 TCP/IND/6712 Training in Sea Safety Development Programmes
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TCP/IND/6712 Training in Sea Safety Development Programmes
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2.2 Cyclone forecasting, Cyclone Warning Systems and Evacuation
2.5 Matters relevant to the effective implementation of the project
Following the swift approval of TCP/IND/6712, Training in Sea Safety Development Programmes, the Project Operations Officer of the FAO Regional Office for Asia and the Pacific requested an FAO staff member to visit India to check on all matters relevant to the effective implementation of the project. The technical division concerned (FIIT) had previously expressed considerable misgivings about the project.
All matters relating to disaster preparedness and damage mitigation are the responsibility of specified Federal, State and District Authorities who are also responsible for the coordination of all such activities. It is therefore of concern that the project document was not developed with reference to these authorities. Following discussions with all concerned and available personnel, and following detailed investigations within the project area, the target groups and main activities of the project are clarified and elaborated to reflect the prime and distinct causes of loss of life during the cyclone.
Additional training activities are proposed for which it is recommended an International Consultant Naval Architect is recruited for a period of one month.
Amongst several desired prerequisites to project implementation is the necessity to obtain a number of clearances and authorizations for the construction of two radio towers, and subsequent installation of radio stations and vessel mounted radio equipment. It is recommended that the National Consultant (Radios) be recruited as soon as possible to expedite the necessary clearances, guide procurement and install the radio communications equipment. To achieve these activities, his consultancy should be increased from 5 to 6 months. The project duration should also be extended by the time required to obtain these clearances, which was estimated as being about 3 months. It is recommended that the Team Leader should commence his first mission in September 1997, conditional on the completion of the above and a list of further prerequisites.
A proposal to co-host (GOAP/FAO) a workshop entitled "Measures to Reduce Loss of Life amongst Fisherfolk during Cyclones" was enthusiastically endorsed by the State Commissioner of Relief, who will commit resources to ensure its effectiveness and chair a task force committed to the organizational aspects. It is proposed to hold the workshop in Visakapatnam in December 1997, though this remains subject to the approval of the Ministry of Agriculture, Delhi. It is recommended that the Project Team Leader should make an additional visit to India to participate in the workshop.
As a result of a request for assistance by the Government of India following the cyclone which occurred in November 1996 in the State of Andhra Pradesh, an FAO national consultant drafted a TCP proposal which was subsequently approved (TCP/IND/6712 Training in Sea Safety Development Programmes). The FAO Regional office in Bangkok, having responsibility for operation of the project, requested an initial backstopping visit by an FAO staff member to discuss matters relevant to the effective implementation of the project and ascertain prerequisites for project inception. (TOR are attached as per Annex 1). Travel to the project area provided the opportunity to review the relevance of the objectives and activities of the project document.
The coastal area of East Godavari District (Andhra Pradesh State) is characterized by the delta of the Godavari River, with low lying plains, many estuary islands, poor roads and communications, highly fertile land, and extreme vulnerability to flooding as a result of the storm surges and rain induced by cyclones (see Map of Project Area, Annex 3).
Due to the fertile nature of the Godavari River delta, East Godavari District is the most densely populated District in the whole of Andhra Pradesh. Furthermore, the population density of the Konaseema area (the coastal strip worst effected by the cyclone) is, at 800 people per km2, more than double that of the District. The level of literacy (42%) measured at state level is amongst the lowest in the whole of India. Within the more remote fishing villages, it is probably far lower. Being a delta, it is very flat and little land is higher than 2 metres above sea level. During the storm surge resulting from a severe cyclone, sea level is increased by between two and four metres.
A report by the Indian Meteorological Department (IMD) notes that of all natural disasters, cyclones account for about 64% of lives lost. The major causes of cyclone damage are strong winds, storm surges and torrential rains. Of these, the most destructive phenomenon is the storm surge, which accounts for more than 90% of loss to life and property.
From data supplied by IMD, the frequency of severe cyclones crossing the coast of Andhra Pradesh is estimated at about one per year. Given that the width of the destructive path of the cyclone is about 30 km, and the length of the coastline is about 1000 km, it would seem that a given location will be seriously affected on average once every thirty or so years.
A cyclone was detected early on 5 November by IMD, and warnings were communicated to the concerned State and District Authorities. The cyclone followed a straight Westerly course, crossing the East Godavari River delta between 2000 and 2200 hours on 6 November (see cyclone track November 1996, Annex 4). Fishermen reported the sudden arrival of the cyclone, and the lack of normal natural warning signs (i.e. cloud and rain). The final dissemination of warnings by bicycle messengers in the most remote areas did not take place due to the speed of advance of the cyclone. It was reported that in some less remote areas, the messengers issuing the warnings were met with derision by the fisherfolk. Maximum wind speeds reached 220 km/hour, and the storm surge was reported as 2.2 metres in height.
From information supplied by the Department of Fisheries, approximately 1435 fisherfolk were reported as dead or missing (assumed dead) in the Kakinada, Rajahmundry and Amalapuram Divisions of East Godavari District. Of these, 569 were reported to have been lost while fishing in mechanized boats at sea, while 830 fisherfolk were lost while carrying out shrimp seed collection and other shore-based activities in areas remote from the villages. The causes of death in these two activities are of a totally distinct nature, wherein the former were lost at sea due to high winds and heavy seas, and the latter through the storm surge on land. The remainder (36) died largely due to collapsing houses and falling trees.
