isdr_bbsr_report_25.02.2011
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BhubaneswarTRANSCRIPT
Mainstreaming institutionalization of Disaster Risk Reduction
Making Cities Resilient: My City is Getting Ready
We Are Getting Ready: How About You
BHUBANESWAR
Bhubaneswar, Orissa, India, 2011
NOMINATION FOR
By
Local Governance Network
Location of Orissa in India
Urbanisation & Disaster
At any one time, some natural disaster has just struck or about to strike somewhere in the worlds cities taking
a toll of human lives and material losses. The world no more lives in rural nor the disaster; urbanization
surpassed rural population in year 2008. Today world’s major disasters are taking place in and around cities
affecting vulnerable structures like buildings, infrastructure and human life etc. According to World Disasters
Report (WDR) 2010 “2.57 billion urban dwellers living in low and middle income nations are exposed to
unacceptable levels of risk fuelled by rapid urbanization, poor local governance, population growth, poor
health services and, in many instances, the rising tide of urban violence. Much of this urban population is also
particularly exposed to climate change.” Similarly UN HABITAT estimates by 2030; over 60 percent of the
world's population (4.9 billion out of 8.1 billion people) will live in cities. The trend of urban development in
Asia shows that by the year 2020, it will be predominantly urban.
Most of these natural disasters in major urban centers of developing countries produce an economic,
environmental; and social destruction that takes away works of generation and takes generation to repair it.
Almost all the natural disasters are unavoidable in comparison to technological disaster but their negative
impact can be eliminated or reduced. However, the absence of strong political will and administrative capacity
resulted into inappropriate handling of various kind hazards. Developing country’s social, economical and
political constrain are not aware of the fruits of disaster mitigation like their counter part in developed world
through installation of warning systems, resources, services, media involvement, and insurance coverage of
damage.
The 2010 WDR, points out, events, such as earthquakes and tsunamis, have caused the greatest number of
casualties between 2000 and 2008, averaging 50,184 people per year. Floods, such as those that recently
ravaged India and Pakistan, disrupted the most lives, with an average of 99 million people affected each year
between 2000 and 2008. As climate change intensifies every year, damaging storms, floods, and heat waves
will exacerbate the risks for those living in informal settlements and urban slums.
Urban sector in India and Orissa ‐ an overview
The Urban population of India is growing significantly with addition of 67 million in between 1991 ‐ 2001. India
hosts total 35 cities with a population more than million each.
India’s urban population is 285.3 million in the year 2001, which
is 27.8 percentage of the total population. Presently there are 6
mega cities of which 3 with population over 10 million and 3
with Population above 5 million in the country but by the year
2021, it is expected that India will have the greatest
concentration of mega cities in the Asian region1. Such a
massive number of people in urban areas do require adequate
infrastructure and services, with ensuring cities are better
prepared for meeting any form of disaster at any point of time,
along with ensuring urban environment conductive for well
being and productivity of residents.
1 The State of the Indian Cities 2001
In Orissa out of the total population of 36,706,920 as on 1st March 2001, 31,210,602 live in rural area and
5,496,318 in urban area. The net addition of population in rural areas during 1991‐2001 has been to the tune
of 3685399 while in urban area it is 1261785. The percentage wise decadal growth of population in rural and
urban area during the decade is 13.8 and 29.78 percent respectively. The percentage of urban population to
the total population of the states stands at 14.97. The percentage of urban population to total population in
the 1991 Census was 13.33 percent. Thus, there has been an increase of 1.64 percentage points in the
proportion of urban population in the state during 1991 – 2001.
Bhubaneswar regional setting
Bhubaneswar, the Capital of Orissa province is one of the fastest growing cities located in the eastern India. By
virtue of its strategic and central location, linkages, salubrious climate and propulsive effects of a growing city,
its regional setting can be illustrated in respect three characteristics, viz. Orissa State; Capital Sub‐Region; and
Golden Triangle of Tourism. Bhubaneswar being the Capital of the State has been functioning as an
administrative city and hub for tertiary economic
activities like services, trade and commerce. In
addition, recent development indicates that the city
is fast emerging as a preferred destination of health
and education for the State. The future city
economy is likely to be driven by the core sub‐
sectors like tourism related activities, knowledge
based industries, small‐scale and household service
industries and services, trade & commerce. As
stated earlier, the city is located at a distance of
about 64 km from Puri, and forms the apex of the
‘Golden Triangle’ with Konark and Puri as the other
two points.
Bhubaneswar is located in the eastern part of India and had historical links with the countries of South East
Asia especially Indonesia. The towns of Puri, Cuttack and Konark are all located within about 60 kms from
Bhubaneswar –and all these places have been in existence for 1000 years or more. Thus the historical and
religious significance of this region is immense leading to a large number of domestic tourists. The presence of
excellent sea beaches has led to an increase of international tourists who can have a multi faceted experience
which includes wildlife in their natural habitat apart from monuments of historical and religious interest.
