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NATIONAL POLICY
ON
DISASTER MANAGEMENT
2009
NATIONAL DISASTER MANAGEMENT AUTHORITY
GOVERNMENT OF INDIA
MINISTRY OF HOME AFFAIRS
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National Policyon
Disaster Management
2009
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National Policyon
Disaster Management
2009
Approved by the Union Cabinet on 22nd October, 2009
NATIONAL DISASTER MANAGEMENT AUTHORITY
GOVERNMENT OF INDIA
MINISTRY OF HOME AFFAIRS
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Contents
1 Preamble 1
1.1.1 TheContext 1
1.2.11.2.2 DisasterRisksinIndia 1
1.3.1 ParadigmShiftinDisasterManagement(DM) 1
2 Approach and Objectives 7
2.1.1 Vision 7
2.2.12.2.2 DisasterManagement(DM) 7
2.3.1 Approach 8
2.4.1 Objectives 8
3 Institutional and Legal Arrangements 9
3.1.1 DisasterManagementAct,2005 9
Institutional Framework under the Act 9
3.2.13.2.3 NationalDisasterManagementAuthority(NDMA) 9
3.2.43.2.5 NationalExecutiveCommittee(NEC) 10
3.2.63.2.7 StateDisasterManagementAuthority(SDMA) 10 3.2.8 DistrictDisasterManagementAuthority(DDMA) 10
3.2.9 LocalAuthorities 10
3.2.10 NationalInstituteofDisasterManagement(NIDM) 11
3.2.11 NationalDisasterResponseForce(NDRF) 11
3.2.12 MitigationReserves 11
Existing Institutional Arrangements 11
3.3.1 CabinetCommitteeonManagementofNaturalCalamities(CCMNC)
andtheCabinetCommitteeonSecurity(CCS) 11
3.3.2 High-LevelCommittee(HLC) 12
3.3.3 CentralGovernment 12
3.3.4 RoleofCentralMinistriesandDepartments 12
3.3.5 NationalCrisisManagementCommittee(NCMC) 12
3.3.63.3.7 StateGovernments 13
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3.3.8 DistrictAdministration 13
3.3.9 ManagementofDisastersImpactingmorethanoneState 13
Other Important Institutional Arrangements 13 3.4.1 ArmedForces 13 3.4.2 CentralParamilitaryForces 14
3.4.3 StatePoliceForcesandFireServices 14
3.4.4 CivilDefenceandHomeGuards 14
3.4.5 StateDisasterResponseForce(SDRF) 14
3.4.6 RoleofNationalCadetCorps(NCC),NationalServiceScheme(NSS)
andNehruYuvaKendraSangathan(NYKS) 14
3.5.1 InternationalCooperation 14
4 Financial Arrangements 15
4.1.1 Approach 15
4.2.1 DMtobein-builtinDevelopmentalPlans 15
4.3.14.3.2 NationalDisasterResponseandMitigationFunds 15
4.4.1 ResponsibilitiesoftheCentralMinistriesandDepartments 15
4.4.2 StateandDistrictLevelArrangements 15
4.4.3 MitigationProjects 15
4.5.1 Techno-FinancialRegime 16
5 Disaster Prevention, Mitigation and Preparedness 17
5.1.1 DisasterPreventionandMitigation 17
5.1.25.1.3 RiskAssessmentandVulnerabilityMapping 17
5.1.4 IncreasingTrendofDisastersinUrbanAreas 18
5.1.5 CriticalInfrastructure 18
5.1.6 EnvironmentallySustainableDevelopment 18
5.1.7 ClimateChangeAdaptation 18
Preparedness 18 5.2.15.2.3 RoleofCentralMinistriesandDepartments,andStates 18 5.2.4 ForecastingandEarlyWarningSystems 19
5.2.55.2.6 CommunicationsandInformationTechnology(IT)Support 19
5.2.7 StrengtheningoftheEmergencyOperationsCentres 19
5.2.85.2.9 MedicalPreparednessandMassCasualtyManagement 20
5.2.10 Training,SimulationandMockDrills 20
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Partnerships for Mitigation and Preparedness 20 5.3.15.3.2 CommunityBasedDisasterPreparedness 20 5.3.3 StakeholdersParticipation 20
5.3.4 CorporateSocialResponsibility(CSR)andPublic-Private
Partnership(PPP) 21
5.3.5 MediaPartnership 21
6 Techno-Legal Regime 23
6.1.1 Techno-LegalRegime 23
6.2.1 RevisionofMunicipalRegulations 23
6.3.1 LandUsePlanning 23
6.4.16.4.2 SafeConstructionPractices 23
6.5.1 ComplianceRegime 24
6.6.1 Enforcement 24
7 Response 25
7.1.1 Approach 25
7.2.1 RoleoftheNEC 25
7.3.1 RoleoftheNodalandOtherCentralMinistriesandDepartments 25
7.4.1 RoleofState,DistrictandLocalAuthorities 25
7.5.1 StandardOperatingProcedures(SOPs) 25
7.6.1 LevelsofDisasters 26 7.7.1 IncidentCommandSystem(ICS) 26
7.8.1 FirstandOtherKeyResponders 26
7.9.1 MedicalResponse 26
7.10.1 AnimalCare 27
7.11.1 InformationandMediaPartnership 27
8 Relief and Rehabilitation 29
8.1.1 Approach 29
8.2.18.2.2 SettingupofTemporaryReliefCamps 29
8.3.1 ManagementofReliefSupplies 29
8.4.1 ReviewofStandardsofRelief 29
8.5.1 TemporaryLivelihoodOptionsandSocio-EconomicRehabilitation 29
8.6.1 ProvisionofIntermediateShelters 30
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9 Reconstruction and Recovery 31
9.1.1 Approach 31
9.2.1 OwnerDrivenReconstruction 31
9.3.19.3.2 SpeedyReconstruction 31
9.4.1 LinkingRecoverywithSafeDevelopment 31
9.5.1 LivelihoodRestoration 32
10 Capacity Development 33
10.1.110.1.2 Approach 33
10.2.110.2.2 NationalPriorities 33
10.3.1 InstitutionalCapacityDevelopment 33
10.4.1 TrainingofCommunities 34
10.5.1 ProfessionalTechnicalEducation 34
10.6.1 DMEducationinSchools 34
10.7.1 TrainingofArtisans 34
10.8.1 TrainingofOtherGroups 34
10.9.1 LicensingandCertification 34
11 Knowledge Management 35
11.1.1 Approach 35
11.2.1 SynergeticApplicationofScienceandTechnology 35
11.3.1 KnowledgeInstitutions 35
Knowledge Dissemination through Information and
Communication Technologies (ICT) 35
11.4.1 IndigenousTechnicalKnowledge(ITK) 35
11.5.1 IndiaDisasterResourceNetwork(IDRN) 35
11.6.1 IndiaDisasterKnowledgeNetwork(IDKN) 35
11.7.1 DocumentationofBestPracticesandResearch 36
12 Research and Development 37
12.1.1 Approach 37
12.2.1 InstitutionalArrangements 37
12.3.112.3.2 IdentificationofNeedsandPromotionofResearch 37
13 The Road Ahead 39
Abbreviations 41
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Diagrams
Diagram1 DisasterManagementContinuum 7
Maps
Map1 EarthquakeZonesinIndia 2
Map2 FloodZonesinIndia 3
Map3 WindandCycloneZonesinIndia 4
Map4 LandslideAffectedStates 5
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Preamble
1
The Context
1.1.1 Disastersdisruptprogressanddestroythe
hard-earnedfruitsofpainstakingdevelopmental
efforts, oftenpushing nations, inquestfor
progress,backbyseveraldecades.Thus,efficient
management of disasters,rather thanmere
responsetotheiroccurrence,hasinrecenttimes,
receivedincreasedattentionbothwithinIndiaand
abroad.Thisisasmucharesultoftherecognition
ofthe increasing frequency andintensityof
disasters,asitisanacknowledgementthatgood
governanceinacaringandcivilisedsociety,needs
todeal effectively with thedevastating impact
ofdisasters.
Disaster Risks in India1.2.1 Indiaisvulnerable,invaryingdegrees,to
alargenumberofnaturalaswellasman-made
disasters.58.6percentofthelandmassisprone
toearthquakesofmoderatetoveryhighintensity;
over40millionhectares(12percentofland)is
proneto floods and rivererosion; ofthe7,516
kmlongcoastline,closeto5,700kmisproneto
cyclonesandtsunamis;68percentofthecultivable
areaisvulnerabletodroughtandhillyareasareat
riskfromlandslidesandavalanches.Vulnerability
todisasters/emergenciesofChemical,Biological,
RadiologicalandNuclear(CBRN)originalsoexists.
Heightened vulnerabilities to disasterrisks can
berelatedtoexpandingpopulation,urbanisation
andindustrialisation,developmentwithinhigh-risk
zones, environmental degradation and climate
change(Maps14).
1.2.2 Inthecontextof humanvulnerabilityto
disasters,theeconomicallyand sociallyweaker
segmentsofthepopulationaretheonesthatare
most seriouslyaffected. Within thevulnerable
groups, elderly persons,women, children
especially women rendered destitute,children
orphanedonaccountofdisastersanddifferently
abledpersonsareexposedtohigherrisks.