Of particular significance is the number of fisherfolk (approx 10,000) who survived the storm surge whilst sheltering in the two worst affected villages (Bhairavapalem and Balusutippa). Their survival cannot be attributed to intervention by the concerned State or District authorities. The four cyclone shelters in these two villages were deemed unsafe by the fisherfolk and were not used. Fisherfolk took refuge in the few recently constructed houses built of reinforced concrete; children were placed on high shelves while adults stood with water up to chest level. None of the official written or verbal reports provided to the author acknowledge the fact that the storm surge passed through the area at low tide (2235 hours). Had the cyclone occurred 6 hours earlier or later, it is estimated that many of these 10,000 fisherfolk might also have been lost.
Fisherfolk engaged in seed collection carry out their activities in locations remote from their villages, living in temporary camps on the beaches of the islands in the River Godavari estuary. As the storm surge passed through, no form of shelter was available. Shrimp seed collection is reportedly a diminishing form of income generation due to the success of hatcheries in the vicinity.
The Fisheries Development Officer with responsibility for Bhairavapalem reported that 25 mechanized fishing vessels (out of a local fleet of 80) were at sea on the day of the cyclone, and on receipt of the normal radio warnings had delayed before heading for the nearest land because they did not anticipate bad weather, and because the fishing was good. As the weather deteriorated, the vessels simply aimed for the shore. No lives were lost. Photographs taken by the fishermen showed the extent of damage to the vessels, reportedly taken up to 2 km inshore.
Fishery officials and representatives of fishermen operating the 400 strong Kakinada based fleet of mechanised boats reported the loss of 110 boats and 569 crew members. Most of the affected vessels had departed Kakinada several days before the cyclone, operating along the coast to the north and south of Kakinada though not beyond the 70 fathom line (typically 35 km offshore and well within range of All India Radio (AIR) transmissions). Some vessels, though not the majority, carry transistor radios (but no VHFs) and had heard the warnings, but the fishing was reported as good. It was also reported that there was heavy radio interference with the weather forecasts.
From the 110 boats lost, about 100 survivors swam or drifted to shore. From them it was possible to ascertain that boats had either capsized or foundered. Few liferafts or lifejackets (if any) were carried. Survivors described how they had been able to hold on to insulated hatches. On a separate occasion, an official noted that liferafts are not normally carried because hatch covers serve that purpose - without appreciating that hatches should be battened down in bad weather to reduce the risk of sinking or foundering. Survivors noted that while they had drifted for up to 36 hours before landing ashore, a proportion of the 569 lost might have been saved had there been a timely Search and Rescue (SAR) response.
Fishermen representatives noted that although in the neighbouring state of Orissa, mechanized boats tended to follow the tradition of no fishing during the months of March - May, no such tradition existed in Andhra Pradesh.
The State Department for formulating, controlling, monitoring and directing measures for disaster preparedness and for organizing rescue, relief and rehabilitation is the Revenue Department of the State Secretariat. Cyclone forecasting is generally the responsibility of the IMD while cyclone warning dissemination is the responsibility of the State Government. A State Level High Power Standing Committee (SLHPSC) functions under the Chairmanship of the Chief Secretary, having more than 50 members representing State Departments, Army, Navy and Airforce, Red Cross, Telecommunications, Railways, Irrigation, Food Corporation, etc. Secretary to the Committee is the Commissioner of Relief. On receipt of a cyclone alert from IMD, it is communicated to senior officials of the SLHPSC and repeated throughout the State to Districts and Divisional Officers, as well as All India Radio (AIR), Police, Port Authorities, the Forces, etc. The procedures for warning dissemination as well as subsequent actions are set out clearly and in great detail in the Cyclone Contingency Plan of Action issued by the Revenue Department.
In Delhi, during a meeting with IMD, the Assistant Director General posed the rhetorical question that if the cyclone forecasting and warning dissemination systems were effective (as was believed to be the case), why were so many lives lost during cyclones. In this respect, the IMD is to be commended for commissioning a study "Human Response to Cyclone Warnings" which was carried out in association with an NGO, and which concluded that education concerning appropriate precautions would be of value in the event of a cyclone alert and that means of receiving messages of cyclone warnings at sea should be provided. It also concluded that sufficient cyclone shelters exist in most places, and are accessible although this conclusion is not consistent with the findings of this report with respect to remote though densely populated coastal areas. The IMD report has not been published or widely distributed.
According to a report from the well respected Economic Times newspaper, "India has a very good and unique cyclone warning system based on satellite synoptic observations and a network of coastal radars coupled to a network of S-band receivers. The receivers can be selectively activated as soon as atmospheric conditions indicate development of a cyclone which gives a 48-hrs warning. Siren signals are sounded and radio warnings in local language are broadcast. In case that a cyclone changes its course, this procedure is re-directed to the coastal area to be affected". The Collector and District Magistrate1 reported that in fact the system did not operate well; DOF were not aware of its existence.
