V I N AY J A I N , I I ND S E M , M .

P L A N
URBAN PLANNING DEPARTMENT
UNIVERSITY TEACHING DEPARTMENT 1
CSVTU, BHILAI.
PHASES OF DISASTER MANAGEMENT
PHASES OF DISASTER
MANAGEMENT
 INTRODUCTION, OVERVIEW &
PERSPECTIVES
Disasters are incidents that cause disruption of normal life, deviation from
ordinary expectations of individuals and groups. The disasters can be
categorized in two groups. One of them is natural disasters and the other one
is human-induced disasters. Natural disasters include occurrences such as
earthquakes, storms, tornados, floods, fires, tsunami, landslides, avalanches,
volcanoes, and drought. On the other hand, human-induced disasters are
events such as fires, explosions, mine accidents and detonations, pollution,
traffic accidents, radioactive pollution, thermo-nuclear wars and battles.
Disaster management is a cycle which aims to reduce or avoid its effects,
assure prompt and appropriate assistance to victims of disaster, and achieve
rapid and effective recovery. It also provides coordination of all public
institutions and sources and applicability for the common purpose (Sengezer,
2001). Mitigation, preparedness, response, recovery are the phases of a
disaster management. 3

PHASES OF DISASTER MANAGEMENT

The four phases of disaster: 1) mitigation; 2) preparedness; 3) response; and 4) recovery. The model helps frame issues
related to disaster preparedness as well as economic and business recovery after a disaster. Each phase has particular
needs, requires distinct tools, strategies, and resources and faces different challenges.

M I T I G AT I O N P R E PA R E D E N E S S
Pre Disaster Mitigation Education, Outreach and Training
Minimizing The Effects Of Disaster. Planning how to respond.
Examples: Building Codes And Zoning; Vulnerability Examples: preparedness plans; emergency
Analyses; Public Education. exercises/training; warning sysytem

RESPONSE
Immediate response to stakeholders
Efforts to minimize the hazards created by a disaster.
Examples: search and rescue; emergency relief .
RECOVERY
Post-Disaster Economic Recovery Plan
Returning the community to normal.
Examples: temporary housing; grants; medical care.
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PHASES OF DISASTER MANAGEMENT

 DISASTER
MANAGEMENT
CYCLE

PHASES OF DISASTER MANAGEMENT

 DISASTER
MANAGEMENT
CONTINUM
A typical DM continuum
comprises six elements; the pre-
disaster phase includes
prevention, mitigation and
preparedness, while the post-
disaster phase includes response,
rehabilitation, reconstruction and
recovery. A legal and institutional
framework binds all these
elements together (Diagram I).
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PHASES OF DISASTER MANAGEMENT

M I T I G AT I O N
• Mitigation activities actually eliminate or reduce the probability of disaster occurrence, or
reduce the effects of unavoidable disasters. Mitigation measures include building codes;
vulnerability analyses updates; zoning and land use management; building use regulations
and safety codes; preventive health care; and public education.
• Mitigation will depend on the incorporation of appropriate measures in national and
regional development planning. Its effectiveness will also depend on the availability of
information on hazards, emergency risks, and the countermeasures to be taken. The
mitigation phase, and indeed the whole disaster management cycle, includes the shaping
of public policies and plans that either modify the causes of disasters or mitigate their
effects on people, property, and infrastructure.

PHASES OF DISASTER MANAGEMENT

P R E PA R E D N E S S
• The goal of emergency preparedness programs is to achieve a satisfactory level of readiness to respond to any
emergency situation through programs that strengthen the technical and managerial capacity of governments,
organizations, and communities. These measures can be described as logistical readiness to deal with disasters
and can be enhanced by having response mechanisms and procedures, rehearsals, developing long-term and
short-term strategies, public education and building early warning systems. Preparedness can also take the form
of ensuring that strategic reserves of food, equipment, water, medicines and other essentials are maintained in
cases of national or local catastrophes.
• During the preparedness phase, governments, organizations, and individuals develop plans to save lives,
minimize disaster damage, and enhance disaster response operations. Preparedness measures include
preparedness plans; emergency exercises/training; warning systems; emergency communications systems;
evacuations plans and training; resource inventories; emergency personnel/contact lists; mutual aid
agreements; and public information/education. As with mitigations efforts, preparedness actions depend on the
incorporation of appropriate measures in national and regional development plans. In addition, their
effectiveness depends on the availability of information on hazards, emergency risks and the countermeasures
to be taken, and on the degree to which government agencies, non-governmental organizations and the general 8
public are able to make use of this information.
PHASES OF DISASTER MANAGEMENT
RESPONSE

