Disaster response and the role of stakeholders in coordinating disaster response

Criminology

Internal Security Management

Disaster response and the role of stakeholders in coordinating disaster response

Role Name Affiliation

Principal Investigator Prof. G.S. Bajpai Professor and Registrar, National Law University, Dwarka, Delhi

Paper Coordinator Dr. Hunny Matiyani Assistant Professor, LNJN National Institute of Criminology & Forensic Science, Delhi

Content Writer/Author Dr. Amir Ali Khan Assistant Professor, NIDM Content Reviewer Dr. Hunny Matiyani Assistant Professor, LNJN

National Institute of Criminology & Forensic Science, Delhi

DESCRIPTION OF MODULE

Items Description of Module

Subject Name Criminology

Paper Name Internal Security Management

Module Name/Title Disaster Management and Disaster Preparedness Module Id

Objectives Learning Outcome:

 To make the learners understand the concept, of disaster response.

 To make the learners understand role of different stakeholders in making effective response at various level.

Prerequisites Familiarity with the geography of the country.

Key words Response, ESF, PDNA, building back better, NDRF/SDRF

DISASTER RESPONSE AND THE ROLE OF STAKEHOLDERS IN COORDINATING DISASTER RESPONSE

23.1 DISASTER RESPONSE

India is prone to disasters of different kinds. Disasters keep on happening at national level on regular basis. Due to disaster events happening on regular intervals country face huge economic losses amounting up to two percent of country’s GDP¹. At the same time, increasing vulnerabilities making it difficult for communities to cope with the disasters without external assistance. To overcome such situations, India has been in forefront of enhancing capacities through a variety of risk reduction initiatives including community based disaster risk management and mitigation. Despite best efforts communities require assistance from response forces for search and rescue operations and providing relief immediately after big disaster event. Thus, disaster response is an integral part of disaster management framework.

Disaster response² as per UNISDR terminology consists of "the provision of emergency services and public assistance during or immediately after a disaster in order to save lives, reduce health impacts, ensure public safety and meet the basic subsistence needs of the people affected. Disaster response is predominantly focused on immediate and short-term needs and is sometimes called "disaster relief". Thus, disaster response includes activities/actions those are performed immediately before, during and after the disaster event. The basic purpose of disaster response is to provide emergency assistance to the affected community and to reduce the further impact of disaster in terms of secondary disasters. The activities/actions performed during disaster response generally help in limiting causalities/death, reduce hardship and suffering of the affected community, restoration of lifeline services (such as water supply, electricity supply, communication, etc.) and support system of the affected community, reducing the damage and loss due to disaster and laying the foundation for robust recovery. The disaster emergency response can, thus, be grouped into the following stages:

 Forecasting and early warning (end to end EWS);

 Evacuation and putting people at safer locations where it is possible and providing necessary items for sustenance during this period;

1 MHA

2 UN ISDR

 Search and rescue of the affected people - depending upon type of disaster such efforts may require searching and rescuing persons who may be trapped under damaged buildings and/or under debris, trapped on isolated places due to high floodwaters, or need rescuing for any other reason like fire incidents, road/rail accidents etc.;

 Shifting the affected people to relief camps and after some time to temporary shelters.

The relief camps/temporary shelters may be started, depending on the local situation, in the newly erected tents, schools, and/or community/religious places etc. depending on the type of disaster the temporary shelters may continue from few day/week to several years. At this stage arrangements for necessary food/water and other necessary supplies including medical assistance have to be made. Similarly, arrangements for socio-economic rehabilitation of the affected community have to be made, in case people are going to stay in such camps for long. For this purpose small grants and/or soft loans have to be arranged to start the livelihood by the affected community e.g.

after tsunami (2004) fishermen community lost boats etc. and require some assistance to start fishing again;

 Providing necessary medical and psycho-social assistance to the affected people, which may include providing first aid to the injured, identification of needs in terms of medical treatment, hospitalization etc. At the same time identification/tagging (triage) and disposal of the dead;

 Undertaking post disaster needs assessment (PDNA). This is done to assess the damages and losses due to a particular event and to assess the requirements to rehabilitate and reconstruct the affected area. During PDNA damages from all sectors are included into the calculations which may include damages to sectors like housing, transportation, agriculture, health, rural and urban development etc.;

 Making efforts to restore the affected area as a short term recovery efforts; and

 Initiating long term recovery and reconstruction of disaster affected areas. At this stage efforts are made to rebuild the disaster affected areas. While going for rebuilding the affected area approach like building-back-better (BBB) is adopted to avoid the damages in next disaster. Under the BBB approach efforts are made to incorporate the building codes and guidelines using the services of professional like engineers and architects.

