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SATRATEGIES FOR DISASTER MANAGEMENT TO REDUCE IMPACT OF NATURAL DISASTER IN INDIA J.Bhattacharjee
Former Jt. Director General (MOD), presently working as Professor in Civil Engineering, Amity University, Noida

SYNOPSIS
The paper deals with the present state of natural disaster mitigation & management in India, & the proposed strategy to be followed for reducing impact of natural Disaster. In last more than twenty years; India has experienced heavy floods, cyclones, landslides & earthquakes almost every year. Death, destruction & loss because of natural & manmade disasters are becoming more rather than less frequent. It has also been experienced that the country is not adequately prepared to deal with consequences of these disasters. The experience suggests that there is an urgent need for a proper disaster management strategy that is focused, well co-coordinated & prepared for all obvious eventualities so that its impact is reduced. The paper deliberated on all these issues & has finally recommended various comprehensive measures to be taken. The author was actively associated with Rapid assessment of large number of earth quake affected buildings in Jabalpur & Gujarat. The major reasons leading to failures of large number of structures have been analyzed, their remedial measures discussed, & deliberated to take preventive measures for reduction of its impact in future.

INTRODUCTION
Disaster of all types e.g., earthquakes, floods, cyclones, drought, cloudbursts, accidents etc. have been occurring since time immemorial. However, their frequency, magnitude & area
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have increased many times in all parts of world, in recent times. Disasters are extreme events & claim a large proportion of human live & cause huge damage to property throughout the world. They may be broadly classified as natural disasters such as earthquakes, floods, droughts & cyclones, manmade disasters such as riots, conflicts, refugee situations & environmental disasters, like fire, epidemics, industrial accidents & environmental fallouts. Often difference between them is marginal. Natural disasters can be perceived as an extreme natural event, which, may affect different places singly or in combination (Coast line, hillsides earthquakes prone areas, etc.) at different times (Season of the year, over varying return period, of Different duration, etc.). The hazard has varying degrees of intensity & severity. Any natural hazards become disasters, when they come in contact with vulnerable social setting of human population. Human settlements, structure & centres of economic activity increase the damages caused by disasters. Globally, natural disasters account for nearly 80% of all disaster affected people. India is one of the worlds major theatres of disasters, both natural & human made. Floods, draughts, cyclones, & earthquakes coupled with communal riots, conflicts, fire, epidemics, & other disasters compound the countrys chronic troubles. In the decade 1988 -97, disasters in India affected on an average over 24 million people & killed on an average 5,116 each year. In 1998, disaster affected 34,112,556 people in India & killed 9,846. Between 1985 & 1995, disaster caused an annual economic loss of about us $ 1,883.93 million. During 1996 to 1911, the average annual economic loss has increased only. Over the last century, about 75% of fatalities attributed to earthquakes have been caused by the collapse of buildings. Indias substantial percentage (59%) continue to live in the non-engineered weak buildings, due to absence of knowledge, poverty & awareness about compliance of appropriate buildings regulations and legislation.

EXIISTING POLICY FOR DISASTER MANAGEMENT

Basic Ingredients of Management Strategy Though the responsibility for undertaking rescue and relief measures in the event of Natural Calamities is that of State Government concerned; the Central Govt. associates itself with measures & supplements the States relief efforts by initiating supportive action. Towards
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this end, the Central Govt., with its resources, both physical & financial provides the needed help & assistance, with the existing policy of financing the relief expenditure, keeping in view the factors like the gravity of a natural calamity, the scale of relief operation necessary and the requirements for augmenting the financial resources of the state.