• The aim of emergency response is to provide immediate assistance to maintain life, improve health
and support the morale of the affected population. Such assistance may range from providing
specific but limited aid, such as assisting refugees with transport, temporary shelter, and food, to
establishing semi-permanent settlement in camps and other locations. It also may involve initial
repairs to damaged infrastructure. The focus in the response phase is on meeting the basic needs of the
people until more permanent and sustainable solutions can be found. Humanitarian organizations are
often strongly present in this phase of the disaster management cycle.

PHASES OF DISASTER MANAGEMENT

RECOVERY
• As the emergency is brought under control, the affected population is capable of undertaking a
growing number of activities aimed at restoring their lives and the infrastructure that supports them.
There is no distinct point at which immediate relief changes into recovery and then into long-term
sustainable development. There will be many opportunities during the recovery period to enhance
prevention and increase preparedness, thus reducing vulnerability. Ideally, there should be a smooth
transition from recovery to on-going development.

• Recovery activities continue until all systems return to normal or better. Recovery measures, both
short and long term, include returning vital life-support systems to minimum operating standards;
temporary housing; public information; health and safety education; reconstruction; counseling
programs; and economic impact studies. Information resources and services include data collection
related to rebuilding, and documentation of lessons learned.
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PHASES OF DISASTER MANAGEMENT

 Disaster risk is a function of probability of occurrence of hazards
p(h), vulnerability v, and exposure e. It is expressed using the
following formula:
Disaster risk = f(p(hi),v,e)
• Hazard characterizes the features of likely hazards, such as
floods, earthquakes, cyclones, landslides, in a specific location in
UNDERSTANDING terms of frequency, intensity, & spatial occurrence.

DISASTER RISK • Vulnerability is a measure of the fragility of the assets at risk

(physical characteristics and/or socioeconomic conditions) and
how they perform given the intensity of hazard impact.
• Exposure identifies the elements at risk in a specific location,
such as size, composition, and density of the population,
buildings, infrastructure, their cultural significance, and
economic activity that could potentially be affected by the
hazards.
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PHASES OF DISASTER MANAGEMENT

Components of Disaster Risk in an Urban Setting

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PHASES OF DISASTER MANAGEMENT

Disaster risk can be characterized as a function of
• the probability of occurrence of hazards of varying severity in a particular location,
• the people and physical assets that are situated in the location and exposed to the hazards, and
• the level of vulnerability of those people and assets to hazards.
For an urban planner working on urban growth and development it is critical, for the following
reasons, to understand the spatial correlation between the evolving multihazard landscape and the
elements (population, buildings, infrastructure, and businesses) that are/will be at risk:
• Lack of awareness of disaster risk in rapidly growing urban areas.
• Urban development can change the disaster risk profile.
• Climate change is expected to increase disaster risk.
This requires assessing disaster risk and utilizing the findings of the assessment in decision making
regarding urban land use management.

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PHASES OF DISASTER MANAGEMENT

 Disaster Risk
Actions Outcome(s)
Assessment Steps

Identify the full range of hazards relevant

to current & future urban growth.
Characterise hazard patterns : frequency,
Identify Hazard
intensity and locations
Develop hazard maps to illustrate location
severity, & likelihood of next hazards.
A good understanding of
hazards (type & characteristics)
and how the overall hazard
patterns may change with
climate change and other land
use activities.

