5 Policy Planning Issues and Institutional Framework in Disaster Management

Lakshman Lakshman

Introduction

India is vulnerable to a large number of natural as well as man-made disasters of varying magnitudes. It is significant that Disaster Management (as a subject) is not mentioned in any of the three lists of the constitution’s seventh schedule i.e. union, state and concurrent list . However, certain landmark decisions and programmes have given disaster management, the necessary focus and substance in our country. To stitch up the loose ends, various initiatives have been taken up to fix the responsibility and accountability of stakeholders and therefore, proper institutional mechanism is established in India to manage disasters effectively at all levels.

Emergence of Policy Planning Issues at the International Level

In 1989, the UN General Assembly declared the decade of 1990-2000 as the “International Decade for Natural Disaster Reduction” (IDNDR). The objectives of IDNDR were to reduce the loss of lives, damages of properties as well as social and economic disruption caused due to natural disasters especially in developing countries. It was targeted that by the year 2000, all countries must have comprehensive national assessments of risks from natural hazards; mitigation plan involving prevention, preparedness & community awareness; & ready access to global, regional, national and local warning systems and widespread dissemination of such warnings.

In 1994, a conference of the IDNDR was held in Yokohama (Japan) in which plan of action was formulated to have paradigm shift from culture of response and relief to culture of prevention, mitigation and preparedness. It was known as YOKOHOMA STRATEGY.

In the year 2000, a historical decision was taken .United Nations formulated the “International Strategy for Disaster Risk Reduction (ISDR)” which aimed to provide a global framework in order to foster resilience of communities to the effects of natural hazards through the implementation of risk management, hazard mitigation and sustainable development.

In 2005, World Conference on Disaster Reduction was held in Kobe (Hyogo), Japan wherein “HYOGO framework for Action 2005-2015” was formulated. The main objectives of this conference were to review the Yokohama Strategy and its plan of action; to share good practices and lessons learnt and to identify gaps and challenges; to increase awareness of the importance of disaster reduction policies; & to increase the reliability and availability of appropriate disaster related information to the public and disaster management agencies in all regions.

The plan of action of Hyogo Framework was to ensure that Disaster risk Reduction is a national and local priority with strong institutional basis for implementation; to identify, assess and monitor disaster risks and enhance early warning; use knowledge, innovation and education to build a culture of safety and resilience at all levels; reduce the underlying risk factors; and strengthen disaster preparedness for effective response at all levels.

The “Sendai Framework for Disaster Risk Reduction 2015 – 2030” set 4 priorities for action i.e. understanding disaster risk; strengthening disaster risk governance to manage disaster risk; investing in disaster risk reduction for resilience; and enhancing disaster preparedness for effective response and to “build back better” in recovery, rehabilitation and reconstruction. By 2030, the Sendai Framework aims to achieve substantial reduction of disaster risk and losses in lives, livelihoods, and health and in the economic, physical, social, cultural, and environmental assets of persons, businesses, communities, and countries.

Policy Planning and Institutional Framework at National Level

In the decade of 1990s, a permanent and institutional set up for disaster management began as a cell under the Ministry of Agriculture following the declaration of “International Decade for Natural Disaster Reduction” (IDNDR) by the UN General Assembly. Following series of disasters such as Latur Earthquake (1993), Malpa Landslide (1994) & Orissa Super Cyclone (1999), a High Powered Committee (HPC) was constituted under the Chairmanship of Sh. J C Pant, Secretary, Ministry of Agriculture for drawing up a systematic, comprehensive and holistic approach towards disasters. The report of HPC mentioned the need of shift in policy from a relief centric approach to holistic disaster management approach focussing early warning, mitigation and preparedness measures. After Bhuj Earthquake in 2001, the disaster management division was shifted under the Ministry of Home Affairs in 2002 vide Cabinet Secretariat’s Notification and the institutional framework in hierarchical structure for disaster management evolved in India. At present, the ‘Nodal Ministry’ in the central government for the management of natural disasters is the Ministry of Home Affairs.

Following the report of High Powered Committee on Disaster Management for the establishment of a separate institutional structure pertaining to addressing disasters and enactment of a suitable law for institutionalizing disaster management in the country, a multi level links between different ministries and the disaster management framework was emerged. The present setup is multi-stakeholder involving various ministries, departments and administrative bodies which functions at the four levels i.e. centre, state, district and local.