Paradigm Shift in Disaster Management(DM)
1.3.1 On23December2005,theGovernment
ofIndia(GoI) took a defining step byenacting
theDisasterManagementAct,2005,(hereinafter
referred toas theAct)whichenvisaged the
creation ofthe National DisasterManagement
Authority(NDMA),headedbythePrimeMinister,
StateDisasterManagementAuthorities(SDMAs)headedbytheChiefMinisters,andDistrictDisaster
ManagementAuthorities(DDMAs)headedbythe
DistrictCollectororDistrictMagistrateorDeputy
Commissionerasthecasemaybe,tospearhead
andadoptaholisticandintegratedapproachto
DM. There willbe a paradigmshift,from the
erstwhile relief-centric responseto a proactive
prevention,mitigationand preparedness-driven
approachforconservingdevelopmentalgainsand
tominimiselossoflife,livelihoodandproperty.
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NatioNal PolicyoN Disaster MaNageMeNt 2009
Map 1
EARTHQUAKE ZONES IN INDIA
Source:BMTPCVulnerabilityAtlas
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Map 2
FLOOD ZONES IN INDIA
Source:BMTPCVulnerabilityAtlas
PreaMble
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NatioNal PolicyoN Disaster MaNageMeNt 2009
Map 3
WIND AND CYCLONE ZONES IN INDIA
Source:BMTPCVulnerabilityAtlas
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Map 4
LANDSLIDE AFFECTED STATES
PreaMble
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Approach and Objectives
2
1Source:
Sections2(d)and(e)ofDMAct,2005.
Vision
2.1.1 TobuildasafeanddisasterresilientIndia
bydevelopingaholistic,proactive,multi-disaster
orientedandtechnologydrivenstrategythrough
acultureofprevention,mitigation,preparedness
andresponse.
Disaster Management (DM)
2.2.1 A disaster1 refers to a catastrophe,
mishap,calamityorgraveoccurrencefromnatural
orman-madecauses,whichisbeyondthecoping
capacityoftheaffectedcommunity.DMinvolves
acontinuousandintegrated
p r o c es s o f p l a n n in g ,
organising,coordinatingand
implementing measuresw h ic h ar e n e c essar y o r
expedientfor:
Preventionofdanger
o r t hr ea t o f a ny
disaster.
M i t i g a t i o n o r
reductionofriskofany
disasteroritsseverity
orconsequences.
C ap ac it y b u i ld in gincludingresearch
a n d k n o w l e d g e
management.
Preparednesstodeal
withanydisaster.
Prompt responseto any threatening
disastersituationordisaster.
Assessingthe severityor magnitude of
effectsofanydisaster.
Evacuation,rescueandrelief.
Rehabilitationandreconstruction.
2.2.2 A t yp ic al D M c on ti nu um c om pr is es
six elements; the pre-disaster phaseincludes
prevention,mitigationand preparedness,while
the post-disaster phase includesresponse,
rehabilitation, reconstruction and recovery. A
legalandinstitutionalframeworkbindsallthese
elementstogether(DiagramI).
Diagram 1
DISASTER MANAGEMENT CONTINUUM
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NatioNal PolicyoN Disaster MaNageMeNt 2009
Approach
2.3.1 Aholisticand integrated approach will
be evolved towards disaster managementwith
emphasison building strategic partnershipsat
variouslevels.Thethemesunderpinningthepolicy
are:
C om mu nity b ase d DM, in clud in g last
mile integration ofthe policy, plans and
execution.
Capacitydevelopmentinallspheres.
Consolidationofpastinitiativesandbest
practices.
CooperationwithagenciesatNationaland
Internationallevels.
Multi-sectoralsynergy.
Objectives
2.4.1 TheobjectivesoftheNationalPolicyon
DisasterManagementare:
Pr om ot in g a c u lt ur e o f p re ve nt io n,
preparednessand resilience at all levels
through knowledge, innovation and
education.
Encouragingmitigationmeasures based
on technology, traditionalwisdom and
environmentalsustainability.
Mainstreamingdisastermanagementinto
thedevelopmentalplanningprocess.
E st ab lish in g institu tion al an d t ec hn o-
legalframeworks to create an enabling
regulatoryenvironmentandacompliance
regime.
E ns ur in g e ff ic ie nt m e ch an is m f or
identification,assessmentandmonitoring
ofdisasterrisks.
Developingcontemporaryforecasting
andearlywarning systemsbacked by
responsive and fail-safe communication
withinformationtechnologysupport.
Ensuringefficientresponseandreliefwith
acaringapproachtowardstheneedsofthe
vulnerablesectionsofthesociety.
U nd er ta ki ng r e co ns tr uc ti on a s a n
opportunityto builddisaster resilient
structures andhabitatfor ensuringsafer
living.
Promoting aproductiveand proactive
partnershipwith themedia fordisaster
management.
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3Institutional and Legal
Arrangements
Disaster Management Act, 2005
3.1.1 TheActlaysdowninstitutional,legal,
financial and coordinationmechanismsat the
National,State,Districtand Local levels. These
institutionsarenotparallelstructuresandwillwork
incloseharmony.Thenewinstitutionalframework
isexpected tousherin aparadigmshiftin DM
fromrelief-centricapproachtoaproactiveregime
thatlays greater emphasis on preparedness,
preventionandmitigation.
Institutional Framework under the Act
National Disaster Management Authority (NDMA)
3.2.1 TheNDMA,astheapexbodyfordisaster
management, isheadedby the PrimeMinister
andhastheresponsibilityforlayingdownpolicies,
plansand guidelines forDM andcoordinating
their enforcement and implementation for
ensuringtimely andeffectiveresponse to
disasters.The guidelineswill assistthe Central
Ministries,DepartmentsandStatestoformulate
theirrespective DMplans. Itwill approve the
National Disaster ManagementPlans and DM
plans of the Central Ministries/Departments. It
willtakesuchothermeasures,asitmayconsider
necessary, forthe preventionof disasters, or
mitigation,orpreparednessandcapacitybuilding,
fordealingwithathreateningdisastersituation
or disaster. Central Ministries/Departments
and State Governments willextend necessary
cooperationandassistancetoNDMAforcarrying
outits mandate. Itwill overseethe provision
andapplication offundsfor mitigationand
preparedness measures.NDMA hasthe power
toauthorisethe Departments or authorities
concerned,tomakeemergencyprocurementof
provisions ormaterials for rescueand relief in
a threatening disaster situationor disaster. The
generalsuperintendence,directionandcontrolof
theNationalDisasterResponseForce(NDRF)is
vestedinandwillbeexercisedbytheNDMA.The
NationalInstituteofDisasterManagement(NIDM)
workswithintheframeworkofbroadpoliciesand
guidelineslaiddownbytheNDMA.
3.2.2 TheNDMAismandated to deal with
alltypesof disasters; naturalor man-made.
Whereas,suchotheremergenciesincludingthose
requiringcloseinvolvementofthesecurityforces
and/or intelligenceagencies such as terrorism
(counter-insurgency),law and order situations,
serialbombblasts,hijacking,airaccidents,CBRNweaponsystems,minedisasters,portandharbour
emergencies, forest fires, oilfield firesand oil
spillswillcontinuetobehandledbytheextant
mechanismi.e., National CrisisManagement
Committee(NCMC).
3.2.3 NDMAmay,however,formulateguidelines
andfacilitatetrainingandpreparednessactivities
inrespectof CBRNemergencies. Cross-cutting
themeslikemedicalpreparedness,psycho-social
care andtrauma, communitybased disaster
preparedness, information and communication
technology, training, preparedness, awareness
generationetc., fornatural and man-made
disasterswillalsoengagetheattentionofNDMA
inpartnershipwiththestakeholdersconcerned.
Resourcesavailablewiththedisastermanagement
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authoritiesat alllevels,whichare capableof
dischargingemergency supportfunctions,
willbe made availableto thenodalMinistries/
Agenciesdealingwiththeemergenciesattimes
ofimpendingdisaster(s).
National Executive Committee (NEC)
3.2.4 TheNECcomprises theUnionHome
SecretaryasChairperson,andtheSecretariestothe
GoIintheMinistries/DepartmentsofAgriculture,
AtomicEnergy,Defence,DrinkingWaterSupply,
EnvironmentandForests,Finance(Expenditure),
Health,Power, Rural Development, Science&
Technology, Space, Telecommunications,Urban
Development, Water Resources andthe Chief
oftheIntegratedDefenceStaffoftheChiefsof
StaffCommitteeasmembers.Secretariesinthe
MinistryofExternalAffairs,EarthSciences,Human
ResourceDevelopment, Mines, Shipping,Road
Transport&Highways,andtheSecretary,NDMA
willbespecialinviteestothemeetingsoftheNEC.
3.2.5 TheNECistheexecutivecommitteeof
theNDMA,andismandatedtoassisttheNDMA
inthedischargeofitsfunctionsandalsoensure
complianceof thedirections issuedby the
CentralGovernment.TheNECistocoordinatethe
responseintheeventofanythreateningdisaster
situation ordisaster. TheNEC willprepare the
NationalPlanforDisasterManagementbasedon
theNationalPolicyonDisasterManagement.The
NECwillmonitortheimplementationofguidelines
issuedbyNDMA.Itwillalsoperformsuchother
functionsas maybe prescribed bythe Central
GovernmentinconsultationwiththeNDMA.