Disaster Management in the Country is essentially rested inter alias, on four major pillars viz: (a) Application of Scientific input to forecasting & relief programmes. (b) Timeliness & dynamism of management of relief delivery. (c) Peoples participation in relief delivery & monitoring. (d) Contribution of resilience of societies & areas and quality of life. Despite the recognition of the need to build up a societys capabilities to meet the challenges of disasters, the thrust of relief efforts was, for a variety of reasons, generally remained concentrated on the alleviation & restoration aspects. On the occurrence of disasters, the need for continued vigil, preparedness & conscious efforts to reduce the occurrence and impact of disasters is generally articulated, only to be buried subsequently, in the sub-conscious state of the Nation. However High Power Committee (HPC) formed by the Government, after deliberating on existing systems & their upgradeability for serving the purpose of disaster management

approaches and systems, felt the need to lay the foundations of a new culture of disaster management in the country. Disaster management, & disaster preparedness and mitigation in particular, are issues that concern the cultural and attitudinal attributes of the Govt., other organizations, & the public at large. It was felt that a new culture of being prepared for & managing disasters is needed that permeates all aspects of national life- physical, social & economic. Based on this philosophy, four cultures were identified by the HPC: Culture of preparedness, quick response, strategic thinking & prevention. These were detailed out to provide guidance for plan preparation & implementation process to take place in appropriate accordance.
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A well-formulated disaster management cycle normally comprises six different components i.e. Disaster preparation, mitigation, preparedness, response, recovery & development. The preventive measures include all those tasks that can be undertaken to prevent natural hazards from turning into a disaster. It is clear that not much can be done to prevent occurrence of natural hazards such as earthquake, cyclones, floods & avalanches etc., but efforts can be made to prevent their calamitous fall out. Some preventive measures come under the category of national development & some within specific disaster management programmes. In India, some-how we have failed to do much on this. There-by Earthquake of similar intensity as in Gujarat, when stuck in California, USA; there was almost no loss of life, whereas our death toll exceeded 20,000.

EARTHQUAKE IN GUJARAT & 0THER PLACES AND LESSONS LEARNT

Earthquakes are known to occur since time immemorial. As we are aware that out of the many types of disasters, an earthquake is the most deadly catastrophe, which strikes within seconds without any warning. The earthquake, which rocked Gujarat on 26 Jan 2001, varying assessed to measure, 6.9 to 8.1 on richer scale, left behind heavy toll of life & property. At least 20,000 people were killed and 1.66 lakhs injured in the quake, which flattened almost the entire Kutch region & parts of other districts, extending from Bhuj & Jamnagar in the north to Ahmedabad & Surat in the south. In Kutch area of Gujarat, many towns were destroyed & some villages were wiped off the map. Most precious human lives are lost, injured & huge properties destroyed or damaged, mainly due to not taking into account, the earthquake resistance features, while constructing the houses. Overall loss of human lives & properties due to this earthquake has exceeded the loss suffered in any other earthquake in our country in living memory. It was estimated by the Gujarat Govt. that the total loss of property was to the tune of Rs.20, 875 Crores. However, almost everybody, except those were in power, admits that many more lives & property could have been saved, provided we would have taken certain preventive measures. What was especially sad is that while the world was willing to help the victims, the Govt. faltered. India had experienced five great earthquakes, each with richer magnitude exceeding 8R; 1819 Gujarat, 1897 Assam, 1905 Himachal Pradesh, 1934 Bihar & 1950 Assam. Apart from these, there have been other divesting earthquakes subsequently in the Indian sub-continent,
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which have created public awareness about this problem. In 1967, earthquake in Koyna (6.3R), in 1993 earthquake in Latur (6.2R) area of Maharastra surprised everybody, as no such shock struck until then. In 1991, a damaging earthquake occurred in Utter-kashi (6.5R), in 1997 we had earthquake at Jabalpur (6R) & in 1999 Garhwal region of Western Himalaya (6.8R). After Bhuj earthquake (7.6R) on 26 January 2001, we had earthquake (7.6R) in Kashmir & Himachal Pradesh on 08 Oct 2005; Andaman Islands (7.5R) on 11Aug 2009 and on 18 Sept 2011 earthquakes (6.9R) in Sikkim. In all these earthquakes, the majority of the structural damages that observed in the affected areas are due to non-compliance of earthquake resistance features, and poor construction practices using locally available building materials. In Gujarat, also we have observed similar pattern of destruction of much bigger scale. Having simple and economical earthquake resistance structure has advantage even over prediction of earthquakes, which would minimize considerable losses of property & lives. Though number of teams from foreign countries rushed to India to help, duly equipped with flying hospitals with necessary medical support, and sniffer dogs etc, but unfortunately coordination from Govt. side was totally missing. Based upon the study of Gujarat Disasters and experiences of other disasters in India, the reasons for unsatisfactory state of affairs & major causes of failures are brought out below: (a) Lack of Effective coordination among various agencies resulting into in-efficient rescue operations and delays in release of relief materials, suffering of people, chaos & confusion. It is a fact that lot of human life could have been saved, had the Govt. could pulled the right string timely.

