Institutional
Arrangements and Planning
(Component 1) |
|
|
|
|
|
|
|
|
.::
Uttaranchal ::. |
|
.::
Uttar Pradesh ::. |
|
|
|
|
|
|
|
|
|
|
|
|
Overview |
|
|
|
|
|
|
|
|
|
|
|
Recommendations
and Way Forward |
|
|
|
|
|
|
|
|
|
|
Related
Components |
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
OVERVIEW
Uttar Pradesh being a large state with varied geo-climactic conditions,
it was decided that TA activities be focused on the overall policy issues
at state level, and all other TA inputs be centered on improving flood
management and mitigation within the state, particularly the eastern districts,
which are more vulnerable to floods. There was some work done towards
planning for Industrial hazards in Kanpur district as well.
A major achievement in the state was the preparation and presentation
to the government of various options for institutional arrangements for
disaster management in Uttar Pradesh. This was reviewed by concerned officials
and consensus emerged in a workshop on ‘Institutional Arrangements
and Planning for Disaster Management in Uttar Pradesh‘ in December
01. This was the basis for an enhanced Commissionerate of Disaster Management
with enhanced technical manpower that was endorsed and is now being submitted
to the Uttar Pradesh Cabinet for acceptance. So too, the establishment
of a Disaster Management Cell in UP State Institute for Rural Development
was actively pursued and accepted by the Government of India including
funding for two positions of disaster management faculty.
The GoUP Steering Committee as well as the Executing Agency was particularly
interested in assistance in preparing model Disaster Management Plans
at Village and District level that could be used throughout the state,
and in utilizing TA expertise to assist in the preparation/review of a
State-level Disaster Management Plan. Following this, technical assistance
was provided in Uttar Pradesh towards demonstrating the process of developing
and linking disaster mitigation and management planning at various levels,
as has been explained below. Two plans have been prepared for Kanpur and
Maharajganj districts, which represent typical hazard prone districts
in the state. These plans were reviewed and endorsed in district level
meetings and workshops.
A second priority of the GoUP was improved capacity at the District level,
both in comprehensive disaster management and in specific, calendar-related
activities for mitigation and preparedness. The TA has therefore placed
special emphasis on information exchange, standardized disaster assessment
procedures and reporting at district and community levels. District plan
workshops were held at District levels and several village level action
plans were drafted through pilot workshops at village level and the same
were shared with local NGOs at district level through two workshops.
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
TA
ACTIVITIES AND ACCOMPLISHMENTS UNDER COMPONENT 1: INSTITUTIONAL
ARRANGEMENTS AND PLANNING FOR DISASTER MANAGEMENT IN UTTAR PRADESH
The states have gone through the process of reviewing possible
institutional changes to make the current state system more effective
in terms of overall disaster management. In U.P., the government
has taken a positive role in defining how the TA can be of specific
assistance to U.P., which has been taken into account in undertaking
activities and reorienting priorities during the TA. Some of the
tangible achievements are: the proposed Commissionerate of Disaster
Management, Emergency Operations Center and Disaster Management
Plans developed for 2 districts.
|
|
|
|
Sub-Component
No. |
Activities
in Uttar Pradesh |
Output |
|
|
|
|
1.A |
With
an objective of reviewing and strengthening institutional set up
in UP for disaster management, a workshop on ‘Institutional
Arrangements and Planning for Disaster Management’ was conducted
in Lucknow on 21-22 December 01. This workshop involved a review
of existing Institutional Arrangements for Disaster Management (paper
Annex I: 5 a), review of a proposal for strengthening institutional
arrangements by TA Consultants (Annex II: 25 and II: 30) and an
extensive dialogue with experts from within the country, followed
by discussions of recommendations (Annex I: 5 a) with officials
of the Executing Agency to prepare a cabinet note. |
Cabinet
note, complete with a proposed layout plan, equipment, budget and
staffing pattern for an Emergency Operations Center, proposing institutional
changes on ‘Strengthening Office of Relief Commissioner and
Establishment of an Emergency Operations Centre’ in Uttar
Pradesh is now ready for presentation to the Cabinet. (Annex I:
7)Workshop final report Annex II: 29Draft for Uttar Pradesh state
Disaster Management Act (Annex II: 14) |
|
|
|
|
1.B |
Analyze
lessons learned in other States for Institutional arrangements following
major disasters. This was done through the above-mentioned workshop
where findings from NCDM, state governments, and disaster management
professionals from all over the country were presented. ADPC personnel
presented an international perspective on the same. The workshop
brought forth some concrete recommendations for improving Institutional
arrangements and disaster management planning in Uttar Pradesh.