23.2 DISASTER MANAGEMENT AND RESPONSE - NODAL MINISTRIES

Disaster Management, as per the Constitution of India, is a state subject, where Central Government assist the affected state in terms of finances and other logistical support.

However, there are different Ministries at Government of India level which are responsible for managing disasters falling under their domain areas. The nodal Ministries (Central Government level) responsible for various disasters are as follows:

Disasters Ministries/Departments

Earthquakes and Tsunami MHA/Ministry of Earth Sciences/IMD

Floods MHA/Ministry of Water Resources/CWC

Cyclones MHA/Ministry of Earth Sciences/IMD

Drought Ministry of Agriculture

Biological Disasters Ministry of Health and Family Welfare Chemical Disasters Ministry of Environment & Forests Nuclear Disasters Department of Atomic Energy Air Accidents Ministry of Civil Aviation Railway Accidents Ministry of Railways

23.3 STAKEHOLDERS IN DISASTER RESPONSE

After enactment of the DM Act (2005), there exist a three tier system for disaster management and response. The three tier system is comprised of stakeholders responsible for making not only administering disaster management but also for prompt response to any disaster situation. The existing system and different stakeholders can be discussed as following:

23.3.1 National Level Institutions

23.3.1.1 National Disaster Management Authority (NDMA)

The National Disaster Management Authority (NDMA) was established under the chairmanship of the Prime Minister. The NDMA has been mandated with laying down policies on disaster management and guidelines which would be followed by different Ministries, Departments of the Government of India and State Government in taking measures for disaster risk reduction. It has also

to laid down guidelines to be followed by the State Authorities in drawing up the State Plans and to take such measures for the management of disasters.

23.3.1.2 National Executive Committee (NEC)

The DM Act (2005) mandates constitution of a National Executive Committee to assist the National Authority in the performance of its functions. NEC is chaired by the Home Secretary as, ex-officio, and Secretaries to the Government of India in the Ministries or Departments having administrative control of the agriculture, atomic energy, defence, drinking water supply, environment and forest, finance (expenditure), health, power, rural development science and technology, space, telecommunication, urban development, water resources as members. The Chief of Integrated Defence Staff of the Chiefs of Staff Committee, ex-officio, is also its Members. The NEC may as and when it considers necessary constitute one or more sub-committees for the efficient discharge of its functions. The NEC has been given the responsibility to act as the coordinating and monitoring body for disaster management, to prepare a National Plan, monitor the implementation of National Policy etc.

23.3.1.3 National Crisis Management Committee (NCMC)

The National Crisis Management Committee (NCMC) under the Cabinet Secretary is responsible for the command, control and coordination national level response to disaster situation. The NCMC issues guidelines from time to time as required for effective response to natural disasters. All Ministries/Departments/Agencies at the national level comply with the instructions of NCMC.

23.3.1.4 Disaster Management (DM) Division of Ministry of Home Affairs

The Ministry of Home Affairs is the nodal agency at the National level for coordination of response and relief in the wake of natural disasters (except drought, pest attack and hailstorm). On behalf of MHA, DM Division plays a critical role by closely monitoring disaster events happening at national level. The DM Division is mandated to facilitate strategic interventions in form of logistical and financial support from the Government of India to the affected States and UTs. The DM Division maintains close liaison with the affected States on the one side and the concerned Central line Ministries on the other. In addition, the Division coordinates the meetings at Central government level and brings out

the daily situation report with details indicating the requirements of the affected states and progress made in successfully managing the disaster event.

The other concerned Central Ministries/Departments/Organisations render Emergency Support Functions (ESF) wherever Central intervention and support are needed by the State Governments. After a major disaster, assistance from the Central Government is provided under the Plan for ESFs. The National Emergency Operation Centre, generally activate the ESFs. The Ministry/Department/Agency responsible for each ESFs look into the demand and identify requirements directly in consultation with their counterparts in affected States. The concerned Ministry/Department/Agency mobilizes and deploys resources to the affected areas to assist the States/UTs in its response action. The concerned Ministry/Department/Agency maintains resources (manpower and materials) for mobilization during the disaster situation and maintains an inventory of all the resources available/required during disaster. For smooth functioning the concerned Ministry/Department/Agency can enter into pre- contracts for supply of resources. Primary Agency for each ESF is given in the following table:

ESF No.

