ADPC - Technical Asistance

Earthquake Vulnerability Reduction
(Component 2)

Earthquake Vulnerability Reduction

Related Components

Component1: Institutional Arrangements and Planning

Component 3: Flood Management
and Mitigation

Recommendations for Community Action
Recommendations at Technical Level

TA ACTIVITIES AND ACCOMPLISHMENTS UNDER COMPONENT 2: EARTHQUAKE RISK MITIGATION AND VULNERABILITY REDUCTION IN UTTARANCHAL This component involved technical level interventions in capacity building of earthquake engineering, increasing awareness at Government level of implementation of building codes and earthquake resistant engineered and non-engineered construction. This component also focused on Community Based Earthquake Mitigation and Planning exercises in Chamoli and Rudraprayag districts of Kumaon Commisionary and selected villages therein. The outputs of the TA were planned to empower the leading stakeholders in earthquake disaster mitigation to move forward - with some of the ‘progress-blocking’ issues removed, some resources provided, and with a team approach engendered. The specific activities are outlined later. This TA has commissioned reviews from national experts to establish the status quo on a number of key issues impeding progress of disaster mitigation initiatives. A scenario of damage caused under a hypothetical earthquake and expected damage in each district is a useful basis for decision on both damage assessment and mitigation. Resource materials have been prepared for assessing the vulnerability of building types specific to the state. This removes the opportunity for detractors to cite irrelevancy as a reason for not adopting more generalised guidelines for the same. The materials include videos and printed manuals. A pilot program of short, practical demonstrations in most of the districts of the state has been carried out. The demonstrations are of simple strengthening methods for unreinforced masonry buildings. These have highlighted the difficulties of instituting wider programmes in terms of engendering interest and a sustained change in building cultures. The TA has organised a pilot technical training course for engineers and architects and contractors. This gave the TA the opportunity to critique the proposed curriculum with a view to modifying it to become less academic, and more practical. It has brought into the open the need for standardising of such courses across a number of competing providers, and the possibility of a national qualification resulting from a common curriculum and examination. The aim of this is to help the state government and local authorities to have access to a cadre of qualified designers who can be relied upon to give certification of structural designs. The final output of this TA is the presentation and discussion of a road map for Earthquake Vulnerability Reduction – Management Action Plan (EVR-Map) for Uttaranchal, drawn up during a workshop in October 02 for the same purpose. This will enable the leading state government officials, already stimulated and energised by the interaction experienced during the TA, to have a series of agreed objectives and mini-projects to develop themselves. Some of these will require external funding, but the comprehensive setting of the EVR-Map gives these officials a sound footing on which to justify the projects. Key to the success of the EVR-Map (Concept paper: Annex I: 12) is the consolidation of the UA Disaster Management and Mitigation Centre (DMMC) as an icon of the state government’s commitment to improving disaster management. This requires not just leading-edge buildings and communication facilities, but the engendering of an atmosphere that will attract and retain a motivated and professional staff. The specifics of the EVR-Map will enable the Secretariat to attract internal and external funds to “walk the walk“ and “talk the talk”. This will attract strong leadership with a vision, and grow the “Think Tank” aspect, which has been developed by the present leadership. It is inevitable that the DMMC becomes the cornerstone of an educational programme for schoolchildren. Personnel from Commissionerate and DMMC, through their study tour to the Nepal National Earthquake Safety Day in 2002, and a subsequent training course in Nepal have already seen for themselves the benefits of school-based programmes on earthquake disaster mitigation. The study tours undertaken under this TA have met their objectives of seeing a range of disaster mitigation programmes in operation. The timing of the Nepal (Kathmandu) tour was deliberate in that it enabled the hosts to showcase in a short time the public campaigns they have been masterminding for a very similar development environment and topology. The tour in May to Thailand, Australia and New Zealand was structured to give exposure in a very short time to a range of models of disaster management that are further developed than the UA one. This tour covered Emergency Operations Centres, a government-sponsored natural disaster insurance scheme (New Zealand), regulatory authorities, and some ‘Think Tank’ type scientific organisations.
	Sub-Component No.	Activities	Output
	2.A	Review existing systems of earthquake vulnerability reduction through compliance of building codes, seismic hazard mapping/risk assessment methodology. By reviewing the current seismic hazard mapping, we are able to give the state authorities the confidence that the nationally promulgated seismic zoning is credible with respect to international standards, and should be taken seriously for State planning.The findings of these reports were presented in a workshop on ‘Legal Support, Development Control and Building Bylaws related to safety against natural hazards’. The workshop helped sensitise planners, personnel from Development Authorities and engineers implementing building codes and brought out recommendations to ensure safer construction. Also, a review of existing damage assessment guidelines was done and recommendations for improvement of the same were made	Based on an understanding of the existing situation and the gaps identified, the TA consultants drafted a comprehensive work plan, with specific outputs identified. Review of current state legislation on earthquake safety in the state of Uttaranchal (Annex II-G: 8) Review of current seismic hazard mapping/risk assessment methodology (Annex II-F: 2) Review of damage assessment guidelines and proforma for detailed scientific damage assessment of repair, retrofitting, reconstruction needs and for estimating realistic losses (Annex II-F: 3) These should be published
	2.B	In coordination with concerned Government agencies, review past events, analyse existing information systems, and make recommendations for strengthening information (DMIS) and communications systems for hazard management and warning, including a blueprint for a comprehensive communication network, a database and GIS, and support the compilation and analysis of the required information.	Review report of current Communications systems in Uttaranchal and means of enhancing these systems so that they do not fail in the event of earthquakes. The TA has provided basic software licences to Uttaranchal state Disaster Mitigation and Management Centre at Dehradun to develop and use a demonstration Geographic Information System, which can later be duplicated in other districts in the state. The TA has also commissioned a communications survey for the district of Pithoragarh in Uttaranchal, with a view to identifying a suitable communications system that would continue to be functional even in the event of an earthquake. (Annex II-J: 1)