|
Report-
Disaster Management in India: Lessons drawn and Strategies for Future
(Annex II: 15) Report – Profile of India: giving background
of disaster situation in both states (Report II: 31) |
|
|
|
|
1.C |
Establishment
of a Disaster Management Cell (DMC) at UP Academy of Administration,
to be located at SIRD |
Collaboration
with State Institute for Rural Development (SIRD) in preparing request
and obtaining approval from Government of India for establishment
of a DMC Following GoI approval, the TA followed up on the establishment
of a steering committee for recruitment of new staff for the DMC.
Selection expected in November 2002
|
|
|
|
|
1.D |
Assist
the responsible authorities in the formulation of District Disaster
Management Action Plans. This was given a high priority during discussions
of the Steering Committee for the TA and also during workshops and
the TA consultants have incorporated recommendations from various
stakeholders into the district plan, as well as the High Powered
Committee of the Government of India. |
2
District Level Disaster Management Plans prepared through extensive
consultation with Government officials and relevant stakeholders:
both with multi-hazard scope and focus on Flood Risk Mitigation
at Maharajganj (Annex II: 26) and focus on Industrial hazards for
Kanpur (Annex II: 27) district. One district level workshop each,
as well as one-to-one consultations with all agencies were held
to discuss the draft plans, plans were modified based on feedback
and translated into Hindi.
|
|
|
|
|
1.E |
Organize
training programs as per the training needs and study tours as relevant
to GoUP personnel |
Under
the TA, ADPC planned a study tour for GoUP officials for visiting
Nepal in January 2002, and for visiting Australia-New Zealand-Thailand
in May 2002 and June 2002. Also several attempts we made at getting
nominations for training courses at ADPC. However, each of the plans
was cancelled due to lack of clearances for the officials.
|
|
|
|
|
1.F |
Public
Awareness Material on flood mitigation measures |
Posters:
set of 6 posters (4000 copies each) on ‘preparedness prior
to floods’, such as stocking grain, medicines and keeping
boats ready, for widespread distribution. The posters were released
at the National Level Seminar to commemorate the National Day for
Disaster Reduction on 29th October 2002, at the hands of the Deputy
Prime Minister, Shri L. K. Advani. In the state, they were released
by the Honorable Minister for Relief and Revenue.
|
|
|
|
|
1.H |
Provide
inputs to the state for designing activities and provide public
awareness material for State Day for Disaster Reduction (SDDR) in
UA. A list of probable events to be organized for public awareness
was prepared and discussed with the EA. |
As
per the GoI recommendations, the EA released a Government Order
declaring 29th October 2001 as the State Day for Disaster Reduction.
However, due to the delay in release of the order, no events could
be planned. Activities for 2002 are being planned. |
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
TA
RECOMMENDATIONS FOR INSTITUTIONAL ARRANGEMENTS, POLICY AND PLANNING IN
UTTAR PRADESH:
Establishment
of the Commissionerate of Disaster Management (CDM)
The establishment of the CDM, created out of the Relief Commissioner’s
office with full technical manpower, is a priority. At the end of the
TA, this was at an advanced stage of approval and a cabinet note had been
submitted. This will enable a proactive approach to disaster management
planning and mitigation in the state, with CDM serving as an anchoring
agency.
Emergency Operations Centre
It is essential that an Emergency Operations Centre be established in
UP, as per the blueprint for establishment and operation, with cost estimates
prepared under the TA in close consultation with the Principal Secretary
Revenue and Relief Commissioner. This EOC must be co located with the
proposed CDM office and in close proximity of the Secretariat. It is also
necessary that the EOC have an effective communication link with the Control
room at the Central Govt (Ministry of Home Affairs) and also be well connected
with the proposed District Control Rooms. At the end of the TA, the file
with the proposal was with the Secretariat Administration department and
Finance.