Figure 1

National Disaster Management Structure

When calamities of severe nature occurs, the Central Government is responsible for providing aid and assistance to the affected states, including deploying of Armed Forces, Central Paramilitary Forces, National Disaster Response Force (NDRF), and such communication, air and other assets, as they are available and needed at the state’s request. Central Government also ensures that all ministries and departments integrate measures for the prevention and mitigation of disasters into their developmental planning and projects, make appropriate allocation of funds for pre-disaster requirements and take necessary measures for preparedness and to effectively respond to any disaster situation. If required, Central Government also facilitate coordination with UN agencies, international organisations and governments of Foreign Countries in the field of disaster management. From time to time, Central Government also establish hazard-specific nodal ministries/ departments to function as leading agency for particular disasters.

Table No. 1

Type of Disaster /Crisis and the Nodal Central Ministry

   Disaster Management Act, 2005

The Disaster Management Act, 2005 was passed by the Rajya Sabha on 28 November, and by the Lok Sabha, on 12 December 2005. It received the assent of the President of India on 23 December 2005. The Disaster Management Act, 2005 has 11 chapters and 79 sections that extend to the whole of India. The Act provides for “the effective management of disasters and for matters connected there with or incidental threat.” The Act lays down institutional, legal, financial and coordinated mechanism for Disaster Management at the National, State, District and local levels through National Disaster Management Authority, State Disaster Management Authority and District Disaster Management Authority. These institutions are not parallel structures but work in close harmony as and when need arises.

 National Disaster Management Authority (NDMA)

NDMA is the apex body of disaster management with the Prime Minister of India as the chairperson. The aim of the establishment of National Disaster Management Authority is to build a safer and disaster resilient India by developing a holistic, proactive, multi-disaster and technology driven strategy for disaster management. NDMA which was initially established on 30 May 2005 by an executive order, was constituted under Section-3(1) of the Disaster Management Act, on 27 September 2006. The authority has nine members (reduced to 4) board including a Vice-Chairperson. The remainder of the board consists of members nominated based on their expertise in areas such as, planning, infrastructure management, communications, meteorology and natural sciences. The tenure of the members of the NDMA shall be five years.

The NDMA is responsible for laying down the policies, plans and guidelines for disaster management and to ensure timely and effective response to disasters. It has also approved the National Disaster Management Plan and looks after the DM plans of Central Ministries/ departments. Under section 6 of the Act, it is also responsible for laying down guidelines to be followed by the state authorities in drawing up the state plans. NDMA is operationally organized into five divisions-Policy & Planning; Mitigation; Operations & Communications; Administration; and Capacity Building.

NDMA formulate guidelines and facilitate training and preparedness activities in respect of CBRN emergencies. Other cross-cutting themes like medical preparedness, psycho-social care and trauma, awareness generation, etc. are also looked after by NDMA along with concerned stakeholders. NDMA also oversee the provision and application of funds for mitigation and preparedness measures.

National Executive Committee

Under Section 8 of the Disaster Management Act, 2005, the Central Government has constituted a National Executive Committee (NEC) to assist the National Disaster Management Authority in discharging its functions and also to ensure compliance of the directions issued by the Central Government. NEC comprises of the Union Home Secretary as Chairperson and Secretary level officers of the Government of India in the ministries/ departments of Agriculture, Atomic Energy, Defence, Drinking Water Supply, Environment and Forests, Finance (expenditure), Health, Power, Rural Development, Science and Technology, Space, Telecommunication, Urban Development, Water Resources and the Chief of the Integrated Defence Staff of the Chiefs of Staff Committee, as members.

The National Executive Committee (NEC) works as coordinating and monitoring body for disaster management under the guidelines of NDMA. Besides being responsible for the preparation of the National Disaster Management Plan based on National Policy on Disaster Management and to ensure that it is reviewed and updated annually, the committee also provides necessary technical assistance to the state governments and the state authorities for preparing their disaster management plan, etc.

National Institute of Disaster Management (NIDM)

The Section 42 of the Disaster Management Act, 2005 enforced the establishment of National Institute of Disaster Management. The main focus of NIDM is capacity building along with training, research, documentation and development of national level information base. NIDM works in partnership with other research institutions within the broad policies and guidelines laid down by the NDMA.