	2.C	Review engineering studies to determine vulnerability of buildings and essential public service systems and structures and prepare risk scenarios.These scenarios were presented in 3 state level workshops in Dehradun on the following topics, which are described in components 2A, 2D, 2G and 2M: Curriculum Development for Earthquake Engineering (Annex II-H: 1) Role of Building Centres in Disaster Management (Annex II-G: 6) Legal Support, Development Control and Building Bylaws related to safety against natural hazards (Annex II-G: 8, II-G: 9)	Earthquake damage risk scenarios under hypothetical earthquakes of M6.6 in Uttaranchal Annex II-F: 4)
	2.D	Review specific needs for Disaster Mitigation and Management and prescribe suitable measures including improving resistance of essential services, strengthening of buildings and land use restrictions.By reviewing current state legislation for provision of earthquake safety in local byelaws, we have provided the state government with a roadmap for implementing further disaster mitigation requirements that are compatible with the existing framework.Review workshop on Legal Support, Development Control and Building Bylaws related to safety against natural hazards was organized in August 2002 as explained in 2 A. (Annex I: 5c)	Reports on: Guidelines for disaster prevention through land use restrictions and reinforcements of buildings of essential services (Annex II-G: 12) Adequacy of current state legislation for earthquake safety in local byelaws (Annex II-G: 9) Development control rules, master plan regulations and building byelaws. (Annex II-G: 11) Recommendations from workshop
	2.E	Review various types of structural designs for prevailing stone-masonry buildings for earthquake-resistant properties based on international experience, and assess the applicability of prospective earthquake-resistant designs, taking into consideration compliance with building codes, local material availability, affordability to local people, ease of maintenance and repair, and relevance to lifestyle of the local area.The reports from these were presented during the workshop on enhancing role of Building Centers in earthquake vulnerability reduction, as well as the one on implementation of building codes	Reports on: Options for Building Materials and technologies for earthquake safe buildings and guidelines for earthquake resistant buildings in Uttaranchal (Annex II-G: 3) Assessment reports of building systems in Uttaranchal, in the following categories: Hill Districts Plain districts HUDCO and BMTPC building systems Details in Annex II-G: 1 and Annex II-G: 2
	2.F	Identify suitable building materials and technology for earthquake rehabilitation effort; and prepare an action plan for retrofitting and seismic strengthening of existing housing and infrastructure taking into consideration the availability of building materials. The reports produced were discussed in the workshops on implementation of building codes	Reports on: Standardization for Disaster Management (Annex II-G: 10) Guidelines for seismic retrofitting of existing housing, school and health buildings in Uttaranchal (Annex II-G: 4)
	2.G	Review present curriculum at various levels of education and propose incorporation of varying levels of awareness/knowledge of earthquake safety, depending on education level. This report, with its recommendations for curriculum for schools, colleges and masters’ level was presented in the workshop on Curriculum review, targeted at the Department of Technical Education, academicians in the region, particularly civil engineering. Following one of the concerns that the Teachers may not have adequate training to teach students about earthquake engineering, some of the teachers were involved in the training workshop on fundamentals of earthquake engineering in October, 02	Specific Curriculum outline for earthquake disaster safety for engineering degree program (Annex II-H: 1) Workshop conducted with teachers for review of the new addition in the curriculum (Annex I: 5d for Curriculum workshop report)
	2.H	Review the existing social, cultural and political structures of the communities to identify possibilities and limitations for ensuring community participation. Help develop and strengthen community participatory processes in disaster management and public awareness programs which enhance effective communication between the relevant Government institutions and agencies, community leaders, NGOs and the affected people, ensuring the involvement of women and vulnerable groups.
	2.J	Publish guidelines for earthquake safety.	2 videos for awareness building ‘Shake table tests’ of seismic performance of traditional versus retrofitted houses’ Retrofitting of Traditional Housing 2 simple booklets: Booklet on Repairs and Retrofitting of houses Booklet on Earthquake resistant house
	2.K	Pilot program for strengthening community preparedness through making of Village Disaster Management Action Plans (VDMAPs). This was done in almost 70 villages by TA consultants. In addition, TA funded the workshops for preparing VDMAPs in another 10 villages. In each of the 10 villages where the workshops were conducted, a set of 10 persons was identified as ‘first responders’ in the event of a disaster. These team was called Village Disaster Intervention Teams	80 Village DMA Plans prepared Capacity of 80 communities enhanced for assessing their physical and social environment to identify vulnerabilities and most vulnerable social groups, as well as capacity to deal with an emergency.
	2.L	Further to the pilot program of 2.K, a training workshop for the 10 Village Disaster Intervention Teams was conducted to equip them as first responders.	Capacitated 100 young volunteers in 10 villages to become first responders during a disaster.
	2.M	Review of role of building centers in Disaster Management. A Workshop to discuss the same was organized in August 02 and the reviews made by TA consultants were presented to personnel from several building centers in Uttaranchal, personnel from HUDCO, District Magistrates, and engineers of PWD, RES and Irrigation departments. This is particularly relevant because the state government has contracted with HUDCO to increase the number of these.	Review of 4 building centers (Annex II-G: 7) Recommendations for Revitalization of building center (Annex II-G: 6) Workshop recommendations (Annex I: 5b)
	2.N	Pilot program: In Uttaranchal, a series of awareness raising workshops in 13 districts were conducted to promote earthquake resistant construction and retrofitting, targeting various government staff, NGOs and elected representatives, using customized awareness building materials such as videos, calendars and leaflets, as well as making small retrofitting demonstrations	Enhanced awareness in 13 district centers (Annex II-F: 11)
	All TA outputs and experts were brought together at the end of the TA in a workshop on Earthquake Vulnerability Reduction. This workshop was an attempt to summarize all TA interventions and brainstorm on identifying an action-oriented ‘way forward’ for Uttaranchal towards reducing vulnerability to earthquakes, which would be developed into a comprehensive state level strategy for earthquake vulnerability reduction.