State Disaster Management Authority (SDMA)
3.2.6 At theStatelevel,theSDMA, headed
bythe Chief Minister, willlay down policies
andplansforDMintheState.Itwill,interalia
approve the State Plan inaccordance with the
guidelineslaid downby theNDMA, coordinate
theimplementationoftheStatePlan,recommend
provisionoffundsformitigationandpreparedness
measuresandreviewthedevelopmentalplansof
thedifferentDepartmentsoftheStatetoensure
theintegrationofprevention,preparednessand
mitigationmeasures.
3.2.7 TheState Government shallconstitute
aStateExecutiveCommittee(SEC)toassistthe
SDMAintheperformanceofitsfunctions.The
SECwillbeheadedbytheChiefSecretarytothe
StateGovernmentandcoordinateandmonitorthe
implementationoftheNationalPolicy,theNational
PlanandtheStatePlan.TheSECwillalsoprovide
informationto the NDMArelating to different
aspectsofDM.
District Disaster Management Authority (DDMA)
3.2.8 TheDDMAwillbeheadedbytheDistrict
Collector, Deputy Commissioneror District
Magistrateasthecasemaybe,withtheelected
representative of thelocal authorityas theCo-
Chairperson.TheDDMAwillactastheplanning,
coordinatingandimplementingbodyforDMat
theDistrictlevelandtakeallnecessarymeasures
forthepurposesofDMinaccordancewiththe
guidelineslaiddownbytheNDMAandSDMA.It
will,interaliapreparetheDistrictDMplanforthe
District and monitor theimplementation of the
NationalPolicy,theStatePolicy,theNationalPlan,
theStatePlanandtheDistrictPlan.TheDDMA
willalsoensurethattheguidelinesforprevention,
mitigation,preparednessandresponsemeasures
laiddownby the NDMAand the SDMAare
followedbyalltheDepartmentsoftheState
Government at theDistrictlevel and thelocal
authoritiesintheDistrict.
Local Authorities
3.2.9 Forthe purposeof thisPolicy, local
authoritieswouldincludePanchayatiRajInstitutions
(PRI), Municipalities, Districtand Cantonment
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Boards,and Town PlanningAuthorities which
controlandmanagecivicservices.Thesebodies
willensurecapacitybuildingoftheirofficersand
employeesfor managing disasters,carry out
relief,rehabilitationandreconstructionactivities
intheaffectedareasandwillprepareDMPlans
inconsonancewiththeguidelinesoftheNDMA,
SDMAs andDDMAs. Specific institutional
frameworkfordealingwithdisastermanagement
issuesinmegacitieswillbeputinplace.
National Institute of Disaster Management (NIDM)
3.2.10 The NIDM,in partnershipwithother
researchinstitutionshascapacitydevelopmentas
oneofitsmajorresponsibilities,alongwithtraining,
research,documentationand development ofa
Nationallevelinformationbase.Itwillnetworkwith
otherknowledge-basedinstitutionsandfunction
withinthebroadpoliciesandguidelineslaiddown
bytheNDMA.Itwillorganisetrainingoftrainers,
DMofficialsandotherstakeholders.TheNIDM
willstrivetoemergeasa CentreofExcellence
inthefieldofDisasterManagement.
National Disaster Response Force (NDRF)
3.2.11 Forthepurposeofspecialisedresponse
to a threateningdisaster situation or disasters/
emergenciesbothnaturalandman-madesuchas
thoseofCBRNorigin,theActhasmandatedthe
constitutionofaNationalDisasterResponseForce
(NDRF). Thegeneralsuperintendence, direction
andcontrolofthisforceshallbevestedinand
exercisedbytheNDMAandthecommandand
supervisionoftheForceshallvestinanofficerto
beappointedbytheCentralGovernmentasthe
DirectorGeneral ofCivil Defenceand NationalDisaster ResponseForce. Presently, the NDRF
compriseseightbattalionsandfurtherexpansion
maybeconsideredinduecourse.Thesebattalions
willbepositionedatdifferentlocationsasmay
berequired.NDRFunitswillmaintaincloseliaison
withthedesignatedStateGovernmentsandwill
beavailabletothemintheeventofanyserious
threateningdisastersituation.Whilethehandling
ofnaturaldisasters rests withall theNDRF
battalions,fourbattalionswillalsobeequipped
andtrainedtorespondtosituationsarisingoutof
CBRNemergencies.Trainingcentreswillbesetup
byrespectiveparamilitaryforcestotrainpersonnel
fromNDRFbattalionsofrespectiveForcesandwill
alsomeetthetrainingrequirementsofState/UT
DisasterResponseForces.TheNDRFunitswill
alsoimpartbasictrainingtoallthestakeholders
identifiedby the StateGovernmentsin their
respectivelocations.Further,aNationalAcademy
willbe set uptoprovidetraining for trainersin
disastermanagementandtomeetrelatedNational
andInternationalcommitments.
Mitigation Reserves
3.2.12 Experienceinmajordisastersinthelast
decadehasclearlyestablishedtheneedforpre-
positioningofsomeessentialreservesatcrucial
locations,including somefor thehigh altitude
areas.Thesereservesareintendedtoaugmentthe
resourcesattheStatelevel.Mitigationreserves
willbeplacedatthedisposaloftheNDRFfor
enhancingtheiremergencyresponsecapabilities
for assisting the State Governmentsduring a
disasterordisaster-likesituation.
Existing Institutional Arrangements
Cabinet Committee on Management of
Natural Calamities (CCMNC) and the Cabinet
Committee on Security (CCS)
3.3.1 CCMNChadbeenconstitutedtooversee
allaspectsrelatingtothemanagementofnaturalcalamitiesincludingassessmentofthesituation
andidentificationofmeasuresandprogrammes
considerednecessary to reduce its impact,
monitorand suggestlong-term measuresfor
prevention ofsuch calamities, formulate and
recommendprogrammesforpublicawarenessfor
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supported bythe Crisis Management Groups
(CMG)oftheCentralnodalMinistriesandassisted
by NECas maybe necessary. TheSecretary,
NDMAmaybeamemberofthisCommittee.
State Governments
3.3.6 Theprimary responsibilityfordisaster
managementrestswiththeStates.Theinstitutional
mechanismput in place at theCentre,State
andDistrict levelswill help the Statesmanage
disastersinaneffectivemanner.
3.3.7 TheActmandatestheStateGovernments
inter aliato take measures forpreparation of
Disaster Management Plans, integration of
measuresforpreventionofdisastersormitigation
into development plans, allocation of funds,
establishmentofearlywarningsystems,andto
assisttheCentralGovernmentandotheragencies
invariousaspectsofDisasterManagement.
District Administration
3.3.8 AttheDistrictlevel,DDMAswillactasthe
Districtplanning,coordinatingandimplementing
bodyfordisastermanagementandwilltakeall
measuresforthepurposesofdisastermanagement
intheDistrictinaccordancewiththeguidelines
laiddownbyNDMAandSDMA.
Management of Disasters Impacting more
than one State
3.3.9 Attimes,theimpactofdisastersoccurring
inoneStatemayspreadovertotheareasofother
States.Similarly,preventivemeasuresinrespect
of certain disasters,such as floods,etc., may
berequiredtobetakeninoneState,thoughthe
impactof theiroccurrencemay affect another.
The administrativehierarchyof the country is
organisedinto National,State andDistrictlevel
administrations. Thispresentssome difficulties
inrespect ofdisastersimpactingmore than
oneState.Managementof such situations
calls fora coordinated approach, which can
respondto a range ofissuesquite different
fromthose thatnormallypresent themselves,
before,duringand after the event.NDMA will
encourageidentification of suchsituationsand
promotethe establishment ofmechanismson
thelinesofMutualAidAgreementforcoordinated
strategiesfor dealing withthem by theStates,
Central Ministriesand Departments andother
agenciesconcerned.
Othe r Impo r tan t I ns t i t u t i ona lArrangements
Armed Forces
3.4.1 Conceptually,theArmedForcesarecalled
upontoassisttheciviladministrationonlywhen
thesituationis beyondtheir coping capability.
Inpractice,however,theArmedForcesforman
important part of the Governments response
capacity andare immediate responders inall
serious disaster situations.On account oftheir
vastpotentialto meetany adverse challenge,
speedofoperationalresponseandtheresources
andcapabilitiesattheirdisposal,theArmedForces
havehistoricallyplayedamajorroleinemergency
supportfunctions.Theseincludecommunication,
searchandrescueoperations,healthandmedical
facilities, and transportation, especially in the
immediateaftermathofadisaster.Airlift,heli-lift
and movement of assistance to neighbouring
countriesprimarilyfall within theexpertiseand
domainoftheArmedForces.TheArmedForces
willparticipate inimparting training totrainers
andDMmanagers,especiallyinCBRNaspects,
heli-insertion,high-altituderescue,watermanship
andtrainingofparamedics.AttheNationallevel,
theChiefof theIntegratedDefenceStafftothe
ChairmanChiefsofStaffCommitteehasalready
beenincludedintheNEC.Similarly,attheState
andDistrictlevels,thelocalrepresentativesofthe
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ArmedForcesmaybeincludedintheirexecutive
committeesto ensure closer coordination
andcohesion.
Central Paramilitary Forces
3.4.2 TheCentralParamilitaryForces(CPMFs),
whicharealsotheArmedForcesoftheUnion,
playakeyroleatthetimeofimmediateresponse
to disasters. Besides contributing to theNDRF,
theywilldevelopadequatedisastermanagement
capabilitieswithintheirownforcesandrespond
todisasterswhichmayoccurintheareaswhere
theyareposted.Thelocalrepresentativesofthe
CPMFsmaybeco-opted/invitedintheexecutive
committeeattheStatelevel.