Perhaps if one travels from Hyderabad in south to Kolkata one will come across Bhubaneswar. In between
located are some of the emerging cities within hours of distance i.e. Kharagpur, Baleswar, Bhadrak, Jajpur,
Cuttack, Khurda, Berhampur, Vishakpatnam. All of these cities are either attracting big investments or in
pipelines. This is the emerging Megalopolis of eastern India in days to come.
PHYSICAL CHARACTERISTICS
1.1 Geography
Bhubaneswar is located on 200 12” 42’ ‐ 200 18” 47’ North latitude and 850 47” 18’ ‐ 850 53” 0’ East longitude on
the western fringe of the coastal plain across the main axis of the Eastern Ghats. The city lies on the Mahanadi
Delta. It lies on the west bank of River Kuakhai, which is a tributary of River Mahanadi, 30 km south east of
Cuttack. The River Daya branches off Kathajodi and flows along the south eastern part of the city. It belongs to
Bhubaneswar Profile City Bhubaneswar Area 135sq (Municipal Are)
233 sq km (Development Area)
Geographic Location
200 12” 42’ ‐ 200 18” 47’ North latitude and 850 47” 18’ ‐ 850
53” 0’ East longitude Connectivity Air: City has modern airport
with regular flights from New Delhi, Mumbai, Kolkatta, Chennai, Hyderabad and Bangalore Road: City well connected by road network with the urban centers of the state and neighboring states. Rail: City is well connected by a rail network with other cities in India.
0
500000
1000000
1500000
2000000
2500000
1951 1961 1971 1981 1991 2001 2010 2030
old Gondwana landmass of India with an average elevation of 45 meters above the sea and mostly covered
with laetrite Soil. Topographically the city is divided into two major parts namely western upland and eastern
low land.
Geology
According to a study in the early part of nineties on the geology of Bhubaneswar observed about 65% of the
land consists of the lateritised peneplain, 25% of alluvial plain and only 10% of the land is composed of
sandstone ridges. The height of the lateretic
peneplain varies from 20m to 60m above mean sea
level. The average slope of the land is in between
1:60 to 1:20 and Alluvial plain below 20m‐ground
contour. The geology of the city and its surrounding
has an influence of over the construction of houses.
Most of the old building foundations and walls were
built using laterite blocks extracted from the city
land. This was practiced till the middle part of
nineties until laterite block extraction was
prohibited.
Climate
Bhubaneswar enjoys a moderately salubrious
climate. The city passes through three distinct
seasons viz. summer (March to June), Monsoon (July
to October) and winter (November to February). According to Koppen classification the city is comes under the
savanna (A.W). According to L.D. Stamp Bhubaneswar and its surrounding comes under ‘B’ category which implies
heavy rainfall varying from 101.6cm to 23.2.2cm. The annual mean temperature is 250C to 400C during the year.
Humidity remains high during the month of July to September.
History
Historically, Bhubaneswar has been influenced by three important religions in its growth Saivism; Buddhism
(by king Ashoka) and Jainasim (during king Kharvela’s regime). The city has assimilated these cultures and
earned its name as “Secular City”. It is believed around five thousand temples were once located in
Bhubaneswar. Even today, hundreds of temples that still stand majestically as mute witnesses to its glorious
past; one can study the chronological development of temple architecture from the start of the 7th Century
AD to its culmination in 13th Century AD. The area was ruled by several dynasties such as the Guptas, Mauryas
and Suryas. Over a span of time, the city has been known
by different names such as Kalinga Nagar, Tribhubaneswar,
Temple City, Ekamra Kshetra and finally as Bhubaneswar.
Bhubaneswar derived its name from the word
“Tribhubaneswar” means the God of Universe (Lord Siva).
Demographic Profile
Bhubaneswar is one of the few cities in the world that has
surpassed its planned projected population in every
decade. As the city was initially planned for accommodating 40,000 people over years but during 1961‐71 it
Growth of Bhubaneswar 1961 ‐ 2010
Growth force of Bhubaneswar
over took the figure with a growth rate of about 176.07 %, which was highest in the country. The growth rate
during 1991‐2001 registered a 57.3% with population of 647302 and present population of the city is
approximately 12, 00,000.It is projected by 2030 Bhubaneswar will have population of about two million.
