National Policy on Disaster Management 2009: Institutional and Legal Arrangements in India, Thesis of Earth Sciences

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NATIONAL POLICY

ON

DISASTER MANAGEMENT

NATIONAL DISASTER MANAGEMENT AUTHORITY

GOVERNMENT OF INDIA

MINISTRY OF HOME AFFAIRS

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National Policy on Disaster Management 2009 Approved by the Union Cabinet on 22 nd October, 2009 NATIONAL DISASTER MANAGEMENT AUTHORITY GOVERNMENT OF INDIA MINISTRY OF HOME AFFAIRS

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• 1 Preamble Contents
  • 1.1.1 The Context
  • 1.2.1–1.2.2 Disaster Risks in India
  • 1.3.1 Paradigm Shift in Disaster Management (DM)
• 2 Approach and Objectives
  • 2.1.1 Vision
  • 2.2.1–2.2.2 Disaster Management (DM)
  • 2.3.1 Approach
  • 2.4.1 Objectives
• 3 Institutional and Legal Arrangements
  • 3.1.1 Disaster Management Act,
    • Institutional Framework under the Act
  • 3.2.1–3.2.3 National Disaster Management Authority (NDMA)
  • 3.2.4–3.2.5 National Executive Committee (NEC)
  • 3.2.6–3.2.7 State Disaster Management Authority (SDMA)
  • 3.2.8 District Disaster Management Authority (DDMA)
  • 3.2.9 Local Authorities
  • 3.2.10 National Institute of Disaster Management (NIDM)
  • 3.2.11 National Disaster Response Force (NDRF)
  • 3.2.12 Mitigation Reserves
    • Existing Institutional Arrangements
    • and the Cabinet Committee on Security (CCS) 3.3.1 Cabinet Committee on Management of Natural Calamities (CCMNC)
  • 3.3.2 High-Level Committee (HLC)
  • 3.3.3 Central Government
  • 3.3.4 Role of Central Ministries and Departments
  • 3.3.5 National Crisis Management Committee (NCMC)
  • 3.3.6–3.3.7 State Governments
  • 3.3.8 District Administration C ontents
  • 3.3.9 Management of Disasters Impacting more than one State
    • Other Important Institutional Arrangements
  • 3.4.1 Armed Forces
  • 3.4.2 Central Paramilitary Forces
  • 3.4.3 State Police Forces and Fire Services
  • 3.4.4 Civil Defence and Home Guards
  • 3.4.5 State Disaster Response Force (SDRF)
    • and Nehru Yuva Kendra Sangathan (NYKS) 3.4.6 Role of National Cadet Corps (NCC), National Service Scheme (NSS)
  • 3.5.1 International Cooperation
• 4 Financial Arrangements
  • 4.1.1 Approach
  • 4.2.1 DM to be in-built in Developmental Plans
  • 4.3.1–4.3.2 National Disaster Response and Mitigation Funds
  • 4.4.1 Responsibilities of the Central Ministries and Departments
  • 4.4.2 State and District Level Arrangements
  • 4.4.3 Mitigation Projects
  • 4.5.1 Techno-Financial Regime
• 5 Disaster Prevention, Mitigation and Preparedness
  • 5.1.1 Disaster Prevention and Mitigation
  • 5.1.2–5.1.3 Risk Assessment and Vulnerability Mapping
  • 5.1.4 Increasing Trend of Disasters in Urban Areas
  • 5.1.5 Critical Infrastructure