State Police Forces and Fire Services
3.4.3 TheState PoliceForces andthe Fire
Servicesare crucialimmediate responders to
disasters.ThePoliceForceswillbetrainedand
theFireServicesupgradedtoacquiremulti-hazard
rescuecapability.
Civil Defence and Home Guards
3.4.4 Themandateofthe CivilDefenceand
theHomeGuardswillberedefinedtoassignan
effectiveroleinthefieldofdisastermanagement.
Theywillbedeployedforcommunitypreparedness
andpublic awareness. A culture ofvoluntary
reportingto dutystationsin the eventof any
disasterwillbepromoted.
State Disaster Response Force (SDRF)
3.4.5 Stateswillbeencouragedto create
response capabilities fromwithin theirexisting
resources.Tostartwith,eachStatemayaimat
equipping and training onebattalionequivalent
force.Theywillalsoincludewomenmembersfor
lookingaftertheneedsofwomenandchildren.
NDRFbattalionsandtheirtraininginstitutionswill
assisttheStates/UTsinthiseffort.TheStates/UTs
willalso be encouraged toincludeDM training
in theirrespectivePoliceTraining Colleges and
basic andin-servicecourses, forgazettedand
non-gazettedofficers.
Role of National Cadet Corps (NCC), National
Service Scheme (NSS) and Nehru Yuva
Kendra Sangathan (NYKS)
3.4.6 Po te nt ia l o f t he se y ou th b as ed
organisationswill beoptimisedto support all
community basedinitiatives andDM training
wouldbeincludedintheirprogrammes.
International Cooperation
3.5.1 Disastersdonotrecognisegeographical
b o u nd a r ie s . M a j o r d i s a st e r s m a y o f te n
simultaneously affect several countries. It will
bethe National endeavour todevelopclose
cooperationandcoordinationattheInternational
levelinallspheresofDM.
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4Financial Arrangements
Approach
4.1.1 Inordertobringaboutaparadigmshift
fromtherelief-centricapproachtoonecovering
prevention,preparednessandmitigation,efforts
would bemade tomainstream prevention and
mitigationmeasuresintothedevelopmentalplans
and programmes by enlisting cooperation from
allstakeholders.
DM to be in-built in Developmental Plans
4.2.1 NDMA willensure mainstreamingof
disaster risk reduction in the developmental
agendaofallexistingandnewdevelopmental
programmesandprojectswhichshallincorporate
disasterresilientspecificationsin designand
construction. ThePlanningCommission will
givedue weightageto these factors while
allocatingresources.
National Disaster Response andMitigation Funds
4.3.1 A N at io nal Disaste r R esp on se F u nd
maybe constitutedas mandated intheAct.
TheNational DisasterResponseFundwill be
appliedbytheNECtowardsmeetingexpenses
foremergencyresponse,reliefandrehabilitation,inaccordancewiththeguidelineslaiddownby
theCentralGovernmentinconsultationwiththe
NDMA. Theproposal for mergingthe National
CalamityContingency Fund (NCCF) withthe
NationalDisasterResponse Fund shallbe as
recommendedbytheFinanceCommissionfrom
timetotime.
4.3.2 Similarly,asmandated by theAct,the
NationalDisasterMitigationFund(NDMF)maybe
createdforprojectsexclusivelyforthepurpose
ofmitigation.TheNDMFshallbeappliedbythe
NDMA andshall be as recommendedby the
FinanceCommissionfromtimetotime.
Responsibilities of the Central Ministriesand Departments
4.4.1 AllCentral Ministries andDepartments
willpreparetheirDMplansincludingthefinancial
projectionstosupporttheseplans.Thenecessary
budgetaryallocationswillbemadeaspartofthe
FiveYearandAnnualPlans.
State and District Level Arrangements
4.4.2 ItshallbetheresponsibilityoftheStates
toconstitutetheDisasterMitigationandResponse
FundsattheStateaswellasDistrictlevels.The
modalitiesfortheapplicationofthesefundswill
beworkedoutinaccordancewiththeprovisions
oftheAct.
Mitigation Projects
4.4.3 Theguidelines on variousdisasterswill
formthebasisfortheformulationofplansfor
mitigationprojects atthe National, State and
Districtlevel.CentralMinistriesandDepartments
as well as the State Governmentswill identify
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Mitigation Projectsfor implementation.The
National level mitigationprojectswill beduly
prioritised andapprovedin consultation with
theNDMA.
Techno-Financial Regime
4.5.1 Consideringthattheassistanceprovided
bytheGovernmentforrescue,relief,rehabilitation
and reconstructionneeds cannot compensate
formassivelossesonaccountofdisasters,new
financialtoolssuchascatastropheriskfinancing,
riskinsurance,catastrophebonds,micro-finance
andinsurance etc.,will bepromotedwith
innovativefiscalincentivestocoversuchlosses
ofindividuals, communities andthe corporate
sector. In this regard,the EnvironmentalRelief
Fund underthe Public Liability Insurance Act,
1991, enacted forprovidingrelief tochemical
accident victimsis worth mentioning. Some
financialpracticessuchasdisasterriskinsurance,
micro-financeandmicro-insurance,warrantyon
newly constructed houses and structures and
linkingsafeconstructionwithhomeloanswillbe
consideredforadoption.
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5Disaster Prevention, Mitigation
and Preparedness
Disaster Prevention and Mitigation
5.1.1 Unlikeman-madedisasters,naturalhazards
likefloods,earthquakes,andcyclonescannotbe
avoided.However,withmitigationmeasuresalong
withproperplanningofdevelopmentalworkinthe
riskpronearea,thesehazardscanbeprevented
from turninginto disasters.A multi-pronged
approach needsto be adopted to undertake
mitigationmeasures:
B uild in g m it ig at io n m easu re s int o all
developmentprojects.
Initiating o f N ation al le ve l m it ig ation
projectsbytheNDMA,inhighpriorityareas,
withthehelpoftheCentralMinistriesand
DepartmentsconcernedandtheStates.
E nc ou raging and assisting S tate lev el
mitigation projectsin accordance with
theguidelines.
Indigenous knowledgeondisasterand
copingmechanisms adoptedby various
States willbe given dueweightage with
specialfocus on protectionof heritage
structures.
Risk Assessment and Vulnerability Mapping
5.1.2 Hazardzonation,mappingandvulnerability
analysisinamulti-hazardframeworkwillbecarried
oututilisingGeographicInformationSystem(GIS)
baseddatabasessuchastheNationalDatabase
forEmergencyManagement(NDEM)andNational
SpatialDataInfrastructure(NSDI).Asafirststep
towardsaddressing disastervulnerabilities,
CentralMinistries andDepartments, National
agencies,knowledge-basedinstitutionsandDM
authoritiesattheStateandDistrictlevelsneed
to carryout risk and vulnerabilityassessment
ofall disaster prone areas. Hazard zonation
mappingandvulnerabilityanalysisbasedonGIS
andremotesensingdata,needstomandatorily
includeagroundcheckcomponent.Hazardand
ConsequenceMappingonGISplatformswillbe
preparedforallchemicalaccidentpronedistricts.
5.1.3 TheincreasinguseofGIS,remotesensing
and applications of GlobalPositioningSystems
(GPS)inDM,hasmadeitimperativetosetupa
mechanismforsharingthematicandspatialdata
throughadesignatedelectronicclearinghouse.
TheNSDIhasbeensetupbytheSurveyofIndia,to
collect,compile,analyseandpreparevalue-added
mapsforusebyvariousagenciesinthefieldofDM
formanagementofnaturalresources,industrial
applicationsetc.TheNSDIneedtoworktowards
interoperabilityof dataand informationsharing
protocolsto facilitateeffective policy analysis.
Atwo-wayinteroperablelinkwillbe established
betweenNSDIandtheproposedNationalDisaster
EmergencyCommunicationNetworkforeasyand
quicksharing.Theprogrammedesignedtohave
spatialandnon-spatialdatabasesinasecure
environmentundertheNDEMwillderivethedata
setsthroughNSDIforaddressingtheinformation
needsfordisastermanagement.
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integration intothe planning process. The
participationofallstakeholders,communitiesand
institutionswillinculcateacultureofpreparedness.
Abottom-upapproachneedstobeadoptedfor
better understandingand operationalisation of
theseplans.
5.2.3 ThesubjectofDMwillbeincludedasa
standingitemintheagendaoftheInterState
CouncilandZonalCouncilandasareportingitem
intheNationalDevelopmentCouncil.
Forecasting and Early Warning Systems
5.2.4 Itismostessentialtoestablish,upgrade
andmodernisetheforecastingandearly-warning
systems forall types ofdisasters. Thenodal
agenciesresponsibleformonitoringandcarrying
outsurveillance,forspecificnaturaldisasters,will
identifytechnologicalgapsandformulateprojects
fortheirupgradation,inatime-boundmanner.All
StatesshouldprovidetotheIndiaMeteorological
Department, the required infrastructure for
upgradation/establishment of meteorological
observationsystems.PartnershipswiththeWorld
Meteorological Organisation (WMO), Pacific
Tsunami Warning Systemand otherregional
andglobalinstitutionsmayalsobeconsidered.
ICTtools need tobe used for data receptions,
forecastingandtimelydissemination.