Identify the full range of hazards relevant

to current & future urban growth.
Assess exposure
of people and Elements at risk identified,
Characterise hazard patterns : frequency,
mapped, and valued in terms of
physical assets intensity and locations
at risk their replacement cost
Develop hazard maps to illustrate location
severity, & likelihood of next hazards.
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PHASES OF DISASTER MANAGEMENT

 Disaster Risk
Actions Outcome(s)
Assessment Steps

Assess the physical vulnerability in terms

of damage and losses to a structure and Better understanding of the
using functions that relate hazard fragility of assets and their
Assess intensity to damage. performance given the
vulnerability severity of a disaster event
Understand social and economic factors
that contribute to vulnerability.

Adopt participatory methods to involve

different stakeholders to identify and
triangulate information on hazards, Disaster risk assessed in
Assess exposure, and vulnerabilities the context of urban land
Disaster Risk
Communicate the results of the use management.
assessment along with the limitations and
uncertainties to all stakeholders.
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PHASES OF DISASTER MANAGEMENT

 Tiered Approach to Disaster Risk Assessment

HAZARD EXPOSURE VULNERABILITY RISK

Coarse assessment based on

Qualitative assessment
Community knowledge based on simple Qualitative description Qualitative description
National and global assumptions (e.g., altitude based on expert judgment based on risk scenarios
database or distance to shoreline for and stakeholder feedback Maps
coastal flooding)
Rule of thumb

Detailed site specific Comprehensive exposure

assessment with assessment with
Vulnerability assessment Detailed and high
long time series of Mapping of individual
with socioeconomic data resolution risk information
observation data properties and assets
biophysical data Probabilistic risk modeling
High resolution hazard Documented attributes of
maps exposed properties and Building construction data with estimate of losses
Numerical and dynamic assets
modeling Geo references

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PHASES OF DISASTER MANAGEMENT

 Urban planners are in a unique position to reduce disaster risk
because of the land use management tools at their disposal.
DISASTER Reducing disaster risk requires the following:

IMAPACT AND • Long-term systemic thinking: Urban planners can act as

visionaries for their cities and both support and influence
ROLE OF such thinking in long-term decisions, including decisions
URBAN to institutionalize disaster risk reduction measures in the
context of wider urban development.
PLANNING • Multidisciplinary and multi stakeholder inputs: Urban
FOR DISASTER planners tend to have a good working relationships with
different stakeholders—politicians, government, the
RISK scientific community, the private sector, and civil society.
REDUCTION • A good understanding of land conditions (natural,
socioeconomic, and political dimensions of land): Urban
planners with proficiency in land use management and
understanding of complex political economy provide a 17
natural vantage point.
PHASES OF DISASTER MANAGEMENT
In order to reduce disaster risk through urban land use management processes, Urban planners need technical
capacity to interpret disaster risk information and its potential implications for a city’s landscape with support from
government and will also require creating awareness among all urban stake holders. Urban Planning can play an
important role in reducing disaster risk for the following reasons:
• Understand interaction between hazards and urban growth patterns
• Increase political and economic viability of disaster risk reduction solutions
• Build on existing processes, capacity, and resources, instead of new approaches.

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PHASES OF DISASTER MANAGEMENT

 Identify hazards.
1 Assess exposure of people and physical assets.
Understanding Disaster Risk Assess vulnerability and Assess disaster risk.

2 Identify disaster risk as part of a situation analysis undertaken for land use plan preparation.
Land Use Planning for Reducing Through consensus, formulate risk-informed vision and goals.
Disaster Risk Develop and promote policy measures that support disaster-risk-sensitive growth.

Design zoning ordinances to factor hazard information. Land subdivision to require hazard-
3 related studies to inform allowable density and layout of land.
Development Controls as a Device Building codes to provide guidance on the design, construction, alternation & maintenance of
for Disaster Risk Reduction structures located in hazard-prone areas.

4
Greenfield Sites as Disaster Risk
Reduction Opportunities
Use of Disaster Risk information at the master planning stage to determine the location and
nature of land uses and infrastructure and to formulate site design and development controls.
Guided by the findings of detailed disaster risk assessment, prioritize disaster risk reduction-
related investments.