Population Growth in Bhubaneswar
Year Area (Km2) Population Percentage of Growth Density Per Km2
1951 25.90 16512 ‐ 638 1961 50.25 38211 131.41 760 1971 65.03 105491 176.07 1622 1981 92.91 219211 107.80 2359 1991 124.74 411542 87.74 3299 2001 135.74 648032 57.45 4800 2010 1200000 7500 2030 2000000 14000
Source: Census of India and Projection for 2010 & 2030
Growth of Bhubaneswar in post independence era:
After independence of India in 1947, Government of India decided to build two new provincial planned capital
cities namely Bhubaneswar & Chandigarh for
Orissa and Punjab respectively. In 1948, first Prime
Minster of India Pandit Jawaharlal Nehru laid
down the foundation of new capital of Orissa. A
German Architect and city planner Dr. Otto. H.
Koensiberger prepared the first Master plan with
concept of neighborhood, gridiron pattern and for
the functioning of the administrative
headquarters of the state. The Master plan so
prepared covered an area of 16.48km2 with a
density if 10 to 12 families per acre, for 40000
population. Bhubaneswar has followed a linear
growth over a radius leading to horizontal
development of the city due to availability of
cheaper lands in its vicinity. The initial growth of the city was fully new built up over a plateau of forests. The
upland points were deforested for setting up new township covering 16.48 sqkm in 1948. Being a new
township it didn’t attract much population at the beginning resulting Govt. providing incentives in the initial
phase for people settling in Bhubaneswar. Most of the lands were offered on lease to people intending for
settling in the capital city of Bhubaneswar. The result was in 1961‐
71 Bhubaneswar recorded a growth of about 176.07 %, which was
highest in the country during that period.
Later on Govt. allowed expansion of the cities as a natural
phenomenon merging with multi modal growth centers. The
planned administrative city remained within the 2km distance from
the city centre and present Bhubaneswar is 135 Sq km. till today
Govt. is following the system of creating Growth Centers outside the
existing ones, resulting in expansion of the cities in much faster way.
While both forces are at work, the centrifugal forces continue to be
dominant due to availability of cheaper land in the periphery. The
affordability of people to have personalized vehicles has also edged
over making this city compact. More over the people’s behavior in past was more of having own bungalow
1961 1971 1981
1991 2001 2010
Bhubaneswar Becoming Local Government Bhubaneswar Notified Area Committee
Bhubaneswar was established with a population numbering less than 20,000 during the year 1948 (01.02.1948) as per Bihar Orissa Municipal Act – 1992.
Bhubaneswar Notified Area Council
Notified Area Committee become Notified Area Council during 0.10.952 as per Orissa Municipal Act – 950 and the area of the little town was expanded.
Bhubaneswar Municipality
During the year 1979, it was observed that the town grew beyond expectation Thus, the then Municipal Development Department on 29.03.1979 declared the Bhubaneswar Notified Area Council as a Municipality.
Bhubaneswar Municipal Corporation
Subsequently, the population increased to more than 4 lakh (.4 million) with it Bhubanesar Municipality was upgrade to a Municipal Corporation on 28.07.1994
Multi Hazard Map of Orissa
than Apartments. So the cheap land outside the core city allowed people to have their own Bungalow style of
living with personalized travel options encouraged growth of both principles. It is still practices today as a
dynamic process with appropriate urban infrastructure and affordable multistoried buildings attracting new
migrants settling in core part of the city.
The major driver for the initial growth was the rural –urban migration since Bhubaneswar was the first major
town, in the state, being developed ab initio nearly
sixty years back. Thus as more people poured into
the town, it kept expanding outwards. Availability of
land in the suburban areas fueled this centrifugal
growth. The present population of the city is
hovering around a million. Similarly, the city is
transforming from a Heritage city into a Knowledge
based society by attracting many educational
institutions, information technology based industries
and home to leading corporate houses. So as the
city’s civic body transformed into Municipal
Corporation from Notified area council in 1952 and
introduced Police Commissioner System. The city has transformed itself many times to meet the changing
needs of the society.
Urban Services in Bhubaneswar:
Bhubaneswar city is regulated primarily by Bhubaneswar Municipal Corporation, which is the local government
and looks after the Solid Waste Management, Collection of property Tax, Street lighting, cleaning of drains etc.
Bhubaneswar Development Authority looks after Development Plan, building plans, housing, parks including
land use planning etc. Housing and Urban Development Department is responsible for preparation of policy
frameworks and guidelines. The Government land of the city is regulated by General Administration
Department, which on requisition gives lands on lease basis to Bhubaneswar Development Authority,
Bhubaneswar Municipal Corporations and other institutions for various developmental activities. Road
development of the city belongs to institutions like Bhubaneswar Municipal Corporation, Development
Authority, Public Works Department, Irrigation Department, Roads and Building Department and National
Highway Authority. Water supply to the city is looked after by Public Health Engineering Organisation functions
under the Housing & Urban Development Department. CESCO is responsible for the Power Supply to the city
and street lights are looked after by Municipal
Corporation.