Communications and Information Technology
(IT) Support
5.2.5 T he b a si c c om mu ni ca ti on s a nd I T
support requirements fordisastermanagement
correspondtothefollowingthreelevels:
Decisionmakersanddisastermanagersatalllevels.
Real t imedissemination ofadvance
warningsandinformationtotheauthorities
concernedat variouslevelsand the
threatenedcommunity.Fordissemination
ofadvancewarning andinformation,
broadcastingmediumssuchastelevision
and radioshall be usedsignificantly
as theyhave highergeographicalreach.
Forcoastalandhillyregions,thenetwork
of the MeteorologicalDepartmentmay
beused.
Lastmileconnectivityatthedisastersite
forcontrol andconduct of rescue and
reliefoperations.
5.2.6 Communicationandsharingofup-to-date
informationusingstate-of-the-artITinfrastructure
remainattheheartofeffectiveimplementationof
thedisastermanagementstrategy.Reliable,up-to-
dateandfastersharingofgeo-spatialinformation
acquiredfrom thefield orthe affectedareas isa pre-requisite foreffectiveimplementation of
disastermanagementstrategies.Effortsshould
bemadeforsettingupITinfrastructuresconsisting
ofrequiredITprocesses,architectureandskills
forquickupgradationandupdationofdatasets
fromthePRIsortheULBs.ANationalEmergency
CommunicationNetwork,involvingcontemporary
spaceandterrestrial-basedtechnologiesinahighly
synergistic configuration and withconsiderable
redundancy, willbe developed. ThisNetwork
willensurerealtimedisseminationofwarningsandinformation totheaffected communityand
localauthorities.
Strengthening of the Emergency Operations
Centres
5.2.7 T h e e s ta b l is h me n t o f E m er g en c y
OperationsCentresattheNational,State,Metro
andDistrict level andequippingthem with
contemporarytechnologies and communication
facilitiesand theirperiodicupgradation, will be
accordedpriority.Forlastmileconnectivityand
controloftheoperationsatthedisasterhitareas,
availabilityofportableplatformswillbecatered
for.TheintegrationofHamradiosandsuchother
innovativefacilities,intotheDMcommunication
system,willbeadvantageous.
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Medical Preparedness and Mass Casualty
Management
5.2.8 M e di c al p r ep a re d ne s s i s a c r uc i al
componentofanyDMPlan.TheNDMA,inclose
coordinationwiththeMinistryofHealthandFamily
Welfare,States andpremier medical research
institutes willformulatepolicyguidelinesto
enhancecapacityinemergencymedicalresponse
and mass casualty management. DM plansfor
hospitals willinclude developing andtraining
of medical teamsand paramedics,capacity
building, traumaand psycho-socialcare,mass
casualtymanagement andtriage. Thesurge
andcasualtyhandling capacityof all hospitals
atthetimeofdisasters,willbeworkedoutand
recorded througha consultative process,by all
the States/UTs in the pre-disasterphase. The
StateandDistrictauthoritieswillbeencouraged
toformulateappropriateproceduresfortreatment
ofcasualtiesbyprivatehospitalsduringdisasters.
Theseplanswillalsoaddresspost-disasterdisease
surveillancesystems,networkingwithhospitals,
referral institutionsand accessing services and
facilitiessuchasavailabilityofambulancesand
bloodbanks.
5.2.9 Creationofmobilesurgicalteams,mobile
hospitalsandheli-ambulancesfor evacuationof
patients isa crucial component ofDM efforts.
TheAccidentReliefMedicalVans(ARMVs)ofthe
Ministryof Railways, stabled atstations every
100km, willbe utilisedfor emergency medical
responsebytheStateandDistrictauthoritiesin
consultation withthe Railways.The creationof
additionalbio-safetylaboratoriesoflevelIVwillbe
addressedbytheNodalMinistry.Thereisaneed
tofocusoncreatingadequatemortuaryfacilities.
Properandspeedydisposalofdeadbodiesand
animalcarcassesdeservesdueweightage.
Training, Simulation and Mock Drills
5.2.10 EfficacyofplansandStandardOperating
Procedures(SOPs)aretestedandrefinedthrough
training, seminarsand mock drills. TheNDMA
willassisttheStates/UTsintheseareasandwill
alsoconductmockdrillsindifferentpartsofthe
country. State andDistrictauthoritieswill be
encouragedtogenerateacultureofpreparedness
andquickresponse.GraduallyStateGovernments
willbeencouragedtoplanaseriesofexercises
for varioustypes of disastersin collaboration
withNDMAto enhancethe responselevelof
variousstakeholders.
Partnerships for Mitigation andPreparedness
Community Based Disaster Preparedness
5.3.1 During any disaster,communitiesare
notonlythefirsttobeaffectedbutalsothefirst
responders. Community participation ensures
localownership,addresses localneeds, and
promotesvolunteerismandmutualhelptoprevent
andminimisedamage.Therefore,theeffortsofthe
States/UTs,inthisregardneedtobeencouraged.
5.3.2 Theneedsoftheelderly,women,children
anddifferently abledpersonsrequirespecial
attention.Womenandyouthwillbeencouraged
to participate in decisionmaking committees
andactiongroupsformanagementofdisasters.
Asfirstresponderstoanydisaster,communities
willbetrainedinthevariousaspectsofresponse
suchasfirstaid,searchandrescue,management
ofcommunityshelters,psycho-socialcounselling,
distributionofreliefandaccessingsupportfrom
government/agenciesetc. Community plans
willbedovetailedintothePanchayat,Blockand
Districtplans.
Stakeholders Participation
5.3.3 T he p ar ti ci pa ti on o f c iv il s oc ie ty
stakeholderswillbecoordinatedbythe SDMAs
andDDMAs.CivilDefence,NCC,NYKS,NSSand
local Non-Governmental Organisations (NGOs)
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willbeencouragedtoempowerthecommunity
andgenerateawarenessthroughtheirrespective
institutional mechanisms. Effortsto promote
voluntaryinvolvementwillbeactivelyencouraged.
Corporate Social Responsibility (CSR) andPublic-Private Partnership (PPP)
5.3.4 Historically,thecorporate sectorhas
beensupportingdisasterreliefandrehabilitation
activities.However,theinvolvementofcorporate
entitiesindisasterriskreductionactivitiesisnot
significant.Corporateentitiesshouldredefinetheir
businesscontinuityplantofactorinhazards,risks
andvulnerabilities.Theyshouldalsocreatevalue
ininnovativesocialinvestmentsinthecommunity.
PPPbetweentheGovernmentandprivatesector
would alsobe encouragedto leverage the
strengthsofthelatterindisastermanagement.
TheNDMAandSDMAsneedtonetworkwiththe
corporate entitiesto strengthen andformalise
theirroleintheDMprocessforensuringsafetyof
thecommunities.
Media Partnership
5.3.5 Themediaplaysacriticalroleininformation
andknowledgedisseminationinallphasesofDM.
Theversatilepotentialof both electronicand
printmedianeedstobefullyutilised.Effective
partnershipwiththemediawillbeworkedoutin
thefieldofcommunityawareness,earlywarning
anddissemination, andeducation regarding
variousdisasters.
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6Techno-Legal Regime
Techno-Legal Regime
6.1.1 T he D M A ct , 2 00 5, l ay s d ow n t he
institutional andcoordinationmechanisms at
theNational,State, DistrictandLocallevel.The
relevantActs,RulesandRegulationswarranting
amendmentsneedtobeidentifiedandbroughtin
conformitywiththeDMActinaphasedmanner
bytheCentralandStategovernmentsandother
agenciesconcerned.
Revision of Municipal Regulations
6.2.1 In view of theconstruction boom and
rapidurbanisation,municipalregulationssuchas
developmentcontrolregulations,buildingbye-laws
andstructuralsafetyfeaturesneedtoberevisited.
Theseregulationswillbereviewedperiodicallyto
identifysafetygapsfromseismic,flood,landslide
andotherdisasters andsuitable modifications
willbemadetoalignthemtotherevisedbuilding
codesof the Bureau ofIndian Standards(BIS).
Undesirablepracticescompromisingsafetyduring
disasters,thattendtocropupfromtimetotime,
willneedtobeaddressedintheregulations.The
utilisation of unsuitable areas for construction,
withoutnecessary safeguards furtherenhances
vulnerability andneeds to be guarded against
through appropriate compliance mechanisms.
Similarly,theintroductionofsuitableregulations
for ruralareaswillalsobe emphasised. Where
required,local bodies willbe provided with
suitablefinancialincentivesforthepreparationof
appropriateregulations.Thisprocesswillinvolve
anallinclusiveexerciseinvolvingduesensitisation
ofgovernmentalorganisationsatalllevels,local
authoritiesandthecommunityatlargetoaccrue
maximumresultsthereof.
Land Use Planning
6.3.1 C en tr al Min istr ies an d De par tm en ts
concerned in consultation with scientif icinstitutionswillcarryoutanalysisofenvironmental
and hazarddata for formulation of alternative
land useplansfor different geographical and
administrative areas with a holisticapproach.
Thisismorerelevanttomegacities,metrosand
high-densityurbansettlementsforsaferlocation
ofhabitatandothercriticalfacilities.Areviewof
masterplans and theircompliance,on priority,
willbeessentialandregardedastheparamount
responsibilityoftheStates/UTs.Atthemacro-level,
thereisaneedforpreparationoflanduseplanning
basedontheinventorydatabaseofvarioususes.