5
Urban Redevelopment as a
Disaster Risk Reduction Strategy
Use results of disaster risk assessment to guide the formulation of a redevelopment master
plan for formal built-up areas and brownfield development. In areas with high disaster risk,
use urban redevelopment as an approach to reduce disaster risk. Use disaster risk information
& participatory process to inform interventions related to upgrading of informal settlements.
 For an urban planner it is important to integrate disaster risk-
related considerations in different stages of the land use
planning process: situation analysis, visioning, goal setting, land
development scenario analysis, and land use policy formulation LAND USE
for cities situated in hazard-prone areas.
Urban land use plans should incorporate knowledge of the
PLANNING FOR
potential effects of disasters caused by hazards, so that most REDUCING
disaster risks in the city can be addressed through measures
such as risk-sensitive development / redevelopment policies,
DISASTER RISK
development control instruments and disaster risk reduction-
related public investments.

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PHASES OF DISASTER MANAGEMENT

Risk-Sensitive Policies Proposed in a Land Use Plan

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PHASES OF DISASTER MANAGEMENT

Land use planning provides the potential to reduce disaster risks for the following reasons:
• The spatial nature of land use plans allows a demonstration of the locational constraints posed by hazards on
existing and future developments of a city.
• By proposing growth strategies, land use plans can encourage settlements and infrastructure investments. Once
such investments take place, it is almost impossible (and expensive) to remove such investments. If such
investments are located in hazard-prone areas or do not follow hazard-resilient standards, the risks are likely to
persist.
• An integrated approach for land use planning is helpful for reducing disaster risk of infrastructure systems, For
example, damage to a water transmission line in an earthquake can disrupt the operation of the entire system,
even if the treatment plant and storage reservoir remain intact and functional. Land use planning helps to
facilitate an understanding of the linkages between different infrastructure facilities and their various components
and how failure in one component can affect the performance of others.
• The long-term outlook of land use plans (usually 10–20 years) provides an opportunity to factor in longer-term risk
considerations, such as threats from changing hazard patterns due to climate change. This is particularly
important to protect critical infrastructure and public utilities, which typically have a longer design life, usually at
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least over 50 years.

PHASES OF DISASTER MANAGEMENT

 Land Use Plan Actions to integrate Disaster
Outcome(s)
Formulation Stages risk considerations

A situation analysis report presents an

Identify hazards and environmental resources objective statement on how hazards will
Situation impact projected demands for land,
Analysis Identify underlying factors contributing to housing, infrastructure, transportation,
vulnerability from hazards employment, and waste management and
what the key causal factors are (covering
physical, social, economic conditions).

Raise awareness and initiate dialogue among

stakeholders on the future performance of the city
in the context of changing disaster risks. Vision statement and goals informed
Visioning and by disaster risk considerations.
Goal Setting Formulate risk-informed goals and, where
relevant, develop explicit land use goals aiming at
reducing disaster risk

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PHASES OF DISASTER MANAGEMENT

 Land Use Plan Actions to integrate Disaster
Outcome(s)
Formulation Stages risk considerations

Examine the implications (within geographical and

time frames) of disaster risk on proposed land use Maps developed for various growth
Land
scenarios. scenarios show development constraints
Development
Scenario Analysis Highlight areas at risk and develop policy posed by disaster risks.
measures to ensure that all occupancy types can
be safely undertaken.

Promote policy measures that support disaster-risk

sensitive growth by
(i) protecting hazard-prone and environmentally
sensitive areas; Land use policy statements factor in
Land Use Policy
(ii) reducing disaster risk in development that has disaster risk considerations..
Formulation
already encroached onto hazard-prone areas, and
factoring in future alternative land use options; and
(iii) promoting development in areas not prone to
hazards, through regulations and incentives.