Experience of Urban Disasters and the Emerging Risk in
Bhubaneswar
A cyclone striking, large scale inundation of dense urban
population, or the wiping out of a poor houses due to
heavy rain fall or storm surge or a earthquake in waiting
are parts of serious simulation exercises. The indications
from the region’s history of disasters are a grim
reminder of what could be in store. The heat wave in
Disaster & Orissa region Orissa has been teetering from one extreme weather condition to another: from heat waves to cyclones, drought to floods. The state has been declared disaster‐affected for 95 of the last 105 years: floods have occurred for 50 years, droughts for 32, and cyclones have struck the state for 11 years. Since 1965, these calamities have not only become more frequent, they are striking areas that have never experienced such conditions before. For instance, a heat wave in 1998 killed around 2,200 people ‐‐ most of the casualties were from coastal Orissa, a region known for its moderate climate.
Natural calamities have seriously affected livelihoods in the state and the income level of households. Consequently, the states Gross Domestic Product (GDP) has been substantially depressed, says the State Human Development Report of 2003.
1998, super cyclone 1999 and catastrophic flooding in 2001 took the city by surprise, both on account of the
unprecedented amount of rainfall in record time, wind, sun strokes and the lack of preparedness of the civic
infrastructure and emergency systems to manage the disaster.
The multi hazard map of Orissa identified
Bhubaneswar under very high risk Zone‐B, where
the speed goes up to 50 m/s. The city is also
vulnerable to earthquakes, as it falls under Seismic
Zone III. Although the city was not a threat to
flooding at its inception in 1948 but due to
haphazard growth it becomes a regular treats from
2001 onwards. The multi hazard map of Orissa
observed Bhubaneswar to be one of the most
vulnerable to natural disasters.
Heat Wave
In Orissa, the conditions of heat wave existed in the
past mainly in the western Districts of the State. In
the last eleven years, the temperature of the rest
of the state during summer months has steadily
raised leading to heat‐strokes, death and other
suffering to the people. In the summer of 1998, as
many as 2,042 people died in the State due to heatstroke. Heat wave is defined as a condition of rise in
atmospheric temperature that leads to physiological stress, which sometimes can claim human life. Poor
people, informal workers and visitors mostly suffer from sunstroke and lose their lives. The State Government
after the large number of deaths in 1998 started making concerted efforts to minimize the death toll and
related suffering of the people on account of heat‐wave conditions. One of the worst affected cities is
surrounding of Bhubaneswar that recorded 123 deaths itself in 1998. Most of those affected include the poor,
rickshaw pullers, daily wageworkers and farmers.
Supper Cyclone
On 29th of October The Temple City of India faced its worst ever devastation, since becoming the capital with a
Super‐Cyclone for nearly 30 hours, and lashed all trees, hoardings, thatched house, communication and
movement of vehicles. Several of the buildings were severely damaged; some beyond the scope of economic
repairs. Infrastructures like road, electricity, drainage, telephone, water supply, health services, sanitation and
communication facilities like television, radio etc were all shattered. Even Bhubaneswar could not be
contacted by govt. of India nor could union ministers enter the state in those 30 hours of disaster by any
modes of helicopter or air services. One of the leading newspaper of India The Times of India in its 4th Nov
1999 issues described Bhubaneswar as Ghost City ‐ Streets were deserted as a thick blanket of darkness
descends added to the gloom of the shocked citizens.
After 36 hours of cyclone relief operation became functional by Urban Local Authority, State Authority, NGO’s
and common People from all walks of life. The Air Traffic Control system was restored with first flight of Indian
Airlines operated after three days on 31st October 1999. The telephone connections were restored only after
four days of cyclone. The School and College buildings that remain unaffected were mainly used as temporary
shelter for the cyclone affected people including urban Poor. Indian Express on 9th Dec 99 reported, “travel
agents are without business at most important tourist place in the state, are operating at a very low rate of
occupancy”.
Floods
Bhubaneswar falls under very High Damage Risk Zone –B (50 m/s) as stated in the Vulnerability Atlas of India
1997. Bhubaneswar experiences regular rainfalls due to cyclones throughout the year. The old town areas and
some part of the low‐lying areas with slums having thatched & poor quality walls are more vulnerable to
Cyclones. A flood in Bhubaneswar was something unbelievable for old citizens, as it used to less than half an
hour for the flushing of rainwater to drains. However, today it takes more than a day even more for flushing of
waters into drains.