Asfarasurbansettlementsareconcerned,the
futurelanduseistobeassessedkeepinginview
theanticipatedintensityofdevelopment.
Safe Construction Practices
6.4.1 Hazardslikeearthquakes andcyclones
donotkillpeoplebutinadequatelydesignedand
badlyconstructedbuildingsdo. Ensuring safe
constructionof new buildings and retrofitting
ofselectedlifelinebuildings, as given in the
EarthquakeGuidelines,isacriticalsteptobetaken
towards earthquake mitigation. Thedesign and
specificationofhousesbeingconstructed,under
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theIndiraAwasYojana(IAY)andothergovernment
welfareanddevelopmentschemes,willalsobere-
examinedtoensurehazardsafety.Buildingcodes
willbeupdatedeveryfiveyearsasa mandatory
requirementandalsoputinthepublicdomain.
ObservanceoftheNationalBuildingCodeshould
bemade mandatory inall the State/ Municipal
buildingbye-laws.
6.4.2 Trainingof engineers,architects,small
builders,constructionmanagersandartisanshas
alreadybeenstartedandneedstobeintensified
at theStateand Districtlevel.Safe schools
andhospitals(withlargecapacity)andNational
monumentsbesidesothercriticallifelinebuildings
willberegardedasaNationalpriority.Enabling
provisions shall bemade inall the Centrally
SponsoredSchemestodesignschoolbuildings/
hostelswithearthquakeresilientfeaturesandto
equipthemwithappropriatefiresafetymeasures.
Compliance Regime
6.5.1 T he re is a n e ed f o r p ut ting in p lac e
a sound compliance regime, withbinding
consequences,to ensure theeffectivenessof
techno-legalandtechno-financialprovisions.Itisimportanttoensurethatmonitoring,verification
andcompliancearrangementsareinplaceboth
at theNational andState level. It willbe the
responsibility of all stakeholders concerned, to
implementthese provisions. Adoptionof best
managementpractices like self-certification,
socialaudit,andanexternalcomplianceregime
includingauditbyprofessionalagencies,needto
beencouragedthroughdevelopmentanddesign
oftoolssuchasIT-enabledmonitoringsoftwareto
suittheDMsystemsinIndia,inconsultationwithvariousstakeholdersandknowledgeinstitutions
foradoptionafterduetrialandvalidation.
Enforcement
6.6.1 Afterhavingput the techno-legal and
compliancesysteminplace,theStates/UTswill
alsoensure their enforcement by establishing
aneffectivemechanism,undertheprovisionsof
theAct.
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7Response
Approach
7.1.1 Promptandeffectiveresponseminimises
lossof lifeand property. A caring approachfor
thespecialneedsofvulnerablesectionsisalso
important. Theexistingand thenew institutional
arrangementsneedtoensureanintegrated,synergised
andproactiveapproachindealingwithanydisaster.This
ispossiblethroughcontemporaryforecastingand
earlywarning systems,fail-safecommunication
and anticipatory deployment of specialised
response forces.A well-informedand prepared
communitycanmitigatetheimpactofdisasters.
Role of the NEC
7.2.1 TheNECwillcoordinateresponseinthe
event ofany threateningdisaster situation or
disaster.WhiledisasterspecificguidelineswillbeformulatedbyNDMA,NECmaygivedirectionsto
theconcernedMinistries/DepartmentsoftheGoI,
theStateGovernmentsandtheStateAuthorities
regardingmeasures tobe taken by them in
responseto anyspecific threatening disaster
situationordisaster.
Role of the Nodal and Other CentralMinistries and Departments
7.3.1 Fo r v ar i ou s t y pe s o f d is a st er s , t he
nodalMinistryconcernedwillchartoutdetailed
ResponsePlanswhichwillbeintegratedintothe
NationalResponsePlan.TheNECmaycoordinate
responseintheeventofanythreateningdisaster
situationordisaster.
Role of State, District and LocalAuthorities
7.4.1 ItistheprimaryresponsibilityoftheState
Governments/SDMAs to monitor and assess
any developing situation and keep the NDMA
andNEC apprisedof thesame.They willalso
beresponsibletoconstantlyevaluatetheirown
capabilities to handle thatsituation and project
the anticipated requirements for the Central
resourceswell in time. Inter-stateassistance
andcooperationwillbeencouraged.TheStates/
UTswillalsoberesponsibletodeveloptheirown
response potential progressively and complete
theprocessat theearliest. Thiswill comprise
trainingandequippingofStateresponseforces,
community preparedness, training andcreation
ofresponsecachesattheDistrictlevel.District
level preparations willprovide thecuttingedgetoallresponseactivities.Localauthorities,PRIs
andULBswillplayasignificantroleintheentire
process, particularly in response and rescue
operations, reliefand rehabilitation,awareness
generationanddisasterpreparedness,restoration
oflivelihoodoptionsandcoordinationwithNGOs
andcivilsociety.
Standard Operating Procedures (SOPs)
7.5.1 AllCentralMinistries,StateGovernments,
DistrictAuthoritiesandotherstakeholderswill
prepareSOPsinconsonancewiththeNational
andState Plans. SOPs willbe prescribed for
activit ieslike search and rescue, medical
a s s i s ta n c e a n d c a s u al t y m a n a ge m e nt ,
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evacuation,restoration of essential services
andcommunication at disaster sites, etc.
The otherimportantactivities are provision
of food, drinking water, sanitation,clothing
andmanagementof relief camps. Detailed
SOPs will alsobe devised by all concerned
f o r d e sp at c h , r e c e ip t an d d e p lo y m e nt o f
Centralresources.
Levels of Disasters
7.6.1 TheSOPsfordetermining thelevels
of disasters and forissuing alerts to electronic
messagingsystems ofvariousagenciesabout
disastershavebeenformulatedbyMHA.These
SOPs will bereviewed periodically for disasterresponse management incaseof natural and
man-madedisasters.
Incident Command System (ICS)
7.7.1 Atraditionalcommandstructureexists
in the administrative hierarchy whichmanages
disastersinIndia.Ithasbeenplannedtostrengthen
andprofessionalisethesamebydrawinguponthe
principlesoftheICSwithsuitablemodifications.
TheICS is essentially a management system
toorganisevarious emergencyfunctions ina
standardisedmannerwhile respondingto any
disaster. Itwill providefor specialist incident
managementteamswithanincidentcommander
andofficerstrainedindifferentaspectsofincident
management,such as logistics,operations,
planning,safety,mediamanagement,etc.Italso
aimstoputinplacesuchteamsineachDistrict
byimpartingtrainingindifferentfacetsofincident
managementto Districtlevel functionaries. The
emphasiswillbeontheuseoftechnologiesand
contemporarysystemsofplanningandexecution
withconnectivitytothejointoperationsroomat
alllevels.
First and other Key Responders
7.8.1 Theroleandimportanceofthecommunity,
undertheleadershipofthelocalauthorities,PRIs
andULBs,beingthebedrockoftheprocessof
disaster response, is wellrecognised. For their
immediate support, there areotherimportant
first responders likethe Police, SDRF, Fireand
MedicalServices.TheNDRFwillprovidespecialist
responsetrainingwheneverrequired.Inserious
situations,theresourcesofallNDRFbattalions
(18teamsper battalion),on as required basis,
willbeconcentratedintheshortestpossibletime
in the disasteraffected areas.Other important
responders willbe theCivil Defence, Home
Guards andyouthorganisations such as NCC,
NSS andNYKS. The deployment ofthe Armed
Forceswill alsobe organisedon as required
basis.Establishment/raisingof NDRF should
progressivelyreducedeploymentoftheArmed
Forces. However, the Armed Forces wouldbe
deployed only when thesituationis beyond
thecopingcapacityoftheStateGovernment(s)
andNDRF.
Medical Response
7.9.1 Medicalresponsehastobequickand
effective.Theexecutionofmedicalresponseplans
anddeployment ofmedicalresources warrant
specialattentionattheStateandDistrictlevelin
mostof thesituations.Thevoluntarydeployment
ofthe nearestmedical resourcesto thedisaster
site,irrespectiveoftheadministrativeboundaries,
willbeemphasised.Mobilemedicalhospitalsand
otherresourcesavailablewiththecentrewillalso
beprovidedtotheStates/UTsinaproactivemanner.
Post-disastermanagementofhealth,sanitationand
hygieneservicesiscrucialtopreventanoutbreakof
epidemics.Therefore,constantmonitoringofany
suchpossibilitywillbenecessary.
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Animal Care
7.10.1 Animals both domesticand wild are
exposedtotheeffectsofnaturalandman-made
disasters. It is necessary to deviseappropriate
measuresto protectanimalsand findmeans
toshelter andfeed them during disasters and
their aftermath, througha community effort,to
the extent possible.It ispertinent tonotethat
many communities have shown compassion
to animals during disasters,and these efforts
needtobeformalisedinthepreparednessplans.
TheDepartments/MinistriesoftheGoI,suchas
theDepartment ofAnimal Husbandry, Dairying,
&Fisheries,SocialJusticeandEmpowermentand
theStatesconcernedshoulddevisesuchmeasures
atalllevels.
Information and Media Partnership
7.11.1 D u ri n g d i sa s te r s i tu a ti o ns , t h e
dissemination of accurate informationthrough
electronic and print mediais veryimportant.