National Disaster Response Force (NDRF)

Under chapter 7, section 44–45 of the Disaster Management Act, the National Disaster Response Force (NDRF) has been constituted “for the purpose of specialist response to a threatening disaster situation or disaster”. The NDRF is multi disciplinary, multi skilled, high tech force capable to tackling all types of natural and man-made disasters. It works under the leadership of Director General appointed by the Central Government. But the general superintendence, direction and control of this force vested in and exercised by NDMA. This force is one of its kinds of single largest stand-alone disaster response force in the world. Presently, there are 12 battalions in the country located at Guwahati (Assam), Nadia (West Bengal), Odisha, Vellore (Tamil Nadu), Pune (Maharashtra), Gandhinagar (Gujarat), Bhatinda (Punjab), Gaziabad (UP), Patna (Bihar), Guntur (AP), Varanasi (UP) and Itanagar (Arunachal Pradesh). The battalions of NDRF are composed from three Border Security Force, three Central Reserve Police Force, two Central Industrial Security Force, two Indo-Tibetan Border Police and two Sashastra Seema Bal (SSB). Each battalion has 18 self contained special search and rescue teams of 45 personnel each including engineers, technicians, electricians, dog squads and medicos/ paramedics. NDRF in addition to being able to respond to natural disasters, has four battalions capable of responding to radiological, nuclear, biological and chemical disasters. NDRF units maintain close liaison with the designated state governments and are available to them in the event of any serious threatening disaster situation.

National Advisory Committee

The Section 7 of Disaster Management Act, 2005 deals with the formation of National Advisory Committee (NAC). The committee is constituted under the supervision of Chairman, NDMA. The committee includes experts, scientists and researchers having practical experience of disaster management at the national, state or district level. The committee prepares research based recommendations on different aspects of disaster management and also gives advice to NDMA regarding formulation of policy at central and state level.

High Level Committee (HLC)

The High Level Committee (HPC) is comprised of Finance Minister as the Chairman and the Home Minister, Agriculture Minister and Deputy Chairman of Planning Commission as members. The Vice Chairman, NDMA is the special invitee to HLC.

In case of calamities of severe nature, Inter-Ministerial central teams are deputed to the affected states for assessment of damage caused by the calamity and the amount of relief assistance required. The Inter-Ministerial Group (IMG) is headed by the Union Home Secretary who recommends the quantum of assistance to be provided to the states from National Calamity Contingency Fund. The damage assessment of drought, hailstorm and pest attack is headed by Secretary, Ministry of Agriculture and Cooperation. The committee review and approves the Central assistance to be provided to the affected states based on recommendations of IMG.

The National Calamity Contingency Fund (NCCF) which was created in 2000-01 by the Government of India with an objective of providing assistance to disaster affected states has been merged with National Disaster Response Fund since 2010, is now operated by a High level Committee.

National Crisis Management Committee (NCMC)

The National Crisis Management Committee is headed by Cabinet Secretary of the Government of India. NDMA is mandated to deal with all types of disasters- natural and man-made. Whereas such other emergencies of national level including those requiring close involvement of the security forces and/or intelligence agencies like terrorism, law and order situation, serial bomb blasts, hijacking, air accidents, CBRN weapon system, mine disasters, port and harbour emergencies, forest fires, oilfield fires and oil spills are handled by the National Crisis Management Committee. It is supported by the Crisis Management Groups (CMG) of the Central Nodal Ministries and assisted by NEC as and when necessary. The Crisis Management Group is headed by the Central Relief Commissioner

Institutional Framework at the State Level

The responsibility for Disaster Management in India’s federal system is that of the state government whereas the central government play a supporting role. The Disaster Management Act 2005 has earmarked the responsibility of state government to handle the disasters with more efficiency to minimise the loss.