  • 5.1.6 Environmentally Sustainable Development
  • 5.1.7 Climate Change Adaptation
    • Preparedness
  • 5.2.1–5.2.3 Role of Central Ministries and Departments, and States
  • 5.2.4 Forecasting and Early Warning Systems
  • 5.2.5–5.2.6 Communications and Information Technology (IT) Support
  • 5.2.7 Strengthening of the Emergency Operations Centres
  • 5.2.8–5.2.9 Medical Preparedness and Mass Casualty Management
  • 5.2.10 Training, Simulation and Mock Drills
    • Partnerships for Mitigation and Preparedness C ontents
  • 5.3.1–5.3.2 Community Based Disaster Preparedness
  • 5.3.3 Stakeholders’ Participation
    • Partnership (PPP) 5.3.4 Corporate Social Responsibility (CSR) and Public-Private
  • 5.3.5 Media Partnership
• 6 Techno-Legal Regime
  • 6.1.1 Techno-Legal Regime
  • 6.2.1 Revision of Municipal Regulations
  • 6.3.1 Land Use Planning
  • 6.4.1–6.4.2 Safe Construction Practices
  • 6.5.1 Compliance Regime
  • 6.6.1 Enforcement
• 7 Response
  • 7.1.1 Approach
  • 7.2.1 Role of the NEC
  • 7.3.1 Role of the Nodal and Other Central Ministries and Departments
  • 7.4.1 Role of State, District and Local Authorities
  • 7.5.1 Standard Operating Procedures (SOPs)
  • 7.6.1 Levels of Disasters
  • 7.7.1 Incident Command System (ICS)
  • 7.8.1 First and Other Key Responders
  • 7.9.1 Medical Response
  • 7.10.1 Animal Care
  • 7.11.1 Information and Media Partnership
• 8 Relief and Rehabilitation
  • 8.1.1 Approach
  • 8.2.1–8.2.2 Setting up of Temporary Relief Camps
  • 8.3.1 Management of Relief Supplies
  • 8.4.1 Review of Standards of Relief
  • 8.5.1 Temporary Livelihood Options and Socio-Economic Rehabilitation
  • 8.6.1 Provision of Intermediate Shelters
  • 9 Reconstruction and Recovery C ontents
    • 9.1.1 Approach
    • 9.2.1 Owner Driven Reconstruction
    • 9.3.1–9.3.2 Speedy Reconstruction
    • 9.4.1 Linking Recovery with Safe Development
    • 9.5.1 Livelihood Restoration
• 10 Capacity Development - 10.1.1–10.1.2 Approach - 10.2.1–10.2.2 National Priorities - 10.3.1 Institutional Capacity Development - 10.4.1 Training of Communities - 10.5.1 Professional Technical Education - 10.6.1 DM Education in Schools - 10.7.1 Training of Artisans - 10.8.1 Training of Other Groups - 10.9.1 Licensing and Certification
• 11 Knowledge Management - 11.1.1 Approach - 11.2.1 Synergetic Application of Science and Technology - 11.3.1 Knowledge Institutions - Communication Technologies (ICT) Knowledge Dissemination through Information and - 11.4.1 Indigenous Technical Knowledge (ITK) - 11.5.1 India Disaster Resource Network (IDRN) - 11.6.1 India Disaster Knowledge Network (IDKN) - 11.7.1 Documentation of Best Practices and Research
• 12 Research and Development - 12.1.1 Approach - 12.2.1 Institutional Arrangements - 12.3.1–12.3.2 Identification of Needs and Promotion of Research
• 13 The Road Ahead - Abbreviations