Regular press briefingby traineddisaster
managementofficials is essential. Trainingin
informationmanagementandaccuratereporting
willbeundertakenatalllevels.
resPoNse
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8Relief and Rehabilitation
Approach
8.1.1 Relief is no longer perceivedonly as
gratuitousassistanceorprovisionofemergency
reliefsupplies on time. It is on thecontrary,
viewed as an overarching system offacilitation
ofassistancetothevictimsofdisasterfortheir
rehabilitationinStatesandensuringsocialsafety
andsecurityoftheaffectedpersons.Therelief
needstobeprompt,adequateandofapproved
standards.Guidelinesdefiningminimumstandards
ofreliefwillbepreparedbytheNDMA.
Setting up of Temporary Relief Camps
8.2.1 DDMAs, especially in recurringdisaster
prone areas, mayidentify locations forsetting
uptemporarycamps. Agencies tosupplythe
necessarystores will beidentified inthe pre-
disasterphase.Theuseofpremisesofeducational
institutionsforsettingupreliefcampsneedsto
bediscouraged.
8.2.2 Thetemporaryrelief campswill have
adequateprovisionofdrinkingwaterandbathing,
sanitation andessential health care facilities.
Whereverfeasible,specialtask forces from
amongst thedisasteraffected familieswill be
setuptoexplorethepossibilityofprovidingfood
throughcommunity kitchens, andprovision of
educationthrough therestorationof schools
and anganwadis. Efficientgovernancesystems
likeentitlementcards, laminatedidentification
cardsetc.,willbedevelopedasapartofuniform
humanitarian governance practicesthroughthe
respectiveDDMAs.
Management of Relief Supplies
8.3.1 Ensuringminimumstandardsofreliefand
speedy managementof supplies are important
featuresofreliefoperations.SOPswillbeputin
place forensuring theprocurement, packaging,
transportation,storage and distribution of
relief items, whichneeds tobe carried out in
an organised manner. The affected community
andlocalauthoritiesneedtoworkintandem
inmanaging the reliefcamps.Guidelines will
be evolved tomanage thedonations received
i n c a sh o r k i nd t o e n su r e t r an s pa r en c y
andaccountability.
Review of Standards of Relief
8.4.1 InmostStates,existingstandardsofrelief
needtobereviewedtoaddressthecontemporary
needsofcommunitiesaffectedbydisasters.The
SDMAsmay review theRelief Codes/manuals
andprepareDMCodesforprescribingthenorms,
standardsandcriteriafortheprovisionofreliefin
conformitywiththeguidelinesofNDMA.
Temporary Livelihood Options andSocio-Economic Rehabilitation
8.5.1 In theaftermath of anymajor disaster,
generally a demand always arises togenerate
temporary livelihood options forthe affected
communityand the StateGovernments should
recognise this aspect intheirDM planning
process.Anysuchoptionmustensurethatthe
assets, infrastructure and amenitiescreated
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NatioNal PolicyoN Disaster MaNageMeNt 2009
arehazard resistant,durable, sustainable, and
cost-efficient.
Provision of Intermediate Shelters
8.6.1 In thecaseofdevastating disasters,
whereextremeweather conditionscan be life-
threateningorwhentheperiodofstayintemporary
shelters is likely to be longand uncertain,
constructionofintermediateshelterswithsuitable
sanitaryfacilitieswillbeundertakentoensurea
reasonablequalityoflifetotheaffectedpeople.
Thedesignofsuchshelterswillbeeco-friendly
andin consonance with local culture. Itwould
be desirable forSDMAs to planduring periods
ofnormalcy,the layoutof intermediateshelters
whichiscost-effectiveandasperlocalneedswith
multi-usepotential.
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9Reconstruction and Recovery
Approach
9.1.1 T he ap p ro ac h t o t he r e c on str uc tion
processhastobecomprehensivesoastoconvert
adversityintoopportunity.Incorporatingdisaster
resilientfeaturestobuildbackbetterwillbethe
guiding principle. Thisphase requiresthe most
patientandpainstakingeffortbyallconcerned.
Theadministration, thestakeholdersand the
communitiesneedtostayfocusedontheneedsof
thisphase,as,withthepassageoftime,thesense
ofurgencygetsdiluted.Theappropriatechoiceof
technologyandprojectimpactassessmentneeds
tobe carriedoutto establish that the projects
contemplateddonotcreateanysideeffectsonthe
physical,socio-culturaloreconomicenvironment
ofthecommunitiesintheaffectedareasorintheir
neighbourhood. Systemsfor providing psycho-
socialsupport and traumacounsellingneed tobe developed for implementationduring the
reconstructionandrecoveryphase.
Owner Driven Reconstruction
9.2.1 Reconstruction plansand designingof
housesneedtobeaparticipatoryprocessinvolving
thegovernment,affectedcommunity,NGOsandthe
corporatesector.Aftertheplanningprocessisover,
whileownerdrivenconstructionisapreferredoption,
participationoftheNGOsandcorporatesectorwill
beencouraged.Reconstructionprogrammeswillbe
withintheconfinesandthequalitativespecifications
laiddownbytheGovernment.
Speedy Reconstruction
9.3.1 Essentialservices,socialinfrastructureand
intermediateshelters/campswillbe established
in theshortest possibletime. For permanent
reconstruction,ideally, the workincludingthe
constructionofhousesmustbecompletedwithin
twotothreeyears.CentralMinistries/Departmentsconcerned andthe State Governments should
creatededicatedprojectteamstospeedupthe
reconstructionprocess.
9.3.2 Contingencyplansfor reconstruction in
highlydisasterproneareasneedtobedrawnout
duringtheperiodofnormalcy,whichmayinclude
architecturalandstructuraldesignsinconsultation
withthevariousstakeholders.
Linking Recovery with Safe Development
9.4.1 Emphasis will be laid on plugging the
gapsinthesocialandeconomicinfrastructureand
infirmitiesinthebackwardandforwardlinkages.
Effortswillbemadetosupportandenhancethe
viabilityoflivelihoodsystems,education,health
care facilities, careof theelderly, women and
children,etc.Otheraspectswarrantingattention
will be roads, housing,drinking watersources,
provision for sanitary facilities, availabilityof
credit,supplyofagriculturalinputs,upgradationof
technologiesintheon-farmandoff-farmactivities,
storage,processing,marketing,etc.
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NatioNal PolicyoN Disaster MaNageMeNt 2009
Livelihood Restoration
9.5.1 S ta te g o ve rn me nt s w il l h av e t o l ay
emphasis on therestoration of permanent
livelihood ofthose affectedby disastersand
special attention tothe needs of women-
headedhouseholds,artisans,farmersandpeople
belongingtomarginalisedandvulnerablesections.
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Capacity Development
10
Approach
10.1.1 A s tr at eg ic a pp ro ac h t o c ap ac it y
development canbe addressedeffectivelyonly
withtheactiveandenthusiasticparticipationofthe
stakeholders. This processcomprisesawareness
generation, education, training, Research and
Development (R&D), etc. It furtheraddresses
puttinginplaceappropriateinstitutionalframework,
managementsystemsandallocationofresources
forefficientpreventionandhandlingofdisasters.
10.1.2 As some of theseaspects have been
discussedin other chapters,this partelaborates
onlyawareness,disastereducationandtraining.The
approachtocapacitydevelopmentwillinclude:
Accordingprioritytotrainingfordeveloping
communitybased DM systemsfor their
specific needsin view oftheregionaldiversitiesandmulti-hazardvulnerabilities.
Conceptualisation of community based
DMsystemsattheNationallevelthrough
a consultative processinvolving the
Statesand otherstakeholders withthe
StateandLocallevelauthoritiesincharge
ofimplementation.
I d e n ti f i c a ti o n o f k n o w l ed g e - b a s ed
institutionswithprovenperformance.
Promotion of International and Regional
cooperation.
Adoption oftraditional andglobalbest
practicesandtechnologies.
Laying emphasis on table-top exercises,
simulations,mockdrillsanddevelopment
ofskillstotesttheplans.
Capacityanalysisofdifferentdisasterresponse
groupsatState/District/Locallevels.
National Priorities
10.2.1 Inthe field ofcapacitydevelopment,
prioritywillbegiventotrainingofDMofficials,
functionaries,trainersandelectedrepresentativesandcommunities.
10.2.2 DMtrainingandorientationofprofessionals
likedoctors,engineers,andarchitectswillbegiven
dueimportance.Further,expansionofDMtraining
in educational institutions atall levels including
schools,with orientation towards practical
requirementswillbegivendueweightage.
Institutional Capacity Development
10.3.1 The NIDMwillplay animportantrolein
developing and facilitating the implementation
oftheNationaltrainingscheduleforDM.Itwill
also bethe nodalinstitutionfor Regionaland
Internationalcooperationfortraining.Therearea
numberofrenownedinstitutesinvariousStates,
whichareimpartingtraininginDM.Thesewill
bestrengthenedwithfinancialassistanceand
such efforts will bereplicated byStates/UTs.
Also,theDMcellsinallAdministrativeTrainingInstitutes, Police Academies, State Institutesof
RuralDevelopment,thefourParamilitaryTraining
Centres of theNDRF and theNational Training
Academywill contribute most significantly in
developingDM related skills.The capacity of
existing institutes needsto be upgraded in
accordancewithRegionalandLocalrequirements.