ESF Primary Agency

1. Communication Ministry of Communication

2. Public Health and Sanitation

Ministry of Health and Family Welfare

3. Power Ministry of Power

4. Transport Ministry of Transport

5. Search and Rescue Ministry of Defence/Ministry of Home Affairs

6. Public Works and Engineering

Ministry of Urban Affairs and Poverty Alleviation

7. Information and Planning Ministry of Information and Technology 8. Relief Supplies Ministry of Planning and Programme

Implementation

9. Food Department of Food and Public Distribution

10. Drinking Water Department of Drinking Water

11. Shelter Ministry of Urban Affairs and Poverty

Alleviation

12. Media Ministry of Information and Broadcasting

13. Help lines Ministry of Home Affairs

National Emergency Operation Centre (NEOC)

There is a National Emergency Operation Centre (NEOC) under the Ministry of Home Affairs which gets activated on receipt of information either from State/District or from Early

Warning Agencies or any other reliable sources about the impending disaster and/or after a disaster event has taken place. The NEOC collects all relevant information for appraisal of the concerned authorities. The NEOC activates ESFs in case central assistance to affected States/UTs has to be provided. The NEOC prepares Daily Situation Report (SITREPs).

23.2.1.5 National Institute of Disaster Management (NIDM)

The Disaster Management Act (2005) entrusted statutory status to erstwhile National Centre for Disaster Management/National Institute of Disaster management. The Disaster Management Act (2005) delegates the Institute with numerous responsibilities, namely to develop training modules, undertake research and documentation in disaster management, organize training programmes, undertake and organize study courses, conferences, lectures and seminars to promote and institutionalize disaster management, undertake and provide for publication of journals, research papers and books.

23.2.1.6 National Disaster Response Force (NDRF)

The DM Act (2005) has made provisions for constitution of National Disaster Response Force (NDRF). The NDRF was established, initially, by up-gradation/conversion of eight standard battalions of Central Para Military Forces i.e. two battalions each from Border Security Force (BSF), Indo-Tibetan Border Police (ITBP), Central Industrial Security Force (CISF) and Central Reserve Police Force (CRPF). The aim of establishment of the NDRF was to build a specialist force to respond to disaster or disaster like situations which broadly covers:

• NBC disasters (Decontamination of the area and personnel)

• Removal of debris

• Extrication of victims- live or dead

• First medical response to victims

• Extend moral support to victims

• Assistance to civil authorities in distribution of relief material

• Co-ordination with sister agencies

• Capacity building

• Providing assistance to foreign countries, if asked

The ten battalions (1 battalion comprised of nearly 1000 person) of NDRF consist of 144 specialized teams trained in various types of natural, man-made and non-natural disasters.

72 of such teams are designed to cater to the Chemical, Biological, Radiological and Nuclear (CBRN) calamities besides natural calamities. Each NDRF battalion consists of 1149 personnel organized in 18 teams comprising of 45 personnel, who are being equipped and trained for rendering effective response to any threatening disaster situation or disaster, both natural and man-made. All these ten battalions are being trained in natural disasters while four of them are being additionally trained for handling CBRN disasters. Based on vulnerability profile of different regions of the country, these specialist battalions have been presently stationed at the following places as may be seen from the map in Figure ----.

Figure --: Location of NDRF Battalions

23.2.2 State level Institutions

The DM Act (2005) provides for constitution of State Disaster Management Authority (SDMA) and DDMAs in all the states and UTs. All states have constituted SDMAs. The Act envisages establishment of State Executive Committee (SEC), to be headed by Chief Secretary of the concerned state with four other Secretaries of departments. It has the responsibility for coordinating and monitoring the implementation of the National Policy, the National Plan and the State Plan. Many State Governments/SDMAs have created St ate Disaster Response Force (SDRF) to meet the challenge of effective response in the aftermath of state level disaster events.

Department of Relief/ Disaster Management is the nodal department for disaster management and Secretary of the Department /Relief Commissioner is responsible for implementation of the decisions of the SEC pertaining to State level response to natural disasters. Disaster response being a multi-agency function, other Departments of the State Governments provides emergency support in their relevant domains at the State/District levels.

There are provisions for State Emergency Operation Centre (SEOC) in every State/UTs. The SEOC is activated on receipt of information either from NEOC/DEOC or from Early Warning Agencies or any other reliable sources. The SEOC c o m p i l e s a n d s h a r e s t h e First Information Report w i t h NEOC and keep on issuing Daily Situation Reports. The SEOC issue alerts/warning to all concerned at the State and District levels including for Public Information to AIR/Doordarshan/Press. The SEOC activates State level ESFs. There are provisions for sufficient manpower and equipment for smooth functioning of SEOC on 24x7 basis round the year.