(b) Lack or Complete absence of inter-agency flow of information, pertaining to the official plan of action, procedures regarding receipt and distribution of material, nature & quantity of relief material being distributed to the effected people and the place of distribution. (c) Lack of transparency and accountability, regarding the money and material distributed to the effected people as well as left as unused. Therefore, there is a general lack of trust between the administration and the people. (d) Delays in release of relief materials & funds and there-by-ultimate sufferings of the people.
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(e) Bureaucratic management approach that is top-down, non-integrated & piecemeal. There was generally no devolution of authority to take decisions at mid & lower levels. Roles & responsibilities were not clearly specified. As a result there was a general lack of confidence among staff to handle post- disaster situations. (f) Past Experience in disaster management was not institutionalized and documented for use. It was lost with the individual, when he left the assignment on normal transfer. (g) Lack of comprehensive Disaster Mitigation Plan (DMP) at national, state, district & local levels. The Contingency Action Plan available with some states was not effective. (h) Lack of public participation in reconstruction programmes, because of which, the houses constructed is not getting adequate acceptance of the people and failed to serve the desired purpose. (i) Lack of effective rehabilitation policies & programmes as a consequence, a large section of the people is left to fend for themselves & struggle to rehabilitate their family. (j) Peoples attitude & behavior is casual & directed to short-term personal gains. They do not take early warning seriously & are caught in disaster situation/ conditions. In most states, it is reported that the people insisted on cheaper buildings even at the cost of construction quality. (k) Failures of Professionals (architects & engineers) in advising the people on magnitude of damage, if quality of building is compromised for cost considerations. Engineers do not feel accountable for damage to the buildings due to their faulty design or supervision. There is no regulation in this respect. (l) Builders are not accountable for quality of construction once building is handed over & mandatory six/ twelve-months period is over. There are no laws to regulate builders & their performance. (m) Failures of Planners to evolve rural housing models acceptable to the local People & commensurate with their community living pattern where both Animals & people live on the same compound. In addition to above findings, the major observations made during survey of various types of earthquake-affected buildings in Gujarat and other places are as under: -

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(a) The simple load bearing brick masonry buildings (constructed up to three stories) had a minimal damage, in comparison to multi- storied RCC framed structure with stilt (for parking vehicles), which had suffered heavy damages including collapses. There was no causality of the residence of brick masonry buildings.

(b) At Ahmedabad ,Gujarat the multi storied RCC buildings collapsed (60 no), low rise (G+4) & high rise (G+10), were all having stilt at ground floor for parking (there-by no walls were there in ground floor). Further, another 74 no low & high rise multi-storied buildings suffered extensive damages (demolished subsequently) were also mostly on stilt. Heavy causality was there of the residences of those buildings, who could not come out of the houses, during Earthquake.

(c) Poor maintenance of most of the old buildings/structures was observed & there-by damages were more on those structures.

(d) Major failure at beam column junction/joints & improper design and detailing practices in multi-storied buildings was evident from pattern of collapsed/heavily-damaged buildings.

(e) In villages & under developed areas , where construction was mostly on locally available square rubble masonry in mud mortar or lime mortar had converted into rubble & there-by there was very heavy causality during natural calamity.

LESSONS LEARNT The Challenges, which are responsible for heavy losses occurred during various earthquakes, are listed below: -

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(a) Lack of efficient organizational set up, particularly at state level.