Following the cyclone of 1990 which caused heavy damage in Krishna District, a scheme was set up by the Department of Fisheries in Machilipatnam to alert artisanal fishermen of approaching cyclones through a VHF radio system. Having a budget of 1 crore rupees (approx US$280,000), the project set out to provide radio warnings with a purpose built radio station, and the distribution (without cost) of 125 handheld walkie talkies. The project has not been a success due to problems with the transmitting power, and lack of current to the transmitter. Only about 55 sets have been donated to date. To assist with operating costs, DOF has recently imposed a monthly charge of Rs 50 to all radio set recipients.
The Collector and District Magistrate was aware that there were only 140 cyclone shelters in his district, and acknowledged that this was too few. Furthermore, he appreciated that due to the lack of roads and bridges, many villages were not readily accessible. Also, that in the case of carrying out a total evacuation procedure, he would not have access at short notice to the required numbers of buses and lorries to transport tens of thousands of villagers. In any case it is suggested that many of the roads to the less accessible (and more vulnerable) villages, being rather narrow, and placed atop the man made bunds, would become blocked by the traffic transporting the evacuees.
It is therefore perhaps not surprising that at the time of my visit, he initiated high alert procedures, including a ban on mechanized fishing, as a result of the satellite TV and other coverage of the cyclone heading north through the Bay of Bengal towards Bangladesh, even though at that time, it appeared unlikely to constitute a threat to the East Coast of India. By issuing such a warning, he appeared not to be following the prescribed procedure whereby a report should have been issued from either or all of the IMD Delhi, IMD Visak, the Relief Commissioner the Andhra Pradesh Secretariat. While conceding that such actions could diminish the effectiveness of cyclone warnings, he considered a precautionary approach should be favoured over inaction.
Since the project is primarily of a "pilot" nature, a base line survey should be undertaken to ensure a comprehensive understanding of the current demographic situation within the project area, and to provide a basis for future evaluation and impact assessment. It should be noted that adjustments may be made to the findings of this report in the light of the survey.
The project was discussed in detail with Dr Jacob Raj, Executive Secretary of the India Rural Reconstruction and Disaster Response Service, and a terms of reference (attached as Annex 5) were drawn up. This NGO has experience in the setting up of Community Task Forces for disaster mitigation in Krishna District (south of East Godavari), and has close links with the University of Delft in this respect. Dr Raj expressed interest and a willingness for his organization to carry out the baseline survey.
FAO had proposed to hold a workshop to review the results of the base line survey and identify strategies leading to improved safety at sea. The Commissioner of Relief fully endorsed the proposal, and suggested that the scope and participation be expanded (see Annex 6). The Government of Andhra Pradesh will make a substantial financial contribution, while the TCP will commit funds from the training budget line to ensure a regional dimension. Further to discussion, it was agreed that the workshop should review the effectiveness of, and attempt to identify areas for improvement in:
· Cyclone Warning Dissemination Systems for fisherfolk
· Evacuation and other emergency measures which reduce loss of life amongst fisherfolk
· Search and rescue procedures
The burden of organization of the workshop will be considerable, and in this respect, the Commissioner of Relief made the welcome proposal that he would chair a task force having that function. He noted he would also draw the workshop to the attention of the State Level High Power Standing Committee for Disaster Preparedness.
Subject to clearance by, New Delhi, the workshop will take place at Visakapatnam in December 1997. The Workshop will be regional in its scope, and will be attended by TCDC experts from the Bay of Bengal countries. It is recommended that the Project Team Leader should make an additional visit to India for three weeks to ensure that all final arrangements are in place, to participate in the workshop, and to write the workshop report. At that time, he will also meet with project staff and review project progress. It is also recommended that FAOR Delhi write to the Ministry of Agriculture, advising them of these events, and requesting their clearance.
As noted earlier, all activities related to State interventions required as a result of natural disasters are coordinated by the SLHPSC which meets regularly at State level; the Member-Secretary to this committee is the Commissioner of Relief. Coordination and direction of activities at District level are under the charge of the Collector and District Magistrate.
The project contains a number of activities (and it is envisaged that more will be added during execution) which concern the Committee and are within the scope of the Commissioner of Relief and the Collector and District Magistrate, including:
· improvements to the storm warning advisory system
· improvements to the broadcast of marine weather forecasts and storm warnings on commercial radio stations
· establishment of storm safety committees at participating fishing villages
· installation of two radio stations (which in itself requires authorization from at least 5 distinct bodies)
· installation and licensing of VHF radios on vessels
During meetings with the State Commissioner of Relief and the Collector and District Magistrate, it was noted that the TCP project proposal had been formulated without reference to their respective offices. While clearance by these offices of the majority of activities is not required, it was agreed that in future they would be kept closely informed of project activities through regular meetings with project staff and concerned officers at State and District level. During other meetings, it became apparent that a number of authorizations would be required in connection with the erection of the radio tower, installation of a radio station, as well as for the installation and operation of VHF sets on mechanized fishing vessels.
The Collector and District Magistrate who had been only recently appointed (following the transfer of his predecessor shortly after the November 96 cyclone) was also unaware of the project, and particularly requested that project activities be dovetailed with Regular District Administration.
The proposal calls for the nomination of two national consultants (recruited by FAO), one of whom is to act as the National Project Director. Furthermore, this consultant is to be recruited for a period of five months over the 12 month duration of the project. Since this situation could lead to implementing and administrative difficulties, the Fisheries Development Commissioner, Delhi, agreed to nominate the Director of Fisheries, Andhra Pradesh for the post of National Project Director.