Disaster Management Cell at UPAA/SIRD
In March 02, the Govt of India approved the funding of two positions of
Disaster management faculty for the Disaster Management Cell at the new
UP Academy of Administration at the State Institute for Rural Development.
This cell should begin functioning as soon as possible following recruitment
and training of new staff, and serve as the technical support agency and
training and outreach arm of the CDM.
Constitution of State Crisis Management Group and Preparation
of a State Disaster Management Plan
This was first constituted by the State Govt in UP in July 2000 and mandated
to prepare the state level disaster management plan. Since then it has
met twice in the context of the TA. An expansion of this Group was endorsed
at the Dec 01 workshop and roles and responsibilities of this group prepared
in June 2002. Making this group operational and meeting periodically to
prepare the state level disaster management plan is a priority task. Preparation
of the state plan remains a priority task with leadership being provided
by the CDM and technical support by the DM cell at SIRD. The state level
planning exercise undertaken in Maharashtra, Orissa and Uttaranchal can
serve as templates for the team embarking on the exercise. At the end
of the TA, of 5 sub-committees that had been constituted in March 2002
for State Disaster Management Plan preparation, 2 had already convened
and provided their recommendations.
District Disaster Management Plans In Maharajganj and Kanpur
The TA has produced Plan documents for both districts in an action oriented
user-friendly format. While Maharajganj has focussed on floods, Kanpur
plan focuses on industrial hazards, with a multi hazard approach. The
Kanpur document outlines the multi-agency preparedness and response plan
for dealing with all types of emergencies: natural disasters and man-made
events. Important elements include planning, emergency response, hazard-specific
measures, and inventory of resources. The goal of disaster management
planning is the establishment of an Integrated Emergency Management System
(IEMS), which requires all the responder agencies, government agencies,
private sector organizations, and NGOs to cooperate to reduce the consequences
of natural, technological, and man-made disasters.
SOPs for all participating agencies have been developed, through a consultative
process. The consultative process among all agencies, NGOs and Communities
needs to continue and a transfer of ownership to the local administration
needs to take place. In each location the District Disaster Management
Committee under chairmanship of the DM needs to formally endorse the plan
and agree on agencies responsible to complete all operational details
and periodically update them. The committee needs to undertake joint multi
agency training and also plan and undertake response exercises. A program
of public outreach about the existence of these plans and the measures
proposed is an important component of the planning process that should
be undertaken.
Developing Disaster Management Plans for other districts and different
levels of administration
The plans developed for Maharajganj and Kanpur offer practical templates
for preparing plans in other similar districts throughout the state. The
CDM (currently Relief Commissioner) should draw up a phased program for
preparation of such plans in priority high-risk districts of the state.
Instructions to DMs should be issued for preparation of the plans. The
DM Cell in UPAA/SIRD can play the role of providing technical assistance.
While the various agencies involved in preparation of both village and
district level plans appreciated the importance of both exercises, it
was recognised that it was necessary to develop plans at block and tahsil
levels as well. Similarly the involvement of agencies from both within
and outside the Government and their sense of ownership and participation
was held to be crucial.
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
OVERVIEW
Uttaranchal is a disaster prone state. Landslides, forest fires, cloudbursts
and flash-floods are seasonal in nature and they strike at a certain period
of the year with high frequency. Earthquakes are the most devastating
disaster in the mountains and are unpredictable. So far, in the recent
years (1990 onwards) Uttaranchal has experienced two major earthquakes
(>6 magnitude) in Uttarkashi (1991) and Chamoli (1999) and a series
of landslides/cloud burst such as Malpa (1998), Okhimath (1998), Fata
(2001), Gona (2001), Khet Gaon (2002) and Budhakedar (2002).
