8. Training module on planning for disaster preparedness and mitigation

Definition of disaster

A disaster is any event, natural or man made, which threatens human lives, damages private and public property and infrastructure, and disrupts social and economic life.

Classification of disasters

Disasters can be classified by nature, timing, predictability, response time and type of impact.

Table 10.1 Disasters according to timing and predictability

Table 10.2 Disasters according to response time

Table 10.3 Disasters according to impact

Table 10.4 Impact of disasters on different sections of rural people

Table 10.5 Natural disasters in India

Disaster management

Natural disasters cannot be prevented, but their impact on people’s lives can be reduced to a considerable extent. Disaster management covers all aspects of preventive and protective measures, preparedness, rescue, relief and rehabilitation operations. It has three phases:

1. Impact phase: This has three stages.

Pre-impact/response

• Forecast
• Early warning
• Preparedness
• Tracking/monitoring approach of disaster
• Alertness/evacuation.

Impact

• Close monitoring of impact; establishing emergency communication; deploying rescue teams; medical support and other life-saving activities. Supply/air dropping of food, drinking water and essential items.

Post-impact

• Medical care
• Food, clothing and shelter for rescued people
• Estimating loss of life and property
• Disposal of bodies/animal carcasses, prevention of epidemics
• Repair and restoration of essential services/infrastructure.

2. Relief and rehabilitation phase

• Temporary shelter/drinking water/food/clothing/minimum household utility goods for victims
• Repair of roads, electricity and communication networks
• Salvaging damage to agriculture/distribution of seeds, fertilizer, etc.
• Restoration of health/educational facilities or temporary alternative arrangements
• Distribution of ex-gratia relief for those killed and compensation for the losses
• Building durable houses for victims.

3. Long-term mitigation and preparedness phase

This is a crucial period and devoted to long-term development of disaster prone areas to minimize the impact of the hazard and prepare the people as well as all supporting systems in the area to face future disasters.

Long-term planning for preventive measures

• Soil conservation/afforestation in river catchments
• Planting shelter belts/mangroves in coastal areas
• New cropping patterns to minimize crop loss
• Prevent human settlements in low-lying areas, relocate settlements to safer places.

Long-term protective measures

• Safe construction for houses/strict implementation of safety codes
• Hazard-proof roads, bridges, canals, water reservoirs, power transmission lines, etc.
• Flood-protection measures
• Improvement of warning systems
• Organizing people for counter-disaster activities.

Role of Panchayati Raj bodies in local disaster management

While the government has the duty to help people in distress, the latter have a greater responsibility to help the government help them to cope with disasters. Panchayati Raj bodies are the most appropriate local institutions for involving people in natural disaster preparedness. Panchayati Raj bodies have a role to play in all phases of disaster management.

Panchayat role during first phase of natural disaster management

Gram Panchayat or village level

• Convene meetings to ensure timely warning
• Update information on civic amenities/population, etc.
• Select safe locations for people and livestock
• Arrangements to evacuate the elderly, the disabled, children and women
• Medical and sanitation facilities at relief camps
• Disconnecting power lines during high winds/gales; storing foodgrain, drinking water, etc.

Block/Mandal Panchayat

• Supervise preparedness of Gram Panchayats (GP)
• Consolidate village-level information on items listed under GP
• Assessing preparedness of: primary health centres/evacuation arrangements, etc.
• Engineering staff at the Block/Mandal level should repair drainage/canal/roads, etc.
• Contact ex-army/security forces personal/volunteers to organize task force for assistance
• Procure and keep ready rescue material, including boats
• Function as link between district and village-level counter-disaster activities.

Zilla Panchaya or district level

• The District Collector/CEO should convene a meeting of all District Heads of sectoral departments and ZP members before the start of likely cyclone periods (May to June & Oct. to Nov.)
• All concerned departments to take up necessary repair and maintenance and related works for preparedness
• Organize ‘Task Forces’ at district, block and village levels
• Identify NGOs useful in providing assistance during disasters
• Check inventories of items required at short notice for rescue and relief operations
• At first warning, call meeting of Crisis Management Group (CMG) and alert blocks/villages
• All CMG members should be asked to keep their personnel in full preparedness
• District Collector should be CMG Leader and establish a control room managed by senior officers round the clock during the crisis.

Panchayat role in rescue and relief before and during natural disaster impact

Gram Panchayat or village level

• Set up temporary shelters/relief camps after initial warning/store food and water for people/livestock
• Evacuation of people and livestock should start immediately after final warning
• Keep rescue volunteers and task forces ready
• District/block medical/relief teams may be asked take position at strategic points and coordinate with village volunteers/task forces
• Organize veterinary aid teams for taking care of livestock and removal of carcasses
• Disposal of dead bodies and measures to prevent likely epidemics
• Assessing loss of life, livestock and damage to farming, property, etc.

Block/Mandal Panchayat

• Identify vulnerable areas and send task forces/volunteers to supervise safety measures
• Evacuate people from these areas and help GPs in organizing relief camps
• Arrange for emergency communication through police wireless/ham radio, etc.
• Arrange supply of food and other items to relief camps in adequate quantities
• Supervise rescue and relief activities with district-level officers
• Inform CMG in case help needed from police and defence forces
• Assist armed forces in rescue and relief operations
• Supervise rescue and relief and coordinate with various agencies including NGOs.

Zilla Panchayat or district level

• Monitor situation, identify blocks and villages most likely to be affected and issue warnings
• Activate control room and keep a full watch on the situation
• Arrange emergency communication with the help of police wireless/ham radio, etc.
• Put CMG on the job of assisting block and village Panchayats with counter-disaster steps
• Arrange transport for evacuation of people and livestock
• Arrange for temporary shelters/relief camps
• Seek assistance of the armed forces if necessary
• Monitor rescue and relief operations at village and block levels
• Assist lower panchayats in mobilizing task forces/volunteers/NGOs for rescue and relief.

Panchayat role in reconstruction and long-term mitigation planning

Gram Panchayat or village level

• Assist in identifying victims for compensation, and then in its distribution
• Formulate reconstruction plans for houses, community buildings, roads, etc. within GP jurisdiction with the assistance of technical departments at block and district levels
• Enforce minimum specifications for safe construction
• Help district and block level organizations in arranging awareness camps for management and mitigation of disasters and ensure participation of the villagers
• Organize village-level task force/volunteers and train them in counter-disaster measures
• Assist in supervising and monitoring reconstruction and development projects
• Encourage local people to insure assets/livestock, which should be mandatory for those who can afford. Seek government help for those who are too poor to afford insurance.

Block/Mandal Panchayat

• Assist in rehabilitation, repair and reconstruction
• Assist gram panchayats in identifying victims for payment of compensation and in its distribution
• Prepare village and block-level mitigation plans; consolidate/integrate these with the block plan
• Enforce minimum safety specifications for construction
• Assist in long-term mitigation planning and its integration with block/district development plans
• Supervise and monitor reconstruction and long-term mitigation projects implemented by GPs and Block Panchayats.

Zilla Panchayat or district level

• Planning and implementation of rehabilitation, repair and reconstruction
• Compensation for loss of life, property, etc.
• Hazard and vulnerability mapping
• Anti-disaster measures to be integrated in all development projects
• Special funding to use disaster-resistant construction technologies in vulnerable areas
• Supervision of all construction and developmental activities.

Contributed by B. K. Thapliyal, Prof. & Head, Centre for Disaster Management & Rural Reconstruction (CDM & RR), National Institute of Rural Development (NIRD), Hyderabad, India.