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PHASES OF DISASTER MANAGEMENT

 Disaster risk-related considerations factoring in development control
instruments can help reduce or at least contain disaster risk in urban
areas. The development control instruments such as zoning, land
subdivision, and building control are the indispensable tool for DRR.
The primary purpose of development control instruments is to regulate
DEVELOPMENT the location, density, layout, and design of permitted development.
However, if ignored, these factors can also potentially increase disaster
CONTROL AS A risk by increasing the vulnerability of citizens and the exposure of
DEVICE FOR assets to hazards. Conversely, if development control instruments
have hazard considerations factored into their design and
REDUCING implementation, they can contribute substantially to reducing or at

DISASTER
PHASES OF DISASTER MANAGEMENT
least containing urban disaster risk. For example, through land
acquisition, the full bundle of development rights of a hazard-prone
area can be purchased, development restricted, and the area
converted into public parks. Similarly, the development rights for
hazard-prone areas can be transferred to rights for less hazard-prone
areas, with commensurate compensation to landowners where
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necessary, for instance in the form of higher density allowances for less
hazard-prone areas.
 Disaster Risk Actions to integrate Disaster
Outcome(s)
Assessment Steps risk considerations

Zoning ordinances clearly integrate hazard

Indicate hazard-prone areas in zoning maps information (with hazard maps) & requires
specific standards to be followed for
Zoning Factor hazard information into density calculations development in hazard prone areas.

Introduce buffers in hazard-prone areas Specific zoning instruments, such as setbacks

adopted for high-risk areas.

Identify land that is prone to hazards & land use

activities that exacerbate existing levels of risks.

Require hazard-related studies and disclosure of Land parcels and associated development are
Land Sub
study findings as well as integrating hazard safe from risks from hazards.
Division
resilient standards in the design of utilities.

Introduce covenants as part of the requirement for

obtaining development permits..
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PHASES OF DISASTER MANAGEMENT

 Disaster Risk Actions to integrate Disaster
Outcome(s)
Assessment Steps risk considerations

Identify high hazard-prone areas, publically

Land Development in hazard prone area restricted
acquire land (where feasible) and restrict
Acquisition or limited.
development.

Purchase or Identify hazard-prone areas and either purchase or

Transfer of Development in hazard prone area restricted
transfer the right to development from these
Development or limited.
areas to less hazardous areas.
Rights

Integrate locally relevant hazard-resilient design

Culture of compliance strengthened where
standards into building codes and enforce
all stakeholders are knowledgeable about
Building implementation.
the current and future risks from hazards and
Control
Provide specifications for retrofitting of buildings in how such risks interact with building location
high-risk areas. and construction practices.

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PHASES OF DISASTER MANAGEMENT

 Greenfield development provides the potential to reduce disaster
risks for the following reasons:
• Being vacant sites, greenfield development offers flexibility in
site selection for different land uses and infrastructure,
GREENFIELD individual site layout, and building and infrastructure design. It
SITES AS is ideal to factor in various development constraints, including
those imposed by hazards in the area.
OPPORTUNITIES • It is more cost-effective to factor in disaster risk-related
FOR REDUCING considerations in the design of new infrastructure and
buildings than to retrofit later. Experience from school
DISASTER RISK buildings in Nepal has shown that using seismically resistant
techniques increase the construction costs by only 4%–8%
whereas the cost of retrofitting a building later is in the 25%–
50% range of the cost of the building.
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PHASES OF DISASTER MANAGEMENT

 Factoring Hazard Considerations in Greenfield Development

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PHASES OF DISASTER MANAGEMENT

Greenfield Site Actions to integrate Disaster
Outcome(s)
Development risk considerations

Use hazard information to determine the location and

nature of land uses and infrastructure, and to
formulate site design concepts and development
control regulations.
Master
In cases where development cannot be avoided in
Planning
hazard-prone areas, pursue disaster risk reduction
measures, involving hazard-resilient design of housing
& infrastructure, and strengthening early warning
systems.
The Master Plan presents an objective
statement on how hazards will impact
the future development of the greenfield
site and ensures that proposed
investments include appropriate risk
reduction measures.

Infrastructure Guided by the findings of hazard assessment, identify Disaster risk reduction related
to reduce and prioritize investments with the primary purpose to investments are implemented in the
Disaster Risk reduce disaster risk. greenfield site.