TA RECOMMENDATIONS FOR EARTHQUAKE VULNERABILITY REDUCTION IN UTTARANCHAL AT COMMUNITY AND TECHNICAL LEVEL

The TA has started a ‘thought process’ at various levels in Uttaranchal, examples are NGOs, through working with them towards developing Village level flood plans in Eastern UP, or PWD and RES engineers at Uttaranchal, through a training workshop on fundamentals of earthquake engineering or rural communities in Gorakhpur (UP) and Rudraprayag, which need to be taken forward. This section summarises the key recommendations for each state in the area of Technical Upgrading and Community Action.

RECOMMENDATIONS FOR COMMUNITY ACTION
Community Disaster Plans:
The 13 District Disaster Management Action Plans (DDMAPs) (two funded by TA) and 130 Village Disaster Management Action Plans (VDMAPs) (80 funded by TA) that have been prepared should be evaluated and implemented. The Village Disaster Intervention Teams (VDIT) should be adequately trained for their work through workshops (1 of which, for 10 villages was funded by TA)

Promoting safer Building Construction in the Community
Public awareness should be increased, so that they are aware of the various construction regulations and their importance and also of the service that local building centres can provide while constructing local schools, community buildings or houses. The benefits of using traditional technologies and Construction Techniques both in construction and retrofitting should be promoted. Standard Building Plans, having provision of Earthquake Safety should be made available at the community level, which may consider standard house design of different types of plots, community halls and other common use buildings

To further increase awareness at Community level in rural areas, a combined training of BDOs/ADOs at district level should be arranged. BDOs should be capacitated to further train people at block level. Building cum Service Centers at each block should be established in cooperation with BDO/ADOs.