The project HQ will be in the Fisheries Terminal Organization of the Kakinada DOF Office. It is close to large numbers of mechanized and traditional fishing craft, and will be the site of one of the two radio stations. It is approximately 11/2 hours traveling time from Bhairavapalem and 31/2 hours from Balusutippa. It was confirmed that the facilities listed under section VI of the project document (Government Contribution) will be provided i.e. secretarial assistance, telephone, fax and office space etc.
The project document contains a number of references to monitoring, reporting and evaluation without sufficient indication of the recipient of some of these reports. It is suggested that this matter be reviewed by the team leader.
Following senior level meetings with the three main authorities concerned with cyclone forecasting and warning dissemination (i.e. IMD, State Commissioner of Relief and the District Collector and Magistrate) as well as a visit to the areas most badly effected by the November 96 cyclone, it is possible to make a preliminary assessment of measures which are likely to be effective in reducing loss of life amongst fisherfolk. The assessment is put forward below not as a recommendation, but is suggested for further consideration by the concerned authorities as well as by the Base Line Survey mission. Selected measures have been included in an indicative workplan which will be reviewed by the Team Leader.
Assistance measures to fisherfolk in the project area concerning cyclone disaster management must recognize the distinct circumstances of the two major groups where heavy loss of life occurs, i.e. fishermen at sea in mechanized fishing vessels, and fisherfolk operating on land and in small traditional boats in the estuaries. Measures should also take into account the low frequency of severe cyclone occurrence (roughly once every thirty years for a particular location), low life expectancy, and thus possibly only a vague recollection of the event by inhabitants of that location.
In the event of a cyclone passing over a coastal area, loss of life to fisherfolk communities can be reduced either through evacuation or protection (i.e. shelter in well designed and constructed buildings). The problems of evacuating an area characterized by many estuary islands, few and narrow roads and poor communications, and high population density are clear, and are further exacerbated if the majority of that population does not want to be evacuated. Evacuation would only be feasible if the exercise commenced 48 hours prior to the onset of the cyclone. But at that time, the precise point at which the cyclone will strike is not known (the width of the cyclone belt of destruction is between only 15 and 50 km and it's path can be erratic, (see cyclone track December 1996, Annex 7), and thus the area of evacuation must be spread wider. There still remains the problem of evacuating large numbers (though widely dispersed) of fisherfolk living in makeshift camps beyond even the remote villages.
The populations of Bhairavapalem and Balusutippa did not evacuate their villages, yet survived through taking shelter in a few good quality houses. There is every reason to believe that fisherfolk working in more remote areas, assuming that they understood danger was imminent, could have taken refuge in cyclone shelters, had such shelters existed within the vicinity. Cyclone shelters in the villages visited were in a poor state of repair, and were not used. The extreme reluctance of fisherfolk to evacuate, and thus leave their homes, boats, fishing gear, stores and livestock must be taken into consideration. Thus measures mentioned here dwell on issuance of clear and readily comprehensible warnings, the provision of safe shelter and means of rapid access to those shelters, as well as on the improved design, construction and equipment of mechanized fishing vessels.
· The response by fisherfolk to cyclone warnings forms an important component for damage mitigation. Clear and comprehensible information about the nature of cyclones, forecasting and warning dissemination to fisherfolk through extension workers, TV programmes and radio messages should be provided. Training to permit fisherfolk to understand the cyclone forecasts seen on BBC and CNN satellite TV (which were noted as being installed in these remote villages) might be of value.
· Provide radio cyclone warnings through VHF transceivers to mechanized boats at sea and to community leaders/village elders, with particular emphasis on language (dialect) and simple format. It is probable that two-way communications might be employed to emphasize the gravity of the situation.
· Improve the standard of construction, maintenance and safety of mechanized fishing vessels and equipment, particularly with regard to stability and watertight integrity through the provision of training to designers, builders and operators of these vessels. Provide such craft with liferafts and lifejackets.
· Investigate the use of "Verry Pistols" for use by community leaders/village elders to alert fisherfolk remote from the villages
· Increase number of cyclone shelters, selecting strategic sites to facilitate access by fisherfolk working in very remote areas. Improve their design and standard of construction. Ensure fresh (not saline) water is used in the concrete mix. Promote use of shelters as community centres, schools and hospitals and make villages responsible for their maintenance (costs of maintenance provided by Government).
· Offer appropriate incentives to increase the number of reinforced concrete houses, and particularly encourage the construction of two floor houses, designed to withstand typical cyclone storm surges.
· Promote the motorization of appropriate traditional craft to fast means of passage to cyclone shelters by fisherfolk from remote areas.
· Investigate the possibility of "last minute" cyclone danger warnings by coastguard/air force aircraft dropping flares/smoke/sound warnings whilst overflying the area where the arrival of the cyclone is imminent. Such an exercise by Air Force jets would cost no more than a routine training mission. Given that the cyclone accelerates as it approaches the coast to around 30 km/hour, it should be possible to provide at least 4 hours warning without putting the aircraft at risk (if this need be a consideration). This suggestion was made during several meetings; responses varied from derision to serious consideration.