Technical
Assistance to the Executing Agency: Shortly after the TA commenced,
Uttaranchal state was carved out of the parent state of Uttar Pradesh,
and with it, for the first time in India, the Ministry of Disaster Management
at state level was established. The executing agency within the state
for the TA was the office of the Commissioner of Disaster Management,
under the Ministry and TA consultants worked with the officials within
the Ministry and the Uttaranchal Academy of Administration to draw up
a framework for the establishment of the Disaster Mitigation and Management
Center (DMMC), as a ‘think tank’ to the Ministry to support
all government ministries/ officials with regard to hazard information
and mitigation/response options. In Uttaranchal, a new administrative
structure for disaster management has been put in place as shown below.
|
Disaster
Management System in Uttaranchal
|
Since
its establishment, the TA provided tremendous support to the DMMC. The
visionary and enthusiastic disaster management work undertaken by the
DMMC and leaders of the former UP Academy of Administration (now Academy
of Administration, Nainital) has meant that the new State Government of
Uttaranchal was receptive to this Technical Assistance.
A
significant outcome of the TA in this component has been the recognition
given to, and empowering of, the leaders of disaster management in the
state. The TA facilitated networking of like-minded individuals from National
Committee for Disaster Management, UPAA, IIT Roorkee, experiences of groups
in similar Himalayan topology, specifically those of NSET Nepal and various
others, which has a real likelihood of producing a sustainable change
in the level of preparedness for disaster in UA.
It
became clear very early in the TA that more stakeholders had to be introduced
to mitigation rather than to planning for relief. Our initial investigations
found that there were excellent disparate efforts going on, but little
co-ordination. Despite Uttaranchal having a world-renowned post-graduate
school of earthquake engineering, there was no evidence of its presence
having an impact on the design of construction in the state. Amongst professional
engineers and architects, there was an acknowledgement of the need for
seismic resistant design, but this was not being turned into compliance
with existing codes of practice, often because of lack of confidence in
the appropriateness of the building code.
Once
the DMMC was established, preparation of guidelines and documentation
for disaster mitigation & management organizational structure and
procedures with the GoUA was undertaken under the TA. Documents were prepared,
reviewed and published for: |
-
Structural Organization of Disaster Mitigation & Management Centre
(DMMC) (Annex II-A: 9)
- Technical
report on Remote Sensing, Geographic Information System, Information
Technology and Communications System in Uttaranchal. (Annex II-J:
2)
-
Guidelines and Operational Procedures for District Disaster Management
Action Plans (DDMAPS) (Annex II-B: 1)
-
Disaster Mitigation Strategy for UA (Annex II-F: 5)
-
Emergency Operations Centre (EOC) Manual (Annex II-D: 9)
-
District Control Room (DCR) Manual (Annex II-D: 10)
-
Manual on warning & evacuation (Annex II-D: 11)
-
Disaster Management Information System (DMIS) (Annex II-J: 3)
|
The
last six of these documents have been published as GoUA documents. These
documented policies and procedures for the various aspects of UA state
disaster management system.
Activities
in Uttaranchal, as in Uttar Pradesh, were focused on Disaster Management
Planning at District and Village level. Two workshops were held in Rudraprayag
and Chamoli where a wide-ranging multi- departmental review of these plans
was undertaken. (Annex II-B: 2) through working with communities. At local
level, the village action plans went a step further from planning, which
involved assessment of their own living environment. 80 village level
plans were prepared in high-risk villages of the state in districts located
in zones with local landslide prone locations. In addition, one workshop
for Village disaster intervention teams from 10 villages was conducted
(Report in Annex I:5 b). Village Disaster Intervention teams are teams
identified during the village plan preparation stage, which are to be
the ‘first responders’ in the village. This is because Uttaranchal,
being a mountainous state, access to remote places can often be difficult
and it is necessary to build capacity at community level for emergency
response.
Building
centres have played a pivotal role in promoting safer building technologies
and practices, the TA undertook two consultative reviews of the functioning
of four building centres in Birahi, Ghat, Bela and Srikot by BMTPC and
the structural engineer on the team (Annex II-G: 6 and 7). These reports
were circulated and discussed at a workshop (see below).
