zones
3) Development control Regulations: DCR in line with disaster preparedness plan.
Regularization of structures, which are not compatible with DCR including encroachment,
slums and squatters. This will help reduce vulnerability and strengthen disaster
preparedness.
4) Building by laws: Modification and enforcement of building by laws to minimize structural
vulnerability.
5) Restricted developments:
Identifying safe shelters: Identification and awareness on safe shelters in time of emergency
6) Shelf of projects for disaster preparedness: for rural areas, a shelf of projects that can
help to build the capacity of community to cope disasters should be envisaged and designed.
These projects can be implemented in phases
7) Ear marked funds for disaster preparedness projects: at ULB level also, there should
be earmarked funds for projects, which will help in building coping capacities of the
community and reducing the risk of disasters.
8) Phased implementation to model Disaster Preparedness Plan: To give enough time
and effort so that people can internalize the need, create demand and work towards behavior
change if needed.
9) Insurance: Comprehensive and mass insurance for areas prone to multiple and recurring
hazard should be promoted. Agriculture, livestock, assets and life and health insurance – all
should be covered under various schemes or one comprehensive scheme.

7.2.3 Strengthening Local Government Bodies (PRIs) for incorporating Development

Plan with Disaster Mitigation:
The Need of PRIs in disaster mitigation:

♣
In India, Panchayat is the main institutuin at village level. The constitution of India
recommend for an important role to the PRIs (Panchayati Raj Institutions) in respect of 29
important subjects such as education, health, agriculture, housing, land reforms, social and
farm forestry, drinking water, poverty alleviation programmes etc. which play very important
and strategic role in the filed of disaster management. These subjects if dealt effectively at
local level taking into consideration the local needs and conditions may be very effective in
reducing vulnerability of the land and the society and make it resilient to the adverse impact
of the natural hazards.
Panchayat can plat effective role to enhance organising community, forming village level
disaster response committees, developing early warning systems, organising rescue teams
and diversifying livelihood sources. Such community based disaster preparedness solutions
also focus on special efforts to ensure livelihood security.
PRIs working in harmony with state government can be an effective instrument to tackle the
disaster through early warning systems. PRIs are regarded as central agencies to implement
various rural development schemes/programmes. So PRIS can play a major role in
integrating disaster mitigation features with on-going developmental activities undertaken at
local level.
The Role of PRIs in disaster mitigation:
o Formulating Mitigation Strategy

o Carrying out risk assessment
o Carrying out vulnerability analysis, including identification of vulnerable groups
o Early warning systems (modern and traditional)
o Creating response plan that reflects actions to be taken, including an evacuation plan
after receiving the warning.
Chart 7.1 represents the Role of PRI’s in disaster mitigation.
♣
Source: Sustainable Rural Development for Disaster Mitigation by Dr. Satendra I.F.S and Prof Vinod K. Sharma,
India. ISBN 81-80690-071-7

Effective in
using local
Better link in wisdom and
rural tradition Encourage
development NGO
and disaster participation
mitigation
Effective Effective in
monitoring mobilizing
and local
evaluation resources
PRIs Role
Timely rescue in Disaster Effective in
and relief environment
Mitigation conservation
Easy
Create own propagation
fund of new
research to
people
More care for

Effective in vulnerable
training group
people
Relief as per
need
Chart 7.1 Role of Panchayats in Disaster Mitigation

7.2.3.1 Strengthening the role of PRIs for Rural Disaster Mitigation:

Current Scenario in India Modifications Required
State Level • State Relief Measures are observed and • The chief secretary or an officer equivalent should be designated as Development
supervised by relief commissioner/chief of Disaster Management Commissioner (DMC) of the state rather than relief
secretary. commissioner.
• State Government prepares contingency • DMC should have full responsibility for planning, monitoring and concurrent
plan to follow a framework laid down evaluation of all the developmental and disaster management plans. He will ensure
nationally. that all the developmental plans give due consideration to reducing vulnerability of
• Relief measures are reviewed by district the region.
level relief committee consisting of official • One state Development and Disaster Management Council is to be established at
and non-official members, including local the state level under the chairmanship of chief minister. Existing state crisis
legislators and members of Parliament. management council may be merged with it. To ensure Panchayat
• In case of natural calamity, control room is representation, the chairman of District Panchayat should be made its
set up at district headquarters for day to day members.
monitoring and relief operations • This council can take care of emergency planning, long term disaster management
plans, check on all developmental activities to ensure disaster mitigation.
District Level • District Magistrate or deputy commissioner • In the District Deputy commissioner (DDC) office, a separate committee can be
or collector is the focal point for directing, constituted to look after the disaster management under the leadership of DDC.
monitoring and supervising all disaster • Chairman of district level panchayat can be executive director.
management and development activities. • Technical head of various departments can be formed who will take care of
They work with sub division officers at village disaster mitigation activities in each development planning programme.
and block level. • The panchayat can be asked to formulate their development ad district
management plan under guidance of the chairman-district panchayat.
With inclusion of Chairman of District Panchayat in DDC office and state disaster management council, local needs in term of development planning
with reduced vulnerability can be addressed more effectively as he is a representative of local government bodies. This will bridge the gap between
policy makers and local government bodies and community.