The project document essentially addresses the issues which are required, and are within the competence of the project staff. However, it is felt that certain aspects could be more specific to ensure maximum effect and eventual impact of the project.
The target group should be more clearly defined as fisherfolk operating from the East Godavari coast in mechanized, motorized and non motorized craft, including fisherfolk involved in shrimp seed and shellfish collection, with particular emphasis on fisherfolk from the villages of Bhairavapalem and Balusutippa, and the mechanized fleet based at Kakinada.
In addition to the activities specified in section III of the Project Document, it is recommended that the following activities (extracted from the proposals of the previous section and subject to revision as appropriate following the findings of the Base Line Survey mission) should be included. A detailed work plan should be elaborated by the Team Leader.
General
· Provide information about the nature of cyclones, forecasting and warning dissemination to fisherfolk through extension workers, TV programmes and radio messages is required. Training to permit fisherfolk to understand the cyclone forecasts seen on BBC and CNN satellite TV (which were noted as being installed in these remote villages) might be of value.
· Provide extra radio cyclone warnings to fisherfolk, particularly to mechanized boats at sea, and also to community leaders/village elders, with particular emphasis on language (dialect) and simple format.
Mechanized fishing boat operators and crew
· Provide VHF radios
· Provide training in installation, maintenance and operation of VHF radios
· Ensure radio operators are issued with licenses
· Generate interest in the use of radios through the transmission of useful and interesting information.
· Carry out training and workshop in improved design, construction and maintenance of vessels and safety equipment
· Provide safety equipment to identified beneficiaries
Land based fisherfolk
· Identify beneficiaries and provide inboard diesel engines and sterngear for motorization of country craft
· Provide training in installation, operation and maintenance of engines
· Identify strategic locations for additional cyclone shelters within the project area
The Fisheries Development Commissioner, Ministry of Agriculture, will nominate the Director of Fisheries, Government of Andhra Pradesh for the post of National Project Director.
At the time of writing, GOI has not yet submitted nominations for other national project staff, and these are awaited. Nominations have been submitted for the posts of two National Consultants, and these will shortly be reviewed by FAO.
It is recommended that an International Consultant Naval Architect be recruited for a period of one month to provide training inputs (TOR attached under Annex 8)
It is recommended that the terms of reference of the National Consultant (Radios) be amended (the duration of the consultancy be extended from 5 to 6 months) to include as follows:
The Consultant will assist the DOF in obtaining all necessary clearances and authorizations concerning the construction of two radio towers, and installation and subsequent transmission of the radio transceivers, both on land and on sea. He will ensure the towers and transceivers conform with National and State Regulations, and will supervise and test the installation of the radio equipment to the complete satisfaction of the competent authorities and the Team Leader. He will determine the appropriate specifications of all radio equipment to be purchased by the project, and obtain preliminary cost estimates from local suppliers.
Prior to arrival of the Team Leader, a number of activities must be carried out:
· Clearance for tower erection and radio shore station required from at least police and fire departments, airports authority, Shore Area Development Authority (SADA - to meet Coastal Zoning Regulations), and the Wireless Planning and Coordination (WPC) of the Ministry of Communications
· Fishing vessel VHF operator licenses from WPC to use certain frequencies with marine band (156 - 162 MHz) - must include channel 16. It is understood that a block application for such licenses may be made.
· Radio towers should be erected.
· Base line survey to be completed
· Renovation of the project headquarters at the port operations terminal, Department of Fisheries. Installation of telephone and fax machine.
Unfortunately, senior staff from the Animal Husbandry and Fisheries were unavailable to assist with clarification of the required clearances, or the likely period required to obtain all necessary clearances and authorizations. This point is currently being clarified by the Fisheries Development Commissioner, Delhi.
It will be noted that the list of prerequisites pertain to the arrival of the Team Leader, rather than to implementation of the project. This is to facilitate in particular the installation of the shore radio stations which, in turn, requires recruitment of a National Consultant (Radios) as well as procurement of equipment. It is understood that such activities (project staff recruitment and equipment procurement) require that the project is in the process of implementation. The National Consultant (Radios) reports that this work should be completed by end August, and thus implies a project extension of three months.
All costs requested from potential suppliers referred to below are for indicative purposes only, and to permit quantities to be included in tender documents.
Radio equipment specifications and costs have been obtained (attached as Annex 9.1).
The outboard motors (OBM) listed under Equipment are not used in the project area, and are considered inappropriate. It is recommended that this item is replaced by
10 HP diesel inboard motors (20 units) for naval motorization.
Engine specifications and costs of appropriate inboard engines have been obtained (attached as Annex 9.2).
Life saving equipment (life rafts, life jackets and life buoys) specifications and cost estimates have been obtained (see Annex 9.3).
Costs provided by suppliers indicated in Annexes 9.1 and 9.3 are high, and it is recommended that these items are purchased following international tender.
It was agreed during consultation with DOF and representatives of mechanized fishing vessel operators that radios and liferafts provided by the project to owners of mechanized fishing vessels should be sold at 50% cost price to ensure commitment and care in installation and maintenance. Funds so collected by DOF/project should be used to provide more of the same equipment.