Traffic Congestion
The city of Bhubaneswar has grown ten folds of what was projected at the time of planning the city. This is the
basic reason for the traffic problem in the city. Most of the roads, through wide enough are still not able to
sustain the traffic load of the city. The city also divides by National Highway 5 & 203; in between them is the
Railway line. The same time cities don’t have proper public transport system. The traffic congestion was such
that it’s difficult to move during the peak hours. This also has an impact during emergency situation too.
Informal settlement
Most of the urban poor in Bhubaneswar are live in sub‐standard conditions. The economic imperative drives
those to live in areas earlier left uninhabited, as they were too unsafe to live in for an economically sound
population. Slums and squatters can be seen sprawling the drain, canals, low‐lying lands and other hazardous
locations. Their numbers are only growing, and much faster than the supply of livable spaces. This trend
manifests in the increasing numbers and impacts of disasters, both in the form of shocks, i.e. rapid onset, high
impact events, and stresses, i.e. day‐to‐day small scale but widespread difficulties.
Approaches on DRR practice in Local Governments
The consequences of such crises are multiplied by poorly coordinated administration and planning. This city is
a planned capital city of Independent India built over a plateau with assumption of list risk to disaster.
However, over the year this City is highly becoming vulnerable to disasters induced by natural hazards&
climatic factors with frequent and severe during the last decades. The disaster issue in Bhubaneswar is being
addressed by various institutions at different levels by provincial, national and Local (Municipal) Government
and local level activities by community level entities. The city of Bhubaneswar is uniquely positioned to have a
synergy of activities of UN, bilateral donors, governments, and specific activities by civil society organizations
and academic institutions.
It was necessary for city administration to reduce the consequences of natural disasters by planning;
preventing the major city communities so that the local capacity is strengthened and they are prepared to
respond. Based on the legal framework Local Governments are very limited role in Disaster Management in
India but they are the first to respond community. So it was essential to build their capacity and share them
with various international examples on how local governments are responding to Disasters in their cities.
The states Local Government Association named City Managers’ Association Orissa (CMAO) responded to
address disaster management in urban areas with a focus of Risk Reduction and Response system of Local
Governments. The mandate of CMAO was not for Disaster Management but building capacity of cities. As part
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experienced all other disasters. Thus the risk assessment of the city first time opened the debate how much
vulnerable is Bhubaneswar. Among these worrying factor is the high frequency and severity of the disasters.
There is a say in this part of the world is that “we move five steps then one disasters pushes back ten steps”.
The risk assessment also realized that even a good infrastructure may not be good always, until unless a back
up system is placed. The example is being surplus in electricity and water supply of 214 lpcd r is still feared by
many based on past experience of 1998 heat wave & 1999 super cyclone. Even the city has scored very poor in
terms of roads, sanitation and slum housing. In social the city risk assessment opened the question how much
community is prepared, the involvement of common man, education and health aspects in highly growing city.
Within Institutional parameters the city felt good in cooperation between institutions but it scored poor in
emergency response, knowledge on managing latest know how in disaster risk reduction and top of it failing to
mainstream the whole cycle of Disaster Management. This is a clear indication that city need proper
institutional mechanism, infrastructure and mainstreaming disaster management to risk reduction.
After ten years of Super Cyclone in Bhubaneswar another round of risk assessment exercise conducted in
October 2010 to understand where the city stands. The indicators were same but samples size increased to
500 covering new category of students and the remaining people’s representatives, officials, community,
academics, NGOs, business houses, Government and media persons. The overall Risk assessment result of the
city in 2010 shows, the city has improved its performance in mainstreaming Disaster Risk Reduction, placing
proper infrastructure, evolved institutional mechanism and response system in spite of increase in frequency
of risks from Climatic & Natural disasters. The risk assessment in 2010 clearly explains that city has improved
lot in social, institutional and physical parameters. Within these parameters city still feels improvements in its
performance on areas like health issues, sanitation and slum housing.
My City is Getting Ready Campaign
Bhubaneswar city has joined Making Cities Resilient: “My City Is Getting Ready” Campaign in 2010. By joining
the campaign Bhubaneswar ensured the world that it will undertake or taking
actions on ten point charters. The steps of Bhubaneswar have inspired other
cities in this region to join Making Cities Resilient: “My City Is Getting Ready”
Campaign in 2010. On 21st January 2011 hundreds of Orissa Municipal Leaders
concluded joint deliberation of Local Governance Network and City Managers’
Association calls on “We are Getting Ready, How about you?” by signing the
UNISDR Global Campaign certificate. These leaders
committed monitoring building construction bylaws,
raising awareness on the need to safeguard the
environment and enhancing school & hospital safety.
The commitment of Bhubaneswar to campaign
motivated other cities in this region to join the
campaign. Along with CMAO these cities are presently
learning from each other on various indigenous and
international best practices not only on Disaster
Management but also more about DRR. The LGNet is supporting these cities developing a Urban DRR toolkit.