A
number of workshops involving middle level government officers, academicians
and engineers were conducted over the term of the TA, following review
reports by TA consultants, which were discussed during the workshops (Annex
I:3) for list of workshops). These workshops were:
-
Review of functioning of Building Centers, their role in Earthquake
Resistant Construction and means to revitalize them (Annex I:5 b)
- Review
of adequacy of current legislation in implementation of Building codes
and means to improve implementation of codes (Annex I: 5 c)
- Review
of current curriculum with regard to awareness about Earthquake Vulnerability
of the state population and recommendations to include Earthquake Engineering
in Civil Engineering curriculum (Annex I: 5 d)
Public
Awareness in Uttaranchal towards Earthquake Vulnerability:
Since Earthquakes cannot be predicted with certainty, nor stopped, the
most effective way of dealing with them has been through improved public
awareness. The TA has supported the development and dissemination of booklets,
pamphlets and videos on earthquake safe construction and retrofitting
for public awareness, which are listed under Component 2 for Earthquake
Risk Reduction in Uttaranchal. These publications were released by the
Minister for disaster management in July 02.
A
major campaign to promote retrofitting in non- engineered buildings in
rural areas was conducted. 13 workshops, one in each district, were held.
Each workshop conducted demonstrated retrofitting practices. In addition,
IIT Roorkee, under the TA, conducted 2 training courses
on fundamentals of Earthquake Engineering (Annex I: 6)
targeting engineers from various government departments, participants
from polytechnics and state level engineering college. A major workshop,
which brings together national and international experts of Earthquake
Sciences and engineering, to chalk out an ‘action plan’ for
Earthquake Vulnerability Reduction in the state was conducted
in October 2002 (Annex I:5)
Uttaranchal
Housing Scenario
The traditional houses in Uttaranchal are most appropriate for the local
climatic conditions. These houses are built using technologies that depend
upon the locally available skills and materials. The artisans building
with the traditional technologies, over the years, have lost the know-how
to build disaster resistant houses with the predominant use of the local
materials.
Stringent
access restrictions on prime local construction materials (timber etc)
is making the traditional construction extremely expensive. This is leading
to a gradual elimination of local building materials and technologies
from use, and adoption of non-local technologies that are not viable.
The viability of the non-local technologies (such as RCC) is adversely
affected by high transportation cost, little know-how of material behaviour
as well as the unavailability of the suitable materials that have to be
used with the non-local technologies.
The
house owners have little or no awareness about the dangers of a future
disaster and the ways the houses can be made stronger to withstand the
impact of a future disaster. It is difficulty for people to invest more
than their already stretched resources in their houses to build better.
There is little or no knowledge in the public about the alternate affordable
technologies. Nor do the people know that their vulnerability to future
disasters can be reduced through the use of suitable technologies for
the construction.
TA ACTIVITIES AND ACCOMPLISHMENTS UNDER
COMPONENT 1: INSTITUTIONAL ARRANGEMENTS AND PLANNING FOR DISASTER MANAGEMENT
IN UTTARANCHAL
|
|
Sub-Component
No. |
Activities
in Uttaranchal |
Output |
|
|
1.A |
The
TA consultants helped prepare and review the draft framework that
lead to the establishment of the Disaster Mitigation and Management
Centre in Uttaranchal.Workshop on Disaster Management System (DMS)
in UA, 10-11 April 2001, attended by Chief Minister, Minister of
Disaster Management, Chief Secretary, where they presented and discussed
the blueprint for Disaster Management in UA, the proposed Disaster
Management Information System (DMIS), and District Disaster Management
Action Plans; dissemination of DDMAPS among District Magistrates,
SPs, NGOs, CBOs, and experts. |
Disaster
Mitigation and Management Center established. Background paper on
Uttaranchal Government policies, strategies, institutional mechanisms