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Diagrams

Diagram 1 Disaster Management Continuum 7

Maps

Map 1 Earthquake Zones in India 2 Map 2 Flood Zones in India 3 Map 3 Wind and Cyclone Zones in India 4 Map 4 Landslide Affected States 5 C ontents

Preamble

The Context 1.1.1 Disasters disrupt progress and destroy the hard-earned fruits of painstaking developmental efforts, often pushing nations, in quest for progress, back by several decades. Thus, efficient management of disasters, rather than mere response to their occurrence, has in recent times, received increased attention both within India and abroad. This is as much a result of the recognition of the increasing frequency and intensity of disasters, as it is an acknowledgement that good governance in a caring and civilised society, needs to deal effectively with the devastating impact of disasters. Disaster Risks in India 1.2.1 India is vulnerable, in varying degrees, to a large number of natural as well as man-made disasters. 58.6 per cent of the landmass is prone to earthquakes of moderate to very high intensity; over 40 million hectares (12 per cent of land) is prone to floods and river erosion; of the 7, km long coastline, close to 5,700 km is prone to cyclones and tsunamis; 68 per cent of the cultivable area is vulnerable to drought and hilly areas are at risk from landslides and avalanches. Vulnerability to disasters/emergencies of Chemical, Biological, Radiological and Nuclear (CBRN) origin also exists. Heightened vulnerabilities to disaster risks can be related to expanding population, urbanisation and industrialisation, development within high-risk zones, environmental degradation and climate change (Maps 1–4). 1.2.2 In the context of human vulnerability to disasters, the economically and socially weaker segments of the population are the ones that are most seriously affected. Within the vulnerable groups, elderly persons, women, children— especially women rendered destitute, children orphaned on account of disasters and differently abled persons are exposed to higher risks. Paradigm Shift in Disaster Management (DM) 1.3.1 On 23 December 2005, the Government of India (GoI) took a defining step by enacting the Disaster Management Act, 2005, (hereinafter referred to as the Act) which envisaged the creation of the National Disaster Management Authority (NDMA), headed by the Prime Minister, State Disaster Management Authorities (SDMAs) headed by the Chief Ministers, and District Disaster Management Authorities (DDMAs) headed by the District Collector or District Magistrate or Deputy Commissioner as the case may be, to spearhead and adopt a holistic and integrated approach to DM. There will be a paradigm shift, from the erstwhile relief-centric response to a proactive prevention, mitigation and preparedness-driven approach for conserving developmental gains and to minimise loss of life, livelihood and property.

N atioNal Policy oN D isaster MaNageMeNt 2009

Map 1

EARTHQUAKE ZONES IN INDIA Source: BMTPC Vulnerability Atlas

N atioNal Policy oN D isaster MaNageMeNt 2009

Map 3

WIND AND CYCLONE ZONES IN INDIA Source: BMTPC Vulnerability Atlas

Map 4

LANDSLIDE AFFECTED STATES PreaMble

Approach and Objectives

(^1) Source: Sections 2(d) and (e) of DM Act, 2005. Vision 2.1.1 To build a safe and disaster resilient India by developing a holistic, proactive, multi-disaster oriented and technology driven strategy through a culture of prevention, mitigation, preparedness and response. Disaster Management (DM) 2.2.1 A disaster^1 refers to a catastrophe, mishap, calamity or grave occurrence from natural or man-made causes, which is beyond the coping capacity of the affected community. DM involves a continuous and integrated p r o c e s s o f p l a n n i n g , organising, coordinating and implementing measures which are necessary or expedient for:

• Prevention of danger o r t h r e a t o f a n y disaster.
• M i t i g a t i o n o r reduction of risk of any disaster or its severity or consequences.
• Capacity building including research a n d k n o w l e d g e management.
• Preparedness to deal with any disaster. - Prompt response to any threatening disaster situation or disaster. - Assessing the severity or magnitude of effects of any disaster. - Evacuation, rescue and relief. - Rehabilitation and reconstruction. 2.2.2 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).

Diagram 1

DISASTER MANAGEMENT CONTINUUM

N atioNal Policy oN D isaster MaNageMeNt 2009 Approach 2.3.1 A holistic and integrated approach will be evolved towards disaster management with emphasis on building strategic partnerships at various levels. The themes underpinning the policy are:

• Community based DM, including last mile integration of the policy, plans and execution.
• Capacity development in all spheres.
• Consolidation of past initiatives and best practices.
• Cooperation with agencies at National and International levels.
• Multi-sectoral synergy. Objectives 2.4.1 The objectives of the National Policy on Disaster Management are:
• Promoting a culture of prevention, preparedness and resilience at all levels through knowledge, innovation and education.
• Encouraging mitigation measures based on technology, traditional wisdom and environmental sustainability.
• Mainstreaming disaster management into the developmental planning process.
• Establishing institutional and techno- legal frameworks to create an enabling regulatory environment and a compliance regime.
• E n s u r i n g e f f i c i e n t m e c h a n i s m f o r identification, assessment and monitoring of disaster risks.
• Developing contemporary forecasting and early warning systems backed by responsive and fail-safe communication with information technology support.
• Ensuring efficient response and relief with a caring approach towards the needs of the vulnerable sections of the society.
• U n d e r t a k i n g r e c o n s t r u c t i o n a s a n opportunity to build disaster resilient structures and habitat for ensuring safer living.
• Promoting a productive and proactive partnership with the media for disaster management.