Conclusion
This chapter summarizes the

outcomes of the study and
lessons learnt during the
study. It also explains the
efforts to share the outcomes
of the study with various
organizations and help to
make sustainable disaster
preparedness plans for
Kutch region.
8.1 Observations of the study
8.2 Lessons Learnt
8.3 Suggestions
8.2 Forward Linkages

Conclusion
8.1 OBSERVATIONS OF THE STUDY
This chapter shares overall atmosphere of disaster preparedness in the state community
response to increasing hazards in study region after the earthquake 2001. Research study
shows that although awareness regarding disaster preparedness is growing among
communities, civil society organizations, NGOs, development agencies and government
machinery; there is still a wide gap in integrating the efforts of various agencies.
Awareness amongst community for disaster and its preparedness has definitely increased in the
region after earthquake 2001 and people have become more sensitized about the issues of
disaster preparedness. People also have become more responsive to donation appeals made
by Government. Civil society has become more sensitive to grief in time of disaster and have
begun to take initiatives in helping out the victims in the beat possible way, they can. PProactive
role of Gujarat NGOs and civil society to respond to tsunami affected areas in late 2004 and
earthquake victims of Kashmir in 2005 are the glaring examples of growing awareness and
responsiveness in the state. Also the experience of such a large scale disaster of earthquake
have made them confident to manage similar situations and act in coordination. At the same
time, there is a need to integrate the efforts done by various agencies on disaster preparedness
to enhance the output of their respective programmes. It was shocking to know that some of
the agencies working in same geography (in some cases same villages) have not integrated
their programmes to provide better output and benefit the community. Lately there were some
efforts by NGOs to come together to respond to the emergency situation. During the floods in
Gujarat in 2005, four major donor agencies came together for assessment of the situation and
presented their findings to the Government, which was quite useful in articulating the relief
programmes in the region which were really in need.
Brief of disaster preparedness initiatives by various agencies
UNDP and GSDMA initiated disaster preparedness programme in all the villages of Kachchh in 2003,
under which disaster preparedness plans of all the villages were made in consultation with community
and Panchayat. Sajjata Sena and Sajjata Kaksh (preparedness room) were made in all the villages.
Members of Sajjata Sena were assigned different responsibilities and trained for various activities as
search and rescue, first aid etc. A brief of programmes of other agencies
CBDP by GSDMA and UNDP: all 1200 villages in Kachchh have this Community based disaster
preparedness plans. GSDMA in coordination with UNDP have developed the plans along with setting
up of village task force (VTF) and training VTF.
OLDP by Oxfam (I) Trust: A comprehensive database of NGOs, experts, institutions and other
agencies working all over Gujarat. It also comprises database of supplier of goods essential in
responding any emergency and details of quantity, quality, mode of payment etc.
CBDP by Unnati and other organizations: CBDP initiated by some of the organizations try to
integrate development plans with disaster preparedness.
Risk assessment and mitigation plan by GSDMA for cyclone, flood- A detailed technical
document with scientific assessment and mitigation measures.
School safety initiatives by SEEDS, NGO and GSDMA and Urban Earthquake Safety Initiatives
by SEEDS in partnership with Geohazard International and UNCRD Japan
Mahiti Mitra: Project by ISRO intends to set up highly equipped information centers for
governance and weather related information to villagers. It will play key role in future to
disseminate information and warnings to remote areas. SETU is one of the partners in
implementation.