and planning for Disaster Mitigation and Management written. A number
of significant new Government Orders (GO) has now been approved
following the workshop on DMS/ acceptance of proposals. (Annex I:
8) |
|
|
1.B |
Analyze
lessons learned in other States for Institutional arrangements following
major disasters. Uttaranchal itself had had 2 major earthquakes
within a decade prior to the TA. Lessons learned from other states
such as Maharashtra and Orissa were summarized in a report |
Report
on Disaster Mgmt: Lessons drawn and Strategies for Future (Annex
II-A: 4)Report – Profile of India: giving background of disaster
situation in both states (Report II-A: 1) |
|
|
1.C |
Support
strengthening of DMMC and working towards establishment of an Emergency
Operations Center. Initial provision of key documents on Disaster
Mitigation & Management, floods, earthquakes and other topics,
as part of an information database for both states. These include
documents such as disaster management handbook, sample DM plans
and the Source book prepared by Ministry of Agriculture.Preliminary
structural evaluation and recommendations for improving earthquake
resistance for DMMC building in Dehradun (Annex II-F: 6). The paper
emphasizes the need for an earthquake-resistant structure to house
an EOC. The consultant supported this with an informal demonstration
of earthquake design principles. TA consultants during training
course on fundamentals of Earthquake Engineering identified DMMC
building as an unsafe structure, which was widely publicised in
the newspapers. |
TA
provided for basic electronic equipment, which will become key equipment
for the Emergency Operations Center (EOC). This is currently with
the Office of the Commissioner, Disaster Management. Towards the
end of the TA, additional equipment, as required, was purchased
for the DMMC. Small contribution made to library for DMMC. TA and
ADPC have helped supply current reading material to personnel from
DMMC as and when some suitable material was found. Repeated discussions
regarding the strengthening of structure of DMMC building has led
to discussions about housing DMMC in a safer building as demonstration
of the GoUA commitment to safer construction. |
|
|
1.D |
Assist
the responsible authorities in the formulation and updating of District
Disaster Management Action Plans. Uttaranchal has 13 districts,
for which DMMC had some basic Disaster Management Plans drafted.
The TA supported workshops for review and consultative evaluation
of 2 of the districts, name Chamoli and Rudraprayag, during which
plans were explained to the District officials and based on feedback
from participants, updated. Annex II-B: 2 |
Updated
District Disaster Management Action Plans (DDMAPs) for Chamoli and
Rudraprayag, 2 of the districts most vulnerable to earthquakes.Evaluation
of draft DDMAPs for 12 districts of Uttaranchal: Nainital, Almora,
Pithoragargh, Bageshwar, Champawat, Udhamsingh Nagar, Tehri, Pauri,
Dehradun, Uttarkashi, Chamoli, Rudraprayag. |
|
|
1.E |
Organize
training programs as per the training needs and study tours as relevant
to GoUA personnel |
Ÿ
Study tour of 4 Government Officials to Nepal to observe the public
awareness work done for Nepal Earthquake Safety Day from 15-20 January,
02. (Annex I: 9)Ÿ Study tour of 5 very senior Government officials
(delegation head: Honorable Minister for Disaster Management, Dr.
Harak Singh Rawat) to Australia, New Zealand and Thailand from 9-19
May, 02 (Annex I: 9, 10)Ÿ One person from DMMC sent to Kathmandu
for attending a course on Earthquake Vulnerability Reduction in
Cities – 1, from 20-31 May, 2002 Ÿ 2 training courses
on Fundamentals of Earthquake Engineering, conducted from 29 July
– 2 August, 02 and 16-20 October 02. Total 75 government engineers
trained (Annex I: 6)Ÿ One training workshop on Landslide Hazard
Mitigation in Uttaranchal on 21st October, 2002 Ÿ One state
level workshop on Earthquake Vulnerability Reduction in Uttaranchal,
attended by senior level Government officials, organized on 24th
October, 2002 |
|
|
1.F |
Public
Awareness Material and manuals for functioning of DMMC as mentioned
earlier. These were developed specifically for the state and distributed
widely. The booklets and calendars and videos represent high quality
material contextualised for the hill districts of Uttaranchal. Master
copies and published sets have been supplied to the DMMC |
1.