(b) Lack of effective Administration to deal with Earthquake issues from all angles.

(c) Apathy on the part of top Bureaucracy & key political Elite.

(d) Lack of effective leadership & communication to deal with disaster issues.

(e) Total Lack of Co-ordination among all Agencies engaged in Relief works.

(f) Lack of positive interest among Universities, Research institutes & UN system in Dissimination of Disaster Management knowledge, based on Research, practical Experience & observations.

(g) No attempt by Govt. & Urban authorities to make safe buildings to withstand the effects of Earthquake (as already brought out earlier).

(h) Lack of utilization of Multi-national Assistance available through UN system.

(i) Lack of action in Right Earnest: Mere paper planning to impress the press & people.

(j) No sincere efforts & attention to post Recovery Earthquake other disaster victims.

(k) No sincere effort to keep up the morale of the community, so that they can take care of themselves.

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In addition to above, other lessons learnt from various earthquakes, regarding construction of buildings, are brought out below: -

(a) The construction of multi-storied buildings with open space (in earthquake prone areas), meant for parking vehicles will need reconsideration. Such buildings will require particular care in Architectural/Structural (including foundation of the building) & proper construction detailing, which has often been ignored. The mandatory provision of some shear walls in stilt portion, to avoid similar destruction, needs proper deliberations.

(b) Zoning & provision made in latest IS code (based on which design of building being made) already reviewed in design considering the lessons learnt in intervening period. is to be strictly followed

(c)

As no place in India is now deemed to be totally free from earthquake hazard, the buildings are to be designed/ checked according to latest Code and there has to be new awareness about some earthquake Engineering practices not only for the New construction, but also for the existing buildings, where some sort of

retrofitting/rehabilitation may be essential for facing future divesting earthquake.

(d) The banning of construction of load bearing random rubble heavy structure requires serious consideration, particularly in severe earthquake Zones.

(e)

To ensure quality of original construction as per various Codal provisions/ Building Bye-laws & proper maintenance of building during passage of time, as only well
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designed, built & properly maintained buildings have a chance of surviving a major earthquake at any point of time.

(f) Training of building professionals including inclusion of subject of disaster management at various levels requires serious consideration. Further, involvement of qualified structural engineers in designing/construction is necessary for avoiding similar type of disaster in future. PROPOSED STRATEGY & RECOMMENDENDATION FOR DISASTER MANAGEMENT Based on the study carried out after analysing various aspects, the following Measures are recommended: -

(a)

A comprehensive National Policy framed on disaster management after considering the various recommendations made by the HPC &

suggestions made in this paper, is to be implemented on ground. The culture of preparedness, quick response, strategic thinking & prevention, as brought out by the HPC, should be evolved and implemented on ground. The Centres role in combating disasters needs to be enhanced.

(b)

A separate Union Ministry for disaster management, which should adopt Pro-active approach is to be established. Similarly at the state level, a Separate Department of Disaster Management & Mitigation needs to be Established.

(c)

The Home guards and NCC personnel should be trained in disaster Management, along with some Armed forces personnel & local
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(d)

Disaster management aspects like preparedness, community response etc Should form part of curriculum in primary, high schools and colleges. Education and training in disaster prevention, preparedness and

Mitigation is necessary for minimizing effect of disaster.

(e)

Identification and net- working of existing Centers of Excellence is to be done, so as to enhance disaster prevention, reduction and mitigation activities. A National Institute for Disaster Management (NIDM) needs to be

strengthened as a centre of excellence. NIDM is to be geared up towards emerging as Centre of Excellence at National and International level.

(f)

Involvement and active participation of the community in combating disaster needs to be increased. The local bodies must be given additional role in this regard. The the Disaster prone

local level plans need to be prepared in detail and rehearsed in areas; all taking into state

Govt. should reorganize their disaster management mechanisms Maharashtra model. Panchayat and village disaster

account the

Management communities should be established.

(g)

A formal mechanisms to co-ordinate activities of NGOs to be evolved, to avoid duplication of work and formalized, as has been done US model for Disaster relief operations.