Conclusion
8.2 LESSONS LEARNT
Disaster preparedness needs long term planning and consistent work for long period of time. As
in case of many other programmes, it is observed that initial fizz evaporates as time passes and
as the activity no longer is in need of immediate action. Development works in normal time can
enhance the disaster preparedness of the region to a great extent if the components of
preparedness are involved in the process. This study provided valuable insights into the
processes, dynamics and stakeholders involved in disaster preparedness.
Some of the major learnings of the research are:
8.2.1 Approach to the study
Process of evolving tools for the study was instrumental to collect the information in a structured
manner. It gave an insight for extent of data to be collected, how to articulate sensitive issues in
the village and schedule the visits to have maximum interaction with villagers.
8.2.2 Behaviour change and building culture of prevention
• The culture of prevention needs to be developed among the community to foster disaster
preparedness.
• Demand within the community needs to be generated to have safe shelters and
insurance for disasters.
8.2.3 Refining the process for sustainability
• Repetition of same activities by various agencies has faded out the interest of people
from the activities of disaster preparedness.
• Overall development including economic development and safeguards is the key to

achieve sustainable disaster preparedness
• Focus on marginalized and vulnerable group of society should be in mind while

formulating overall plan.
• Though whole process and document on disaster preparedness along with some training
was competed in all the three villages, in none of the village, the task force members
were aware of their role during disaster.
• Very general and superficial planning does not help the cause.
• Concentrated efforts on some demonstration sites will help others to follow the model.
Thinly spread resources over large area have not given desired result.
• Task forces made for disaster preparedness needs to be involved in development work in
normal time; otherwise the group disintegrates with time and when needed, no one would
be there.

Conclusion
8.3 SUGGESTIONS
8.3.1 Policy level improvisations
The efforts made by Government; National, State and International NGO’s; and the community
during earthquake 2001 have been a trendsetter. However, some lessons can also be leant
from the whole rehabilitation process:
• Setting up a common vision, goal and strategies by all implementing agencies over the
region in consultation with local government bodies, to reduce duplication and perplexity
in the region and amongst community.
• Development is an inextricable component of disaster management which is universally

applicable but it is more relevant in the areas with recurrent threat. In such areas,
disaster management activities are to be considered as developmental activities and
vice-versa.
• A common guideline should be prepared in consultation with all Government agencies,

NGO’s and other agencies for preparation of community based disaster preparedness
plan at regional level. This guideline should enable local level government body and
community to prepared their own plans and strategies with some guidance
8.3.2 Integration of processes adopted by various agencies
As discussed earlier in this chapter, there is a great need to synergize the processes adopted
by various government and non government agencies for betterment of the region. Together, all
the agencies and community have tremendous potential and capacity to build a safe and
progressive environment in the region. It will also help in achieving common goals and working
on a vision of development and preparedness.
8.3.3 Role of research and support organizations
One of the important observations of the study was that, the research and support organizations
in and around Kachchh like Gujarat Agriculture University (GAU), Krishi Vigyan Kendra (KVK),
Pajarapole etc can play very crucial role in reducing the vulnerability of the village on fronts like
drought and crop failure these agencies have not been in the loop of so called ‘disaster
management framework’, but there is great potential to be tapped here. Also other research
and training institutions, insurance and micro credit agencies, construction and manufacturing
companies, industries in and around the village, transport agencies etc. can fit to the role as
required; to enhance the community level coping mechanisms and building a culture of
prevention.

Conclusion
8.4 FORWARD LINKAGES
The findings of the research were shared with Unnati NGO. Unnati, which has its long presence
in Bhachau region and undertaking programmes on disaster preparedness, livelihood and
strengthening local self-governance in two villages included in the study. There is a plan to
share the report with PRIs and villagers to get their feedback. The study will help Unnati to
articulate their programmes in a better way. This will help in building culture of prevention
amongst the communities and build their capacities to cope with disasters.
Some of the information was also shared with one of the consultants to GSDMA. They have
agreed to consider the conditions of vulnerable group of fisher folks which reside just on sea
shore, while preparing action plan for Cyclone preparedness.
Research will also be shared with UNDP, GSDMA and various other NGOs working in Kachchh
region.
Moreover, the research will be provide valuable insights into the process, stakeholders and
dynamics between them which will enable interested agencies, NGOs and institutions in
understanding the process of disaster preparedness.