Booklets in Hindi (3000 copies each) - Booklet on Repairs and Retrofitting
of houses- Booklet on Earthquake resistant house2. Leaflets in Hindi
(3000 copies each) - ‘Marammat’ - Repairs of houses
- ‘Majbootikaran’- Retrofitting of houses- ‘Bhukamp
Surakshit Ghar’ - Earthquake resistant housing3. Calendars
for year 2002 (3000 copies each) - Showing Earthquake Resistant
Construction methods4. Videos- ‘Shake table tests’ of
seismic performance of traditional versus retrofitted houses’
- Retrofitting of Traditional Housing |
|
|
1.H |
Provide
inputs to the state for designing activities and provide public
awareness material for State Day for Disaster Reduction (SDDR) in
UA. A list of probable events to be organized for public awareness
was prepared and discussed with the EA. |
Funding
for a painting competition and small events on State Day for Disaster
Reduction |
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
TA
RECOMMENDATIONS FOR INSTITUTIONAL ARRANGEMENTS, POLICY AND PLANNING IN
UTTARANCHAL
Enhancement of role of newly established Ministry of Disaster
Management and DMMC: The most important need at the State level
in Uttaranchal is to strengthen its capacity to undertake disaster mitigation
strategies. The emphasis must be on proactive pre-disaster measures rather
than post-disaster response. The state policy on disaster management needs
to be formalized, emphasizing pre-disaster mitigation (prevention and
preparedness) along with post-disaster relief and rehabilitation.
It becomes
essential for a permanent administrative structure, within the Ministry
of Disaster Management and the DMMC, involving local young professionals,
for the following:
-
monitor
the developmental activities across departments,
-
providing
suggestions for incorporating necessary mitigation measures
-
provide
an institutional memory for ongoing innovative initiatives in disaster
mitigation and management
-
ensure
proper enforcement of existing regulations and acts.
-
undertake
consultancy/projects in the field for financial sustainability
The DMMC
should be developed as an ‘Autonomous’ centre taking on
the role of providing technical support and expertise for all disaster
management activities undertaken by various sectors.
Establishment
of Emergency Operations Centres at State and District level:
The TA strongly recommends that an Emergency Operations Centre under
that Ministry of Disaster Management be established on an urgent basis.
It is envisaged that the EOC will be equipped with effective communications
and other necessary electronic equipment with basic staff, which will
expand immediately in the event of a disaster with personnel from various
departments, including DMMC, working here. Basic equipment has already
been purchased under this TA and supplied to the Executing Agency. District
Emergency Operations Centre should also be established in all the 13
districts of Uttaranchal on the similar lines of EOC under the state
government. This should be undertaken on priority in the 4 districts
of Kumaon Commissionary located in Zone 5.
Act
and Legislation
DMMC has developed a draft Disaster Management Act, which should be
speedily reviewed and taken up for enactment. All existing policy guidelines
and omnibus orders including some GRs should be brought under the purview
of Disaster Management Legislation and R&R policy. The existing
ad-hoc measures have to be replaced to the extent possible with more
definite arrangements. The legislative framework involving Town and
Country Planning Acts, Area Development Control Rules and Building Regulations
needs to be modified, to ensure safety from hazards in all future planning
of habitations, expansion of existing structures and new construction
of various types of buildings. Strengthening regulatory mechanisms will
be essential to ensure compliance of the various components of techno-legal
aspects.
Earthquake Vulnerability Reduction Management Action Plan
An entire document spelling out key steps to be taken to integrate mitigation
into long term development processes of the state has been prepared
(Annex I: 12). The steps proposed here should be reviewed carefully;
and an action plan developed for implementation.