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(h)

Alternative means of communications/stand-by communication System given high priority.

should be

(i)

There is an urgent need for careful study of all

existing structures

in

Earthquake prone areas specially, based on various Indian Codal requirements and identifies the structures, which do not conform to Engineering requirements.

The strengthening measures are to be incorporated for all future constructions and also for existing structures, without any further loss of time.

(j)

The use of

Indian

Standard codes of practices & building byelaws in

the Construction of Government & private buildings is to be made compulsory and enforced properly. The hazard zonation map of the country need to be upgraded regularly.

(k)

To establish a creditable R & D organizations, under the new Ministry develop modern mechanisms, in the field of disaster management. Further, recommended by eleventh Finance Commission, National Centre

to as for

Calamity Management (NCCM) should be set up at the earliest.

(l) The Central Govt. should publish & circulate all the lessons learnt in the Post disaster, to the states that are prone to specific disasters. This can be NDMA. done by

(m) The existing warning systems, including infrastructure in disaster prone should be improved.

areas

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(n) The Armed Forces being a major player in Disaster Management in India, need to look inwards and formulate their own response mechanism including procurement of State of Art equipments and skill improvement, to maximise the utilisation of their resources and effort. Further, there should be synergy between Armed Forces and Civil Administration (Including NGOs) towards providing efficient response.

CONCLUSION
Natural Disasters strike countries- both developed as well as developing. Man-made disasters occur more in the developing world than in the developed, be it civil strife, industrial accidents, pollution by hazardous substances, or infra-structural collapse. The frequency of natural disasters is many times higher in India than in many other countries of Asia or Africa. India has a mix of diverse topography, terrain, extremes of climate & an active ocean environment. The mix creates conditions that are conducive for some of the worst natural disasters including divesting cyclones, calamitous earthquakes & unchecked floods. As if these are not enough, droughts affect various parts of the country with amazing regularity. All disasters result in disruption of development projects either directly or through diversion of crucial financial allocation, which gets used up in restoration efforts, in addition to untold sufferings of the effected peoples. India is trying to develop elaborate system to combat the disasters. HPC, which was formed by Govt. of India in 1999, in its vision for a system of Disaster Management in India deliberated over in-numerable issues & has come up with a clear set of recommendations. It not only outlines the work needs to be done, but also the roles & responsibilities for activities that need to be undertaken on an immediate, medium & long term basis for specific tasks. The vision of HPC was to create a disaster free India, through the confluence of culture of preparedness, quick response, strategic thinking & prevention. Now implementation of various

recommendations made by the committee is to be done in right earnest at the earliest. In addition, we need to learn from experiences of other countries. The various measures recommended in this study are an absolute necessity, if we want to bring more professionalism & effectiveness in our
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system to combat disasters and to reduce impact of natural disasters.

Now a dedicated

organization NDMA is already working, which needs to be strengthened further and the centre should assumes more responsibility, so that we would be able to fully cope with the challenges posed by the effects of disasters in 21st century. There is an urgent need of nationwide mass awareness generation activities as a foundation layer of earthquake & other disaster preparedness in the country, so that the impact of disaster can be reduced substantially. REFERANCES

1. High Powered Committee on Disaster Management Report (2001) Ministry of agriculture, Government of India, Oct. 2001.

2. National Disaster Response Plan (2001) Ministry of agriculture, Government of India, Oct. 2001.

3. Culture of prevention (1999) by

Sinha Anil & prof. Sharma Vinod Kumar, Natural

Disaster management Division, Government of India Publication.1999

4. IDNDR-Indian Experiences & Initiatives (1999) Ministry of agriculture, Government of India, July 1999.

5. Bhatacharjee J (2001) Earthquakes effect on various types of Buildings -Lessons learnt from recent earthquake in Gujarat in Indian Building Congress (IBC) National Seminar on Earthquakes on Built Environment, at New Delhi, 24-26 May 2001.

6. Internet; NDMA, NDM, G of I; FEMA, USA, EM, Australia.

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