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Learning Bhubaneswar Practices
Risk assessment encompasses the systematic use of available information to determine the likelihood of
certain events occurring and the magnitude of their possible consequences. The outcomes of risk assessment
become very important component for all developmental activities of the city. Learning from risk assessment
the city has addressed specifically four areas since first assessment in 2003. It learned that over the year the
intensity of Climatic and Natural related disaster became a major challenge for the city. The first step city took
was updated Master Plan along with revisited the regulatory mechanisms for building byelaws. The outcomes
of risk assessment were integrated with land use mapping exercise of cities master plan. The entire city land
use is now updated with Geographic Information System (GIS) database. Second, the city undertook massive
awareness & capacity building programmes with support of national, state and bilateral agencies. Third,
upgraded its infrastructure i.e. road, sewerage, fire safety, drainage, sanitation, and introduced public
transport system. Fourth, being the capital city received appropriate institutional mechanism support from
both state & national government for setting actions both for mitigation as well as post disaster situation.
Currently city is implementing a national level programmes for slum free city planning and sanitation plan.
Both these plans are derived based on community consultation. It is assumed within a decade’s time the city
will have better sanitation system and appropriate affordable housing for the poor.
The “Hyogo Framework for Action 2005‐2015: Building the Resilience of Nations and Communities to
Disasters” (HFA) was adopted at the World Conference on Disaster Reduction (January 2005, Kobe, Japan). The
HFA specifies that increasing vulnerabilities related to various elements including unplanned urbanization
compounds disaster risk. Across the HFA, important elements on urban risk reduction are mentioned as one of
crucial areas of work to implement the HFA. In particular incorporating disaster risk reduction into urban
planning is specified to reduce the underlying risk factors (Priority 4). Policy makers are emphasizing the need
for long‐term disaster mitigation strategies as a fundamental aspect of urban development. This statement is
further strengthened with UNISDR’s worldwide disaster risk reduction campaign launched in May 2009,
enlisting local government leaders to commit to ten essential actions to disaster risks. These actions include
investing more in disaster reduction, preparing & sharing risk assessments, ensuring early warning systems are
in place and protecting ecosystems to reduce floods, cyclones and storm surge impacts.
To understand the current status and challenges in the area of urban disaster reduction, Local Governance
Network (LGNet) took the initiative to compile an inventory of initiatives undertaken in this city to reduce
urban risk. The inventoried cases have been categorized and analyzed on the lines of the five priorities of the
Hyogo Framework for Action and ten point agenda of my cities getting ready campaign; 1) Making disaster risk
reduction a priority, 2) Improving risk information and early warning, 3) Using knowledge and education to
building a culture of safety and resilience, 4) Reducing the underlying risk factors, and 5) Strengthening
preparedness for effective response. Based on the initiative mapping exercise and analysis on urban risk issues
in Bhubaneswar, the Status Report and Inventory of Initiatives looks at the dimensions of urban risk with their
causative factors and determinants, and at ways and means that have emerged over the years through various
interventions on addressing risk through innovative means such as community led disaster risk reduction
initiatives.
My Cities Getting Ready With HFA Framework and Bhubaneswar Good Practices HFA My City Campaign Bhubaneswar
1) Making disaster risk reduction a priority
1. Put in place organization and coordination to understand and reduce disaster risk, based on participation of citizen groups and civil society. Build local alliances. Ensure that all departments understand their role in disaster risk reduction and preparedness.
1 Orissa Disaster Management Authority
2 Institutional Framework for Disaster Risk Reduction in India
2. Assign a budget for disaster risk reduction and provide incentives for homeowners, low low-income families, communities, business and the public sector to invest in reducing the risks they face.
3 Low Carbon Future Climate Neutral City
2) Improving risk information and early warning
3. Maintain up up-to to-date data on hazards and vulnerabilities prepare risk assessments and use these as the basis for urban development plans and decision. Ensure that this information and the plans for your city’s resilience are readily available to the public and fully discussed with them.
Community based City Risk Assessment
5 Geographic Information System (GIS) use in City Planning
9. Install early warning systems and emergency management capacities in your city and hold regular public preparedness drills.
4.Early warning for School Children in coping weather disturbance
3) Using knowledge and education to building a culture of safety and resilience
7. Ensure that education programmes and training on disaster risk reduction are in place in schools and local communities.
6. Municipal Leaders Forum on Urban Management
7 Disaster Management in Academics
8. Mainstreaming DRR in Schools & Colleges
6. Apply and enforce realistic, risk risk-compliant building regulations and the land land-use planning principles. Identify safe land for low low-income citizens and develop upgrading of informal settlements, wherever feasible.