Involvement of various stakeholders:
Community action or any preparedness/mitigation initiatives must involve as many stakeholders as possible in order to ensure success.

Role of NGOs
Since NGOs work closely with people they could be the best medium to take information to the people. NGOs also work on development program that involve construction. Hence, they are in a position to undertake demonstration of technologies. NGOs could also organize programs that could help keep the issue of long-term safety alive in the community. NGOs with appropriate background could take up the Building Centres or simply organize the training programs. The Government should be involved by packaging the disaster mitigation programs in a form that attracts the NGOs.

Community Education Campaign for safer construction
Large-scale public awareness campaigns need to be undertaken by DMMC, which provide technical information related to construction of earthquake resistant structures (building) involving experts in the field. Aside from calendars, videos, leaflets and poster prototypes produced under the TA regarding construction for non- engineered structures, the campaigns need to use TV and radio advertisements, demonstration projects, video shows and newspapers. These should be widely used in a regular and systematic campaign undertaken by DMMC, NGOs and local building centers.

The local administration and DRDA should take up program of video shows through video vans and at such occasions the booklets and brochures must be distributed. The booklets may be given for a token price to prevent wastage. In case of the settlements away from the roads the equipment may have to be carried on mule-back for such shows or the video shows can be arranged at the road heads and people could be informed about the programme.

Standardization of public awareness messages:
There are other booklets, posters etc. focusing on the same issues prepared by other individuals and organizations. These at times do suggest ideas that are conflicting. It is important that the DMMC and the State machinery try to standardize as much material as possible to prevent confusion in the minds of the people.

RECOMMENDATIONS AT TECHNICAL LEVEL
Enactment and implementing of building byelaws
The TA reviewed existing byelaws in Uttaranchal and submitted a detailed report, attached as Annex II-G: 11. The following points were discussed and recommended during the workshop on implementation of building codes:

Government Order of July 2001 contains a number of provisions to be followed while sanctioning the building plans by the Development Authority, Special Area Development Authority, Corporation, Municipal Board and also by the concerned government department while constructing the building. During the discussions in the workshop on techno-legal arrangements in Uttaranchal, participants pointed out that due to the lack of technically qualified manpower either with the sanctioning authority or with different cities / towns, the implementation is very difficult and could not be followed. The State Government / Sanctioning authority should have a panel of reputed and technical personnel, who can assist as and when required to the building sanctioning authority
Government may consider giving suitable incentives for adopting earthquake resistant construction
Necessary amendments in Section 26 of Special Area Development Authority Act 1986, as provided in Section 28 (k) of UP Planning and Development Act, 1973, regarding sealing of building, should be made.
It is observed that most of the government projects are outside the purview of sanctioning authority. Therefore all such projects when designed should take care of safety provisions and certified by the concerned architects / engineers
At present there are number of Acts/Rules/Regulations applicable in the state adopted for the state of UP. There should be single legislation to control development and building activity which could be formed taking into consideration present legislative framework and incorporating the suggestions made in module 2 D (1,2 &3) of the ADPC ADB TA.
Government and government agency buildings, which are designed by the Government technical department, should follow strictly the provisions suggested for safety against natural hazards.
All new construction under various sectors like education, health, community development, Banking etc. must incorporate earthquake safety measures. The community should be given incentives for better construction of housing/community buildings.
Buildings constructed under the Indira Awas Yojana and other Government Schemes should strictly follow the provision of Indian Standards, related to Earthquake Resistant Construction.
Awareness / training program is also required to be systematically arranged for engineers / officials working with local authorities regarding earthquake resistant construction, byelaws, regulations, quality control etc.
Training of (a) Engineers, (b) Building Artisans, (c) Petty Contractors
- For artisans adhering to basic rules and incorporation of disaster resistant features must become second nature
- Engineers must recognize the viability and importance of the disaster resistant non-engineered vernacular construction

Building byelaws

As most of the government projects like hospital buildings, schools and others are of standard 'type' design, the provision of structural safety against earthquakes should be reflected in all such project in the drawings, and used/implemented on the site.
Government departments like PWD/RES should incorporate in their curriculum related to construction of buildings, the requirements of IS4326. Corresponding schedule of rates should also include the detail of additional features, which are required to be done as per IS 4326