1. Appati Jokham Vyavasthapan Karyakram; Ministry of Home Affairs, GSDMA,
UNDP.
2. Bildan Lolita; Disaster Management in Southeast Asia- An overview; ADPC.
3. Building Disaster Risk Reduction in Asia: A way Forward; ADPC.
4. Carter Nick W., Disaster Management- A Disaster Manager’s Handbook, Asian
Development Bank.
5. Chiwaka Ethlet et al; Participatory Vulnerability Assessment, Action Aid
International.
6. Demeter Kataline et al; The Role of Local Governments in Reducing the Risk of
Disasters, The World Bank.
7. Disaster Management in India; Ministry of Home Affairs, Government of India.
8. Disaster Mitigation in Asia and the Pacific, Asian Development Bank.
9. Dr. Satendra & Prof Vinod K Sharma; Sustainable Rural Development for Disaster
Mitigation.
10. Hazards, Disasters and your Community- A primer for Parliamentarians;
Government of India, National Disaster Management Division.
11. Kapur Anu et al; Disasters in India-Studies of grim reality.
12. Living with Risk: A Global Review of Disaster Reduction Initiatives; ISDR 2002
13. Margdarshika, Gram Appati Vyavasthapan Yojana; Ministry of Home Affairs,
GSDMA, UNDP.
14. Plain Truth- GSDMA News letter March 2002; GSDMA.
15. SPHERE Standards 2004.
16. http://www.undp.org.in
17. http://www.ldeo.columbia.edu

Annexure 1
Annexure 1: Village Resource Maps
Village: Amardi

Annexure 1
Village: Morgar

Annexure 1
Village: Desalpar (Part of Village Morgar)

Annexure 1
Village: Nani Chirai

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RISK REDUCTION

Centre for Integrated Development (C f I D), Ahmedabad,

We are grateful to Government officers, Sarpanchs , Panchayat members, local

Centre for Integrated Development (CfID) team

Tapan Patel (Team leader for research)

Abbreviations and Glossary of terms II - III

List of tables, Charts and Maps IV

Executive Summary V-X

2 Natural Disasters- An Overview 5-18

3 Disaster Management in India 19-27

4 Concept of Community Based Disaster Preparedness 28-33

5 Disaster Profile of Kachchh 35-43

6 Case Study 44-65

7 Disaster Preparedness and Mitigation Strategies 66-79

5.1 Magnitude and Frequency of Epicenters in Kachchh, 1819-2001 36

1.1 Framework for Disaster Vulnerability Reduction 3

2.1 Natural Hazard Map of India 8

• Behavior change- culture of prevention: Though awareness to be prepared for disaster

Risk Reduction Through Community Based Disaster Management Plans VI

• Legislation: Government of Gujarat has improvised General Development Control

Risk Reduction Through Community Based Disaster Management Plans VII

1. Community based action plan for disaster preparedness

1.1 Action plan for earthquake preparedness

1.2 Action Plan for Cyclone Preparedness

1.3 Drought Preparedness Action Plan

Risk Reduction Through Community Based Disaster Management PlansVIII

Insurance Mass Insurance scheme Marginal an Panchayat, NGO

2. Linking Disaster Plan with Development Plan

Risk Reduction Through Community Based Disaster Management Plans IX

Risk Reduction Through Community Based Disaster Management Plans X

This chapter outlines the objective and

Risk Reduction Through Community Based Disaster Preparedness Plans 1

1.2 RESEARCH STRATEGY

A) Conceptualising and evolving framework of study

F) Primary and secondary information collection: Interaction with Panchayat institutions,

1.3 FRAMEWORK OF STUDY

Risk Reduction Through Community Based Disaster Preparedness Plans 2

community, internal and external institution support, identification of gaps in coping

Vulnerability Context Strategy

• External factors like hazards – intensity • Identification of gaps

Chart 1.1 Framework for Disaster Vulnerability Reduction

Community participation has been recognized as the essential element in disaster

2. Identification of sample villages (3 villages) as case study.

3. Developing field processes

6. Documentation of the study

1.6 INTENDED BENEFICIARIES:

Local Community in Bhachau Block, CBOs, NGOs

1.7 LINKAGES, CONSULTATIONS AND INFORMATION DISSEMINATION:

• UNNATI, Organisation For Development Education, Ahmedabad, India

Risk Reduction Through Community Based Disaster Preparedness Plans 4

This chapter highlights the situation of

2.1 Disasters: World Review

Risk Reduction Through Community Based Disaster Preparedness Plans 5

2.1 NATURAL DISASTERS – WORLD REVIEW

Recognizing the important role of disaster mitigation and

Risk Reduction Through Community Based Disaster Preparedness Plans 6

2.2 NATURAL DISASTERS – INDIAN CONTEXT

2.2.1 Disaster Profile:

An Internet study reveals that India makes it on the

Box 2.1 India’s Key Vulnerabilities

Risk Reduction Through Community Based Disaster Preparedness Plans 7

Source: The Earth Institute, Columbia (website search)

Risk Reduction Through Community Based Disaster Preparedness Plans 8