Revisit of Building Byelaws Master Plan 2030
11. Bhubaneswar Slum Profile
4) Reducing the underlying risk factors
4. Invest in and maintain critical infrastructure that reduces risk, such as flood drainage, adjusted where needed to cope with climate change
10. Urban Infrastructure Upgradion
8. Protect ecosystems and natural buffers to mitigate floods, storm surges and other hazards to which your city may be vulnerable. Adapt to climate change by building on good risk reduction practices.
9 Bhubaneswar Climate Policy
5) Strengthening preparedness for effective response
10. After any disaster, ensure that the needs of the survivors are placed at the centre of reconstruction with support for them and their community organizations to design and help implement responses, including rebuilding homes and livelihood.
13. Uninterrupted provision of Water
14. Progress through Partnership for Better Bhubaneswar
5. Assess the safety of all schools and health facilities and upgrade them as necessary.
12. Mainstreaming Preparedness
Good Practices 1 Orissa Disaster Management Authority Government of Orissa setup Orissa Disaster Management Authority, which was first ever such institution, created in India as the nodal agency for Disaster Management. The outcome of OSDMA contribution to Orissa later become model for many other states in India to set up Disaster Management Authority including National Disaster Management Authority (NDMA) in 2005. The formation of OSDMA has changed approach of Disaster Management from Post rehabilitation to prioritizing Disaster Risk Reduction both in Rural and Urban Areas.
(1) HFA Priority 1:
Making Disaster Risk Reduction a Priority
HFA Priority Action 1 focuses on ensuring that disaster risk reduction is a national and a local priority with a
strong institutional basis for implementation. The Government of
India has adopted HFA in its Disaster Management Programme.
Unlike many local governments Bhubaneswar is much ahead of
understanding the importance of HFA in local priority and
integrated in developmental activities much before the
international framework is placed. The aftermath of Super
Cyclone in 1999 realized provincial Govt. of setting up a formal
institution not only for handling disaster but also for reduction. As
result Government of Orissa set up Orissa State Disaster
Mitigation Authority (OSDMA) as an autonomous organization in
December 1999. Subsequently, the name of the Authority was
changed from Mitigation to Management including not only to
take up the mitigation activities but also the relief, restoration,
reconstruction and other measures. These activities cover the
entire gamut of disaster management including preparedness
activities. The formation of OSDMA was a groundbreaking
decision that latter motivated other Indian states for setting up
such institution, including the National Disaster Management
Authority (NDMA) in 2005 at the national level. NDMA goal is to build a safer and disaster resilient India by
developing a holistic, pro‐active, multi‐disaster and technology‐driven strategy for disaster management
through collective efforts of all Government Agencies and Non‐Governmental Organizations.
Second Urban management occupies an important place in the disaster management policy framework as the
dense populations, migrant poor and the under‐privileged are highly affected on account of
calamities/disasters. The techno‐legal regime of a nation has direct implications on the disaster management
framework. In India, the approach has been translated into a national disaster framework covering
institutional mechanism, disaster prevention strategy, early warning systems, disaster mitigation preparedness
and response including human resource development. Disaster prevention is defined to encompass activities
designed to provide permanent protection from disasters, which will include engineering and other physical
protective measures, and also legislative measures controlling land use and urban planning. Taking this as
backdrop Bhubaneswar undertook various preventive measures including:
(a) ensuring that all new buildings are designed and constructed with proper engineering intervention taking
due care for safety against natural hazards, so that no unsafe buildings are added to the huge existing
stock of unsafe buildings;
(b) ensuring safety of buildings in the public sector by retrofitting techniques and encourage similar action
regarding buildings in the private sector and individually owned houses. National standards/codes on
disaster resistant structures including the National Building Code of highest standards in technical
contents were adopted in its newly framed building bylaws.
Good Practices 2 Institutional Framework for Disaster Risk Reduction in India For the first time in India the Tenth Five Year Plan document has a detailed chapter on Disaster Management. The plan emphasizes the fact that development cannot be sustainable without mitigation being built into developmental process. In brief, mitigation is being mainstreamed into developmental planning. It resulted in not only participation of Multilevel Govt. agencies but also all other institutions like residence welfare association, NGOs, Schools, Universities, etc in Disaster Management.
Good Practices 3 Low Carbon Future Climate Neutral City The city understands the importance of on going debate of Climate Change. Therefore it undertook activities that are linked to both Climate Change & DRR. The activity includes undertaking city risk assessment, inventory of GHG emission and showcasing actions. It undertook massive awareness campaign for everyone including school children, housewives, informal hawkers and people living slums. Along with city council improved its service delivery by integrating energy efficiency, solar energy and procurements.