It is recommended that following approval by FIIT of specifications and indicative costs, the following equipment be purchased through international tender to arrive prior to the arrival of the team leader:
All shore based radio transceiver equipment (60 km range) for two shore stations
50 VHF marine sets, including all ancillary equipment required for correct installation and operation
25 Liferafts/floats
100 Lifejackets
100 Lifebuoys
20 10 HP single cylinder, water cooled diesel engines, complete with sterngear and all standard accessories for installation and operation, as commonly supplied for motorization of country craft in East Godavari District.
An indicative workplan schedule is attached as Annex 10 and should be elaborated and finalized by the team leader in collaboration with project staff, following the findings and recommendations of the Base Line Survey.
· Details concerning the project target group and activities are proposed within the report.
· Project implementation should commence forthwith to allow recruitment of the National Consultant (Radios) to expedite the necessary clearances and install the radio communications equipment prior to the arrival of the Team Leader.
· It is recommended that the terms of reference of the National Consultant (Radios) be amended and extended by one month to expedite both clearances for the construction of the radio towers, and their construction.
· It is recommended that the Team Leader should commence his first mission in September 1997, conditional on the completion of the listed prerequisites.
· It is proposed to hold a Workshop during the project titled "Measures to reduce loss of life amongst fisherfolk during cyclones" in December 1997. Full details are provided within the report.
· With reference to the Workshop, it is recommended that FAOR Delhi should request the Ministry of Agriculture for their clearance, and for confirmation of Government contributions.
· Subject to Government clearance of the Workshop, it is recommended that the Project Team Leader should make an additional visit to India to ensure that all final arrangements are in place, to participate in the workshop, and to write the workshop report.
· It is recommended that an International Consultant Naval Architect be recruited for a period of one month to provide training inputs as described within this report.
· It is recommended that radios and liferafts provided by the project to owners of mechanized fishing vessels should be sold at 50% of cost price to ensure commitment and care in installation and maintenance. Funds so collected by DOF/project should be used to provide additional safety equipment.
· It is recommended that the item of outboard motors for purchase by the project is replaced by 10 HP diesel inboard motors (20 units) for naval motorization.
· It is recommended that following approval by FIIT of specifications and indicative costs, specified equipment be purchased through international tender, to arrive prior to the arrival of the team leader. The balance of equipment may be procured following his arrival.
· Indicative costs provided by suppliers indicated in Annexes 9.1 and 9.3 are high, and it is recommended that these items are purchased following international tender.
· It is recommended that the State Commissioner of Relief and the Collector and District Magistrate should be kept closely informed of project activities through regular meetings with project staff and concerned officers at State and District level. Coordination and dissemination of information regarding project activities should be the responsibility of the National Project Director.
Technical Backstopping mission - FAO/FIIT Sr Fishery Industry Officer
May 1997
Under the overall responsibility of the Director of the Field Operations Division (TCO) and the direct supervision of the Chief, Operations Group, RAPR to whom the staff member will be directly responsible, the guidance of the designated technical and operations officer and with frequent referral to the national authorities directly concerned in the Government Executing Agency, in particular the project National Coordinator, the staff member will
ascertain prerequisites for project inception. He will specifically:
· discuss matters relevant to the effective implementation of the project with the NPD and other responsible project staff;
· visit Delhi and project sites (Trivandrum, Kakinada and outlying villages) with relevant project staff to organize a base line survey to identify the problem areas. The survey will entail a study of the number and categories of fishing boats in use, the nature of fishing operations, types of damage inflicted by cyclones, fishing vessel crew profiles, fishermen' responses to crises at sea, their survival strategies, and their perceptions of strategies for increased safety;
· discuss implementation modalities with representatives from Government and fishers associations, the national fishery and radio-communication personnel, fishing community leaders and fishermen who will be involved in the identification of strategies leading to improved safety at sea;
· assist in the selection of national project staff and consultants;
· assist in specifications of priority equipment requirements;
· draw a detailed project work schedule;
· present a report at the end of the mission, addressed to the project operations officer at RAPA (hard copy together with diskette in Word)
Itinerary
Arrive Depart
Rome 10 5.97