Involvement of Building Centres
State Government should take a leading role in establishing / strengthening / revitalizing and monitoring building centres in the state. For this, a nodal committee comprising concerned departments like PWD, RES, etc. should be formed. DMMC can take the lead role in coordinating this nodal agency. It is recommended that building centres, with capacity for mason’s training, retrofitting service should be established at the block level. Efforts should be made to assess the capacity of each centre, identify their strengths and weaknesses and emphasize on capacity building. Strengthen/relocate/close Building Centres as required. There is a need for having 3 nodal Building Centres in 3 identified geo-climactic zones. With each such centre, a mobile Building Centre should be attached. (Annex I: 5b)

The Building Centres must help people build their houses that are:

· Affordable
· Easy to build
· Thermally comfortable, in winter, & has adequate light & ventilation
· Resistant against an expected natural disaster such as an earthquake

To achieve this the Building Centre must focus on…

· Stringent selection process for project holder
· Functioning as a Building Technology Resource Centre
· Suitable but Standardized Skill Up-gradation Program for building artisans accompanied by Certification
· Identify, develop and support building technologies that are most viable in the area with specific attention given to

· The needs of those living in villages located away from motorable roads in the mountains
· The local context of hilly region, unreliable power situation
· Very high carting cost
· Need for decentralized material production

Building centres and construction in state
During the workshop on Building centres and their role in Disaster management, the following recommendations were made

Include in PWD specifications and schedule of rates various items like materials, components, codes of practice used by Building Centres including details of special features required in earthquake resistant construction and retrofitting of buildings. This may also include curing charges especially in water deficient areas.
Pre-determined standardized construction specifications and modules of housing units/temporary shelter units should be evolved for Building Centres by technical institutions.
In addition to construction technology adopted by the Building Centres, efforts should be made to identify traditional wisdom and knowledge, with suitable strengthening measures on which building centres can work further.
Proper quality control should be introduced in all Building Centres and minimum-testing facilities should be created for testing of raw material and finished products. This should also be utilized for R&D work of Building Centres.
Working machines should be examined and guidelines for routine maintenance should be prepared. Proper mechanism to make available the spare parts should be worked out.
Retrofitting of buildings is an essential part of reducing vulnerability of existing housing stock. Therefore retrofitting clinics should be opened in selected location and linked with existing building centres
Events should be organized specifically for masons where they all could be given the booklets free of cost. At such functions the training dedicated Building Centres too could be promoted.

Building Technology and Information
The past experiences clearly show that upgrading of the traditional building technologies is important to focus on since these are used by most house owners and practiced by most building artisans. Upgrading requires little use of new skills and new materials. It often involves some basic changes in the way construction is carried out.

It is also necessary to focus on the changes in construction practice that has already been taking place such as the use of RCC slab, bricks, cement blocks etc. Since these changes have already come in they do reflect the changing aspirations and, possibly, the preferences of the people. It would, hence, be necessary to focus on the weak areas of these changes that have been taking place, identify them and resolve them. Appropriate information, already available through TA work and otherwise, needs to be transferred to the people in a manner that facilitates the relevant construction practices. Introduction of these changes in the ‘Schedule of Rates’ would be the first step in the right direction. But a major intervention is needed to really take these changes to every houses and every mason.

Mapping
The GIS data bank being prepared by DMMC should be completed at the earliest.

Advanced Communications Support:
Disaster Managers should pull together expertise from various agencies, who, together with EOC/DMMC/DCR, provide vital advanced communication support to alleviate the dire straits experienced by the rescue teams. These communication solutions should be equipped with comprehensive and highly performing capabilities, which have proven to be highly effective in rescue operations all over the world (Motorola FDC, Two-way radios -GP328/338, SP300, Short range business radios-Talk Abouts and Satellite 9500 Telephones used during Taiwan Earthquake of 21 September, 1999 – can be sited as an example). Details of this can be found in Report on Communications Systems, Annex I: 4)

Government
The long term program of ‘people centred vulnerability reduction’ program would succeed if and only if the government:

- Plays proactive role by bringing changes in its own construction practices (R&B) to mitigate the dangers
- Assigns desired priority to ensure positive attitude and sustenance

The above recommendations should be implemented in Uttaranchal on a multi-sectoral basis, addressing multi-hazard scope in order to be effective. The government should play the role of a facilitator and rope in NGOs and other stakeholders and benefits with the experience and networks of these other organizations for an effective ‘vulnerability reduction’ program

TA Executing Agencies:
Office of Relief Commissioner, Government of Uttar Pradesh
Ministry of Disaster Management, Government of Uttaranchal
Disaster Mitigation and Management Center, Government of Uttaranchal