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PHASES OF DISASTER MANAGEMENT

 Urban redevelopment projects provide opportunities for
disaster risk reduction in the form of development in formal
built-up city areas, vacant lands and brownfield sites, and
upgrading of informal settlement.
Urban redevelopment projects should be required to include
URBAN hazard considerations so as to ensure that project sites
incorporate disaster risk reduction measures into their basic
REDEVELOPMENT design, and do not increase existing levels of vulnerabilities (e.g.,
AS A STRATEGY by relocating informal settlements to hazard-prone areas).
While market forces play an important role in deciding the
FOR REDUCING ultimate character and success of urban redevelopment, the

DISASTER RISK inclusion of disaster risk considerations will add value to the
results. In urban areas with very high disaster risk, urban
redevelopment as an approach can be adopted to retrofit
buildings and strengthen overall resilience.

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PHASES OF DISASTER MANAGEMENT

Use of Urban
Redevelopment as a
Disaster Risk Reduction
Strategy

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PHASES OF DISASTER MANAGEMENT

Urban redevelopment projects provide the potential to reduce disaster risks for the following reasons:
• In many cases, urban redevelopment projects are designed to address socioeconomic issues, such as
informal settlements, substandard structures, and deteriorated areas in the city center (infill sites, etc.). Such
issues often contribute to increases in hazard vulnerability.
• Large-scale urban redevelopment may be carried out in phases. With a good understanding of how disaster
risk changes over time, phased development can help to incrementally embed investments targeted at
disaster risk reduction.
• In areas with very high disaster risk, urban redevelopment as a tool can be adopted to retrofit buildings and
strengthen the overall resilience of a city.

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PHASES OF DISASTER MANAGEMENT

 Urban Actions to integrate Disaster
Outcome(s)
Redevelopment risk considerations

Use results of disaster risk assessments to guide the

preparation of the redevelopment project master plan.
Formal built up
City Areas Formulate principles for redevelopment that will
intentionally reduce population vulnerability and asset
exposure to hazards..
The urban redevelopment plan sets out
the natural hazard-related development
constraints for the project and identifies
measures to reduce disaster risk.

Use hazard information to determine the nature of land

uses, and to formulate site design concepts and The urban redevelopment plan sets out
Brownfield development control regulations. the hazard related development
Development Formulate principles for redevelopment that will constraints for the project and identifies
intentionally reduce population vulnerability and asset measures to reduce disaster risk.
exposure to hazards..
For in situ upgrading, use existing information &
involve the community in a risk assessment process to Upgraded informal settlement areas will
Upgrading identify common hazards & factors contributing to implement measures to reduce disaster
Informal vulnerability. risk.
Settlements Engage the community to identify low-cost risk
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reduction implementation measures.
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PHASES OF DISASTER MANAGEMENT

 Urban redevelopment projects provide opportunities for
disaster risk reduction in the form of development in formal
built-up city areas, vacant lands and brownfield sites, and
upgrading of informal settlement.
CONSOLIDATING Urban redevelopment projects should be required to include
THE PLANNER’S hazard considerations so as to ensure that project sites
incorporate disaster risk reduction measures into their basic
ROLE IN design, and do not increase existing levels of vulnerabilities (e.g.,
REDUCING by relocating informal settlements to hazard-prone areas).
While market forces play an important role in deciding the
DISASTER RISK ultimate character and success of urban redevelopment, the
inclusion of disaster risk considerations will add value to the
results. In urban areas with very high disaster risk, urban
redevelopment as an approach can be adopted to retrofit
buildings and strengthen overall resilience.
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PHASES OF DISASTER MANAGEMENT

Reducing disaster risk through land use management requires national and city governments to put in place
effective policies, legislation, institutions, and financing arrangements; strengthen capacities; and build
awareness among the private sector and citizens to support implementation. While improving these factors is not
the direct responsibility of the urban planner, it is nonetheless crucial for planners to be aware of the importance
that these wider matters have on reducing disaster risk. Hence, the information in this note will enable planners
to provide effective inputs into the development of these wider aspects, especially so that these policies are not
developed without having an urban planning and disaster risk reduction perspective. Planners need to be part of
these discussions, and the information here can provide relevant insights and positions.
• Strengthen Legislation
• Enhance The Land Administration System
• Improve Knowledge And Skills
• Enhance The Capacity Of Urban Planners

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Lessons learned

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Recommendation

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