Delhi 11.5.97 14.5.97
Trivandrum 14.5.97 15.5.97
Madras 15.5.97 16.5.97
Hyderabad 16.5.97 17.5.97
Kakinada 18.5.97 19.5.97
Bhairavapalem 19.5.97 19.5.97
Balusutippa 19.5.97 19.5.97
Hyderabad 20.5.97 22.5.97
Delhi 22.5.97 27.5.97
Rome 28.5.97
Persons met
Delhi
Sunil Sud Joint Secretary, Fisheries, Department of Agriculture and Cooperation, GOI
K. Radhakrishna FAO National Consultant
Y. S. Yadava Fisheries Development Commissioner Dept. of Agriculture and Cooperation, GOI
L. Krishna Murty Deputy Director General of Meteorology, India Meteorological Department
A.V.R. Krishna Rao Deputy Director General of Meteorology, India Meteorological Department (Cyclone Warning)
P. Rosenegger FAOR
Renuka Taimni CPO, FAOR
Trivandrum
Vivekanandan Executive Secretary, SIFFS
Paul Calvert Consultant, SIFFS
Rajasekeran Superintendent of Police (Marine Enforcement)
Ravindran Nair Dep. Dir. of Fisheries, Trivandrum
Madras
Chandrika Sharma ICSF
Mr. R. Raja Manickam Joint Director of Fisheries (Marine)
Mr. Duncan King Field Manager,ODA-PHFM
Dr. K. Durairaj Scientist Officer in Charge, Central Marine Fisheries Research Institute (CMFRI)
Mr. R. Neelakantan Rajendran Asst. Director of Fisheries (Regional)
Mr. A.P. Md. Ali (I.P.S) A.I. General of Police, Communication/ Information Officer
Mr. R. Krishnan Dredger Engineer, State Post Office
Mr. A. AMROSE Sr. Fishery Scientist, Fishery Survey of India
Mr. Kee Chai Chong FAO Programme Coordinator, BOBP
Mr. A.D.I Rajendran FAO National Consultant, BOBP
Mr. S.R. Madhu FAO National Consultant, BOBP
Ms. B. Bierhuizen FAO Associate Professional Officer (GIS), BOBP
Dr. Jacob D Raj Prepare (Indian Rural Reconstruction and Disaster Response Service)
Hyderabad
H. S. Brahma Commissioner for Relief
D. Chakrapani IAS Additional Secretary to Govt., Andhra Pradesh Secretariat
N. V. Bhavanishankar Additional Director in Charge, Department
of Fisheries AP
P. Raghu Ram Rantech Engineering Pvt Ltd
Kakinada
J. S. V. Prasad IAS Collector and District Magistrate, East Godavari District
C. H. Krishnamurthy Joint Director (Marine), DOF AP
Captain K Subramanyam Port Officer (also representing MMD),
S. B. Sharma Assistant Director, DOD, Machilipatnam
Y. Subara Rao Assistant Director, DOF, Kakinada
Narashima Rao Assistant Director of Fisheries
B.V. Raghavulu, Assistant Director of Fisheries, Shrimp Culture Project
Y. Subbarao Assistant Director of Fisheries
N. Srinivasa Rao Hydrologist, Asst. Director of Fisheries
A. Satyanarayana Fisheries Development
K. Sita Rama Raju Fisheries Development Officer
P. Rama Kishna Rao Fisheries Development Officer
P. Sri Ramulu Fisheries Development Officer
D. Krishna Rao Fisheries Development Officer
M. Jagannadaa Rao Fisheries Development Officer
Ranga Rao President, Dolphin type Mechanized Fishing Boats Association, Kakinada. Also President of the Trained Fishermen Mechanized Boats Cooperative Society
Voleti Kannaya Secretary, The Sona and Sorrah Type Mechanized Fishing Boat Owners Association
TERMS OF REFERENCE
Base Line Survey (duration 4 weeks)
Under the general direction and supervision of the Chief, Operations Group, RAPR to whom the staff member will be directly responsible, the guidance of the designated technical and operations officers and with frequent referral to the national authorities directly concerned in the Government Executing Agency, in particular the project National Co-ordinator, implementation of the survey will cover the following tasks :
1. carry out a study of the area with the assistance of topographical maps, and investigate the
reasons for the effect being more severe on these villages rather than others. To what extent
has coastal development effected the natural resistance of the topography to cyclone damage;
2. obtain a demographic profile of the villages, with population detailed by gender, age,
education, wealth and occupation. Also numbers, sizes and types of fishing craft ad gear
(not necessarily operated from craft), whether or not motorized. Description of major
distinct population groupings. Normal survival strategies. Effects of motorization.
Traditions of weather forecasting;
3. describe services provided to the villages -education health water electricity phone
extension, etc;
4. investigate the nature of fishing operations, types of damage which occurred fishing vessel
crew profiles, fishermen's responses to crises at sea and on land, survival strategies, and
their perceptions of strategies for increased safety;
5. identify the gender, age and occupation of those dead or missing, as well as a general
description of the exact circumstances of their deaths;
6. investigate the current procedures for cyclone warning dissemination and subsequent actions
which should take place in respect of remote villages. What are the constraints to
evacuation. Evacuation v protection;
7. investigate the warnings actually received in the villages, the channels through which the
warnings were received, the resultant reaction to these warnings, the numbers of persons
evacuated;
8. describe the rescue and assistance services put into place following the cyclone, and their
effectiveness;
9. recommendations concerning improvements of CWDS and measures to decrease loss of life
in these and similar villages;
10. recommendations on choice of beneficiaries (and appropriate terms) concerning
distribution of equipment provided by the project.
The report will include a 3 page summary, and will be provided to RAPR on hard copy and on disk in Word 6 format.