State Disaster Management Authority (SDMA)

All the state governments are mandated under Section 14 of the Disaster Management Act to establish a State Disaster Management Authority (SDMA). The Chief Minister of the state is the chairperson of SDMA, and the other eight members are appointed by the Chief Minister. One of these member is designated as Vice Chairman. The SDMA is mandated under section 28 to ensure that all the departments of the State prepare disaster management plans as prescribed by the National and State Authorities. SDMA lays down policies and plans for DM in the state. It also coordinate the implementation of the state plan, recommend provision of funds for mitigation and preparedness measures and review the developmental plans of the different departments to ensure the integration of prevention, preparedness and mitigation measures. The State Disaster Mitigation Fund is available with SDMA.

State Executive Committee

To assist and support SDMA, the concerned state governments constitute a State Executive Committee (SEC) under Section 22 of Disaster Management Act, 2005. The Chief Secretary of the state government is the Chairman of SEC. The Committee has to prepare the State Disaster Management Plan which would include assessment of vulnerability of different parts of the state to different forms of disasters; measures to be adopted for prevention and mitigation of disasters; capacity building; and role of departments of State government. Apart from the planning aspect it is also involved in taking up and supervising relief and rescue operations at the time of disaster and in disseminating information about any impending disaster. SEC also coordinates and monitors the implementation of the National Policy on Disaster Management 2009, National Plan and State Plan and also provides information to NDMA related to different aspects of disaster management.

At the state level, the Calamity Relief Fund (CRF) is replaced by State Disaster Response Fund (SDRF) constituted under Section 48 (1a) of DM Act, 2005 and is available to the State Executive Committee.

District Disaster Management Authority

At the district level, the structure of disaster management institutions goes down to the district level where the District Disaster Management Authority is formulated under Section 25 of the Disaster Management Act, 2005. The Chairperson of District Disaster Management Authority (DDMA) is the District Collector or District Magistrate or Deputy Commissioner as the case may be with the elected representative of the local authority as an ex officio co-Chairperson. The DDMA acts as the planning, coordinating and implementing body for disaster management at the district level. It prepares the District Disaster Management Plan and ensures that the guidelines laid by NDMA and SDMA for prevention, mitigation, preparedness and response measures are followed by all the departments at the district level. It also monitors the implementation of the National Policy, State Policy, National Plan, State Plan and District Plan. The District Disaster Response Fund and District Disaster Mitigation Fund are available with the DDMA.

Local Authorities

The local authorities ensure the capacity building of their officers and employees for managing disasters, carrying relief, rehabilitation and reconstruction activities in the affected areas. Local authorities include Panchayati Raj Institutions (PRI), Municipalities, District and Cantonment Boards, Town Planning authorities which control and manage civic services.

Institutional Arrangement for Disasters Impacting more than one State

In case of disasters affecting more than one state, the management of such situation would be done through establishment of mechanisms in lines of Mutual Aid Agreement for coordinated strategies dealing with them by the states, central ministries and departments and other agencies concerned.

Other Institutional Arrangements for Disaster Management

Under the special circumstances, where civil administration is unable to manage the disaster situation, the other forces like army, central paramilitary forces, etc. are mobilised to assist and manage the situation. In practice, however, the armed forces form an important part of the Government’s response capacity and are immediate responders in all serious disaster situations. They also play major role in emergency support functions like communication, search and rescue operations, medical facilities and transportation.

Central Paramilitary forces also play a key role at the time of immediate response to disasters. Besides contributing to the NDRF, they are also required to develop adequate disaster management capability within their own forces and respond to disasters which may occur in the areas where they are posted.

State Police and Fire Services are other vital responders to disaster.

In 2009, Civil Defence Act is amended to bring disaster management in the area of operation of civil defence agencies.

References

• Report of High Powered Committee on Disaster Management, October 2001. Disaster Management Act, 2005.
• National Policy on Disaster Management, 2009.
• Disaster Management in India: A Status Report (2004).
• Government of India (1997): Vulnerability Atlas of India. National Disaster Management Plan, 2016.
• Disaster Risk Reduction – Global Overview 2007, United Nations
• Training Manual Booklet 1: Conceptual and Institutional Framework of Disaster Management prepared by NDMA and IGNOU.
• www.nidm.gov.in www.unisdr.org www.ndma.gov.in www.ndrf.gov.in/
• https://en.wikipedia.org/wiki/Disaster_management_in_India
• www.teriin.org/events/docs/smallpdf/Santo3.pd
• http://indianewsandissues.blogspot.in/2013/10/disaster-management-in-india.html