23.2.1.3 District level Institutions

23.2.1.3. 1 District Emergency Operation Centre (DEOC)

Every District has a District Emergency Operation Centre (DEOC). The DEOC gets activated after receipt of information either from NEOC/SEOC or some other reliable sources. The DEOC collects relevant sends First Information Report to SEOC and NEOC and prepares Daily Situation Reports. The DEOC issues alerts/warning to all stakeholders at the District level. In addition, the DEOC has to maintain all relevant records and documents related to the response operations. In case there is a need, the DEOC activates District level

ESFs.

23.2.1.3.2 District Disaster Management Authority (DDMA)

The DM Act (2005) provides for constitution of DDMA for every district of a state. The District Magistrate/ District Collector/Deputy Commissioner heads the Authority as Chairperson and Chairperson of Zila Parishad shall be the Co-Chairperson of DDMA. Other members of this authority include the CEO of the District Authority, Superintendant of Police, Chief Medical Officer of the District and other two district level officers are designated by the state Government. The DDMA is responsible for planning, coordination and implementation of disaster management and to take such measures for disaster management as provided in the guidelines. The District Authority also has the power to examine the construction in any area in the district to enforce the safety standards and also to arrange for relief measures and respond to the disaster at the district level.

23.3 Other Agencies involved in disaster response

Generally, community is the first responder in case of disaster events are happening without early warning. In such efforts local NGOs and community based organizations help the affected people.

However, the first responders include local police, State Disaster Response Force (SDRFs), Fire and Medical Services. Civil Defence, Home Guards and organizations such as NCC, NSS and NYKS also helps in defusing the crisis situation.

Armed Forces

Establishment of NDRF has reduced deployment of the Armed Forces considerably.

Armed Forces are generally deployed only in case of big disaster events where the situation is beyond the functional capacity of the NDRF.

Civil Defence

After the amendment to the Civil Defence Act (1968) in 2010, the Act mandated Civil Defence to cater to the needs of disaster management so as to utilize the services of Civil Defence volunteers effectively for enhancement of public participation in disaster management related activities in the country.

Fire Services

Fire services are mandate for protection and prevention of fire and safety of people form such incidents. Presently fire prevention and fire fighting services are organized by the concerned States and UTs. Ministry of Home Affairs, Govt. of India, renders technical advice to the States and UTs and Central Ministries on issues concerning fire.

Home Guard

The role of Home Guards is to serve as an auxiliary to the police in the maintenance of law and order, internal security and help the community in any kind of emergency such as air-raid, fire, cyclone, earthquake, epidemic etc. They are also expected to help the police in maintenance of communal harmony, assist the administration in protecting weaker sections, participate in socio-economic and welfare activities and perform Civil Defence duties.

The combined strength of the all disaster responders is given in the following table. Figure 1 and 2 show the disaster response system at national level.

S. No. Name of Organization Strength

1. NDRF 11,500

2. SDRF 6,000

3. Civil Defence 5,60,000

4. Home Guards 4,50,000

5. Fire and Rescue Services 1,25,000

Source: NDRF 23. 4 Summing Up

Government of India has realized the importance of disaster risk reduction and is perusing a policy on DRR very seriously. Post Sendai Declaration (2015) India has been on forefront of fulfilling its commitments in the area of disaster risk reduction not only at national level but also at international level. India has successfully hosted the Asian Ministerial Conference on Disaster Reduction (AMCDRR) in November, 2016 and adopted 'New Delhi Declaration' and 'Regional Action Plan for implementation of the Sendai Framework'. During AMCDRR, 2016, Government of India has extended a grant of US $ 1 million to UNISDR towards effective implementation of the Sendai Framework for Disaster Risk Reduction in this Region. In line with Sendai priority 4, National

Disaster Response Force (NDRF) is continuously being strengthened, both in terms of state-of-the-art training and equipment to further empower it. Besides, Government of India has approved the creation of National Disaster Response Reserve³ (NDRR) through a revolving fund of Rs.250 crore to be operated by the NDRF. The purpose of creating National Disaster Response Reserve (NDRR) is to mitigate the sufferings of the victims of the disasters and readily make available items commonly required for rendering relief in disasters which are beyond coping capacity of the States. It is expected that this dedicated fund would enable NDRF to maintain a ready inventory of emergency goods and services comprising tents, medicines, food items, etc.

3 NDMA

Figure 1: Response system at national level

Figure 2: Comprehensive Framework for disaster risk management and response at national level