FAO/Department of Fisheries Workshop Proposal : Draft Outline
Measures to reduce loss of life amongst fisherfolk during cyclones
During the implementation of project TCP/IND/6712, a workshop will take place to review the effectiveness of, and attempt to identify areas for improvement in :
Cyclone Warning Dissemination Systems for fisherfolk
Evacuation and other emergency measures which reduce loss of life amongst fisherfolk
Search and rescue procedures
Venue Visakapatnam
Duration 4 days
Dates December 1997
Participants :
Commissioner of Relief (AP, TN and Orissa) 6
IMD Delhi and Visak 2
Department of Ocean Development 2
DOF 10
Coastguard/Military 2
Ports/MMD 2
PWD 2
GOAP 3
World Bank/Chakrapani 2
AIR/Doordeshan 1
Red Cross 1
ODA project 1
FAO HQ/BOBP 2
FAO project staff 3
District Collectors 6
TCDC resource persons * 4
NGOs 5
INGOs 2
Fishermen's representatives 10
Total approx. 60
* Bangladesh, Indonesia, Philippines, Sri Lanka
Workshop Programme - Draft Outline
Cyclones and Cyclone forecasting at National IMD
and State level
Cyclone Contingency Plans and Procedures at Commissioner of Relief
the National and State levels
Cyclone Contingency Plans and Procedures at Collector East Godavari
the National and State levels
A description of the events occurring 6 and 7 National Consultant
November 1996 in East Godavari District Fisherfolk representatives
on land and at sea
CWDS in Bangladesh TCDC Consultant
A description of the events occurring 17 - 20 TCDC Consultant
May 1997 in Chittagong area
Loss of mechanized vessels from Kakinada Fishermens association
Search and Rescue Coastguard/Navy
The fisherfolk of East Godavari -demography FAO Consultant
and fishing operations
Analysis of events occurring 6 and 7 November FAO Consultant
1996 in affected villages
Improvements regarding safety in the design, FAO Consultant
construction and maintenance of mechanized
fishing vessels and their equipment
Cyclone shelters - design, construction, maintenance PWD
and use
The use of radio transceivers at sea and on land National Consultant
for cyclone warnings
Working group discussions
CWDS and Coordination from State to fisherfolk
Evacuation and Protection
The use of radio, safety equipment and SAR
Fisherfolk sea and storm safety committees
Brief presentation of WG activities (max 5 minutes each WG)
Resumption of working groups
Drafting and distribution of WG draft reports
20 min. presentation of WG papers followed by 30 mins. discussion
Finalization, typing and distribution of WG reports
Presentation of main findings and conclusions.
Valedictory and closing sessions
Final report to be prepared by FAO and circulated within one month of end of workshop. FAO reserves the right to edit workshop papers to be included in the final report in the interest of clarity and brevity.
GOAP/DOF Inputs
Overall responsibility, including general organization, coordination and administration (Task force having responsibility to be set up and chaired by the Commissioner of Relief)
Invitations
Meeting room, stationery, O/H projector, video and secretarial facilities
Transport (hotel/meeting room)
Reception at beginning of workshop
FAO Inputs
Contribution from TCP (Training Workshop Budget)
US$
Contribution to GOAP costs 5,000
TCP project staff 3 500
NGO/INGO 3 500
Total 6,000
Costs from FAO HQ
TCDC countries 4 9,000
FAO HQ staff member 4,000
Reception at completion of workshop 700
Total 13,700
TERMS OF REFERENCE
International Consultant Naval Architect (1m/m)
Under the general direction and supervision of the Chief, Operations Group, RAPR, and in close collaboration with the Team Leader and project staff, the consultant will demonstrate measures to bring about improved safety at sea on board mechanized fishing vessels operating from the coast of East Godavari District. In particular, he will lead a training workshop addressing the safety aspects of the design, construction and operation of mechanized fishing vessels and their equipment.
He will also provide training in the correct installation of inboard marine diesel engines supplied by the project into traditional craft.
The report will be addressed at the end of the mission to the project operations group at RAPR on hard copy and on diskette in Word 6 format.
ACRONYMS
AIR Air India Radio
AP Andhra Pradesh
BOBP Bay of Bengal Programme
CWDS Cyclone Warning Dissemination System
DOF Department of Fisheries
FAOR FAO Representative
FIIT Fishing Technology Service (FAO)
GOAP Government of Andhra Pradesh
GOI Government of India
IAS Indian Administrative Service
ICSF International Collective in Support of Fishworkers
IMD Indian Meteorological Department
INGO International Non-Governmental Organization
MMD Mercantile Marine Department
NGO Non-Governmental Organization
OBM Outboard Motor
ODA Overseas Development Authority
PWD Public Works Department
SADA Shore Area Development Authority
SAR Search and Rescue
SIFFS South Indian Federation of Fishermen's Societies
SLHPSC State Level High Power Standing Committee
TCDC Technical Cooperation between Developing Countries
TOR Terms of Reference
VHF Very High Frequency
WPC Wireless Planning and Coordination
Bibliography
Handbook on Fisheries Statistics (1996) Ministry of Agriculture,
New Delhi
Handbook on Fisheries Statistics Commissioner of Fisheries
of Andhra Pradesh 1993 - 94 Hyderabad
Andhra Pradesh - A History of the SIFFS
Coast and it's Development
Cyclone Warnings System IMD
Human response to Cyclone Warnings IMD/CASA
Cyclone Contingency Plan of Action Revenue Dept, GOAP
Notes on Damages/Relief Operations Revenue (Relief) Dept,
during 1996-97 GOAP
The Merchant Shipping Act 1958 Ministry of Law and Justice,
GOI
Navas/Shoo dhoni BOBP
Proposed Andhra Pradesh Emergency World Bank
Cyclone Recovery and Mitigation
Programme
1 The State is administratively divided into Districts, Divisions (Taluks) and Subdivisions (Mandals). The Government's representative at District Level is the Collector and District Magistrate.