Immediate Actions
•
New Government Buildings to Comply with National Building Code of
India
• Government Order for Detailing of Steel Bars in Reinforced
Concrete
• Level I Course in Earthquake-Resistant Construction
• Securing of Basic Electricity Supply Equipment
• State-Wide National Earthquake Day
Short-Term
Actions (within 5 years)
•
Emergency Operations Centre (EoC)
• Autonomous Disaster Management and Mitigation Centre
• State Registration of Experienced and Technically Qualified
Engineers and Architects
• Earthquake-Resistant Construction Taught at the Undergraduate
Level
• Securing of All Electricity Supply Equipment
• Encouragement Indian Society of Earthquake Technology to be
Active throughout Uttaranchal
• The development of Infrastructure at the District Level
• Vulnerability and Risk Assessment
Medium-Term
Actions (within 10 years), continued
•
Advanced Warning Systems
• District Emergency Operations Control Rooms
• All Public Health Centres and Schools Safe
• Earthquake-Resistant Community Water Tanks
• Building Technology Centre Operational in each District
• Hazard Resistant Home Improvement Program (Annex II-G: 5)
School
Earthquake Safety Campaign
Schools are key community buildings that need to be protected, since
they serve as an important community shelter after an earthquake, and
also are ideal as demonstrative projects for communities. A special
campaign needs to be undertaken-
·
To assess vulnerability to earthquakes and retrofit all public schools
in the state
· To promote earthquake resistant construction in all new schools
in the state
Some
initial steps were taken during the TA. A concerted plan needs to be developed
by DMMC and taken up for implementation. The TA recommends that restoration
and retrofitting of existing damaged school/health buildings under the
Local Area Development schemes be undertaken from the funds available
with the Members of Legislatures of State as well as the Center.
Techno-financial
aspects
Disaster safety must be an essential component in all projects supported
by various financing organizations. Housing and Construction Financing
institutions must include giving loans/grants for retrofitting of houses
and institutional/community buildings, which are found to be unsafe
to withstand earthquakes of intensities endangering life and property.
Insurance
Insurance is a mechanism for spreading the cost of losses both over
time and over a relatively large number of similarly exposed risks.
The introduction of disaster-linked insurance is recommended, but it
requires careful thought before implementation. One of the difficulties
in promoting disaster insurance is that those who are at highest risk
have the least capacity to pay the premiums. Possibilities of group/community
insurance could be explored, particularly for the marginalized communities.
The insurance agencies may be asked to promote a Community Rating System
to encourage communities to go beyond the required standards of minimum
safety.
Enhanced
capacity for Response and Rescue:
A task force for ‘Response and Rescue’ should be constituted
in Uttaranchal involving Police department as the ‘First Responders’.
Such task forces should be constituted at the State, District, Tahsil
and Village level, with training.
Issues at Policy Level that need to be addressed are as follows:
1. Policy Issues
·
Mitigation regulations
· Incentives and resources for mitigation
· Conditions for relief
·
Institutional and technical capabilities
· Enforcement
· Public information
·
Financing mitigation investment
· Insurance
· Safety standards
Integrating
Disaster Reduction in School and College Curriculum
It is recommended that the Board of Technical Education develop inclusion
of earthquake engineering fundamentals in the civil engineering curriculum
and pass the same. One of the state engineering colleges, should be
strengthened (Dwarahat college recommended during the workshop) for
teaching Earthquake Engineering curriculum in Civil Engineering for
Uttaranchal. Disaster Protection must be included in Primary to High
School Education, Institutes of Technology, Polytechnics and Engineering
Education (Curriculum development and training of teachers).
Human
Resources Development
· Training of Municipal and Panchayat personnel on Earthquake
Resistance Regulations Implementation
· Training of Masons on Retrofitting of Non-engineered structures
· Training of teachers on Earthquake Engineering Curriculu
· TV and Radio programs on Earthquake Preparedness and Preventative
Measures in new constructions and strengthening of existing buildings
· Demonstrative construction in rural and semi-urban areas
Public
Awareness
A State-wide Campaign for Disaster Reduction should be observed every
year during which massive public awareness programs need to be run.
This program will bring about awareness amongst the people about better
implementation of building codes, safer and low cost construction techniques
and they will be better prepared to deal with a disaster. Every year
the Disaster Reduction day must be observed in each district. Public
Awareness videos, calendars and booklets produced under this TA should
be utilised for this. Some evacuation drills could be taken up in schools
and other places of public gathering. There is a need to bring awareness
at all levels of society, first of all, a high-level awareness program
for decision makers regarding safety against natural hazards, which
could be inaugurated by Chief Minister. Over the years a state week
for disaster reduction could be observed starting from October 21 (anniversary
of Uttaranchal earthquake) to October 29 (National day for disaster
reduction and anniversary of Orissa cyclone).
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
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 |