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Knowledge Management
11
Approach
11.1.1 Knowledgemanagementwillsynthesise
thetechno-centricorganisationalandecological
practicestostrengthentheprocessofinformed
decision making. There is a need tocreate a
networkofknowledgeinstitutionsinthefieldof
DM,tosharetheirexperiencesandknowledge.
While knowledge creationwill be primarily
carried outin specialised domainsby nodal
institutions,theNIDMandothersimilarinstitutions
w il l p lay an im p o rt an t r o le in k n o wle d g e
synthesis,datamanagementanddissemination
amongst its clientele groups, especially other
traininginstitutions.
Synergetic Application of Science andTechnology
11.2.1 TheMinistriesofScience& Technology
and Earth Sciencesand theotherconcerned
Departments ofthe GoI, in consultationwith
the NDMA, willidentifythe specific needs
anddisciplines forresearch andalso designate
domain-specific institutions depending on their
expertiseandknowledgebase.
Knowledge Institutions
11.3.1 The NIDM and otherinstitutionswill
collaborate andbring together academicand
traininginstitutionsattheNational,Regionaland
International levels. Theseinstitutionswill form
theknowledgerepositoryinDM,andalsostrive
toenhancetheknowledgebase.
Knowledge Dissemination throughInformation and CommunicationTechnologies (ICT)
Indigenous Technical Knowledge (ITK)
11.4.1 Arichlegacyoftechnicalknowledgeandexperience hasbeen handed downright from
ancienttimesbywayoftriedandtestedpractices
infacingdisasters indifferent partsof India. A
concertedeffortwillbemadetocataloguethis
preciousheritage,validatetheproductsthrough
contemporarysystemsand disseminate the
resultsto appropriate destinationsand affected
communitieswithaviewtoaddingvaluetotheir
DMeffort.
India Disaster Resource Network(IDRN)
11.5.1 Theexisting framework of IDRNneeds
tobefurtherexpandedtoincludetheresources
ofvariousagencies,domainsanddisciplinesat
theNationallevel.The relevantinformation will
beplacedinthepublicdomainforeasyretrieval,
usageandonlineupdation.
India Disaster Knowledge Network(IDKN)
11.6.1 Inacknowledgment oftheneed for
aknowledgesharingplatformonDM,andto
facilitateinteraction anddialogue withrelated
areasofexpertise,theIndiaDisasterKnowledge
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Network Portalhas beenset up.The portal
willserveasatooltocollect,collateand
disseminateinformation related to DM.It will
connectall GovernmentDepartments, statutory
agencies,research organisations/institutions
an d h u m anit ar ian o r g an isat io ns t o sh ar e
collectivelyandindividuallytheirknowledgeand
technicalexpertise.
Documentation of Best Practices andResearch
11.7.1 Intheimmediateaftermathofanydisaster,
fieldstudieswillbecarriedout,withthehelpof
experts,asaninstitutionalmeasure.Thesestudies
willconcentrateonidentifyinggapsintheexisting
preventionand mitigation measures andalso
evaluatethestatusofpreparednessandresponse.
Similarly,thelessonsofpastdisasterswillalso
becompiledanddocumented.Therecoveryand
reconstructionprocesswillalsobeanalysedfor
further refining the DM processes and training
needs.Withthehelpofexperts,NIDMwilldevelop
a referencebook forthedevelopment ofcase
studiesanddocumentationofbestpracticesin
a professional manner. This knowledgewill be
disseminatedtoallconcernedwithinthecountry
andalsosharedwithInternationalorganisations.
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Research and Development
12
Approach
12.1.1 Hitherto, a relief-centricapproach has
confinedtheresearchanddevelopmenteffortto
restricteddomains.Aprimaryconcernoffuture
effort intheseareaswill bethe identification
ofbroadresearchneedsinrespectofdifferent
hazardsinvariouspartsofIndiaandintensifying
demand driven researchprogrammes. Regional
and Internationalcollaborationneeds to be
encouraged.
Institutional Arrangements
12.2.1 TheentireDM architecture needs to
be supportedby a solidfoundation of frontline
R&D efforts,offering sound andstate-of-the-art
scienceandtechnologyoptionsinauserfriendly
manner.Aproactivestrategytoenhancemutual
reinforcementandsynergyamongstthevarious
groups andinstitutionsworking in thefield of
DMwill berecognised.Pooling andsharing of
perspectives, information and expertisewill
be promoted by encouragingsuch efforts.The
identification of trans-disciplinaryconcerns
through a processof integration ofthe talent
poolgroupswillbefacilitatedandaddressedby
astandingmechanismattheNationalandState
level. Close interaction withCentralMinistries
andDepartmentsofAgriculture,AtomicEnergy,
EarthSciences, Environment & Forests, Health,
Industry,Science&Technology,andSpace;and
withacademicinstitutionssuchastheIITs,NITs
anduniversities,etc.,willbemaintained.
Identication of Needs and Promotionof Research
12.3.1 A core groupof experts from scientific
and technical institutions has alreadybeen set
upbytheNDMAtoidentifybroadresearchneeds
indisasterriskreduction.Theywillalsoidentify
researchpartners/agencies/groupsdependingon
theirknowledgebaseandexpertise.Emphasiswill
belaidonclimatechangeandglobalwarmingwith
specificrelevancetoIndia.
12.3.2 The research oncross-cuttingthemes
includingtechnologicalandman-madedisasters
willbepromotedinadditiontonaturaldisasters.
Researchand Development in areassuch as
micro-zonationandscenariodevelopmentbased
onsimulationstudieswillalsobeencouragedto
assesstheshort-termandlong-termconsequencesofthesedisasters.
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The Road Ahead
13
13.1.1 Theenunciationofthispolicyrepresents
merelythefirststepinthenewjourney.Itisan
instrument thathopes to buildthe overarching
edificewithinwhichspecificactionsneedtobe
taken by variousinstitutions andindividualsat
alllevels.Adestinationhasbeendescribed,and
hopefully,adirectionshown.Thestagehasbeen
set,andtheroadmapsnowneedtoberolledout.
13.1.2 This documenthas endeavoured to
capture,initsessence,thevigorouslyenabling
environment, whichthe bodypolitic has putin
placethroughanActofParliamentthatheralds
theonsetofadifferentapproachindealingwith
disastersthathave,inthepasttakenaheavytoll
oflivesandpropertiesandcrippledtheeconomic
baseofcommunities.Italsoillustratesrealisation
ofthefactthatdisastersnotonlycauseasetback
toeconomicanddevelopmentalgrowth,butalso
seriouslyaffectthenationalsecurityenvironment.
13.1.3 Thecentral themeisthebeliefthat a
disasterintelligentandresilientcommunity,duly
empoweredby a newly created DMStructure,
working in cohesion multi-sectorally, will help
realisethenationalvision.
13.1.4 Thisis alsoan expression of the firm
convictionof thenationalleadership tomake
necessary financial allocations for Prevention,
PreparednessandMitigationratherthanfruitlessly
incurpost-disasterexpenditureyearafteryear.
13.1.5 Thispolicywillhaveserveditspurpose,
ifthosethatarechargedwiththeresponsibility
ofcarryingthetaskforward,findthattheirhands
havereceivedfromit,thestrengthanddirection
thattheyneed.
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Abbreviations
ARMVs AccidentReliefMedicalVans
BIS BureauofIndianStandards
CBOs CommunityBasedOrganisations
CBRN Chemical,Biological,RadiologicalandNuclear
CCMNC CabinetCommitteeonManagementofNaturalCalamities
CCS CabinetCommitteeonSecurity
CSR CorporateSocialResponsibility
CRF CalamityReliefFundDDMA DistrictDisasterManagementAuthority
DM DisasterManagement
GIS GeographicInformationSystem
GoI GovernmentofIndia
GPS GlobalPositioningSystem
HLC HighLevelCommittee
HPC HighPoweredCommittee
IAY IndiraAwasYojana
ICS IncidentCommandSystem
ICT InformationandCommunicationTechnology
IDRN IndiaDisasterResourceNetwork
IDKN IndiaDisasterKnowledgeNetwork
IITs IndianInstitutesofTechnology
IMC Inter-MinisterialCommittee
IMG Inter-MinisterialGroup
IT InformationTechnology
ITIs IndustrialTrainingInstitutes
ITK IndigenousTechnicalKnowledge
MHA MinistryofHomeAffairs
NCC NationalCadetCorps
NCCF NationalCalamityContingencyFund
NCMC NationalCrisisManagementCommittee
NDEM NationalDatabaseforEmergencyManagement
NDMA NationalDisasterManagementAuthority
NDMF NationalDisasterMitigationFund
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NDRF NationalDisasterResponseForce
NEC NationalExecutiveCommittee
NGOs Non-GovernmentalOrganisations
NIDM NationalInstituteofDisasterManagement
NITs NationalInstitutesofTechnologyNSDI NationalSpatialDataInfrastructure
NSS NationalServiceScheme
NYKS NehruYuvaKendraSangathan
PPP Public-PrivatePartnership
PRIs PanchayatiRajInstitutions
R&D ResearchandDevelopment
SAARC SouthAsianAssociationforRegionalCooperation
SDMA StateDisasterManagementAuthority
SDRF StateDisasterResponseForce
SEC StateExecutiveCommittee
SOPs StandardOperatingProcedures
ULBs UrbanLocalBodies
UN UnitedNations
UTs UnionTerritories
WMO WorldMeteorologicalOrganization
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