Third knowing past records over the year Bhubaneswar city has developed a multi layer good institutional
mechanism for disaster management including risk reduction,
with formal recognition of the role of various stakeholders. In
India the biggest partner in whole disaster management cycle is
the National Government. The Government of India adopted
mitigation and prevention as essential components of
development strategy. For the first time in India the Tenth Five
Year Plan document has a detailed chapter on Disaster
Management. The plan emphasizes the fact that development
cannot be sustainable without mitigation being built into
developmental process. In brief, mitigation is being
mainstreamed into developmental planning. It resulted in not
only Multilevel Govt. agencies participates but also all other
institutions like residence welfare association, NGOs, Schools,
Universities, etc. Much of this has been the integral agenda in the
form of DRR mainstreaming making it a comprehensive and
elaborate task to ensure inter‐agency coordination. The levels of mainstreaming achieved so far are
exemplary; however, improvements are desirable, particularly at the inter‐sectoral complexities involved
therein.
Fourth, although, the primary responsibility for disaster management is of the concerned of Local
Government, the Central Government plays a key role by providing financial and logistic support in case of
major disasters and co‐ordinate the effort of all Central Ministries/Departments/Organizations. The financial
support required for disaster management including mitigation is provided to the State Governments by
National Government, which is ultimately transferred to Local Government. A Calamity Relief Fund (CRF) is
functioning to provide Relief assistance to those affected by natural calamities with contribution of 75% & 25%
respectively by Government of India and State. These grant supports both individuals and local governments
on restoring key infrastructures i.e. roads, water supply, electricity supply, Primary Education, Primary Health
Centres, Community assets etc.
Fifth, the City Managers’ Association Orissa (CMAO) based in
Bhubaneswar has ensured participation of the city in various
national & international networks on areas relating to Disaster &
Climate Change. The partnership includes United Nations Centre
For Regional Development (UNCRD) on Mayors Policy Dialogue on
Environmental Sustainable Transport; International Council for
Local Initiatives (ICLEI) on Local Model Communities and United
National Framework Convention on Climate (UNFCC) on its annual
dialogue. The partnership framework in Bhubaneswar includes
prevention, preparedness, response, and recovery phases of
disaster management climate change activities. In order to make
these frameworks functional the city council has a regular
Good Practices 4 Early warning for School Children in coping weather disturbance Bhubaneswar is facing severe unpredictable weather spanning over one decade. The general view on Bhubaneswar weather pattern can be narrated as each year the monsoon rain is falling short over cyclonic rainfall, winter is getting colder and summer is getting hotter. In such a situation most vulnerable are student the school going children. However, this city understood weather variation and responded quickly. Today the state Govt. has developed mechanism for immediate issue of warning to action. The states nodal agency School & Mass Education department issues notices for modifying school timings and holidays etc. Summer vacation for schools usually starts in May but in recent years early rise in temperature above 40 degree Celsius forced Govt. to declare vacation in April. Similarly state issued notices for no morning classes in winter with a fall in temperature leading to cold waves and similarly during worse rain fall or cyclone warnings. These early warning not only reduced vulnerability but touched the important of DRR with parents, teachers and students.
interaction with community by the elected & executive wings. Understanding the fact risk reduction is critically
important to changing climate and it will increase frequency and intensity of climate related hazards. This city
has participated earlier in international campaign call “Cities for Climate Protection” and “Local Model
Communities Network”. Based on its experience from these two projects Bhubaneswar is committing itself
towards a low carbon climate neutral city planning approach in its future growth.
Sixth, Bhubaneswar is part of the GoI‐UNDP Disaster Risk Reduction (DRR) Programme (2009‐2012). This
programme envisages supporting local government initiatives by providing critical inputs that would enhance
the efficiency and effectiveness of the efforts in Disaster Risk Reduction. The programme strives to strengthen
the institutional structure to undertake disaster risk reduction activities at various levels including risk being
enhanced due to climate change and develops preparedness programmes, policies and practices in order to
minimize the risk to life and property. The pro activeness of Bhubaneswar city ensures its participation at
various advocacies, training and policy dialogues relating to disaster management at the state and national
level. Various Schools, Colleges, University, NGOs & Civil Society do support the city in whole process of
disaster management.
(2) HFA Priority 2:
Improving Risk Information and Early Warning Assessment and
Monitoring of Risks
Risk assessments include detailed quantitative and qualitative
understanding of risk, its physical, social, economic and
environmental factors and consequences. It is a necessary first
step for any serious consideration of disaster reduction strategies.
Its relevance for planning and development of disaster risk
reduction strategies was explicitly addressed during the United
Nations International Decade for Natural Disaster Reduction
(IDNDR 1990‐1999).
First, the mayor of Bhubaneswar city shared the 2003 assessment
outcomes before all elected representatives, city officials, media,
community, academics etc. Though it was something new for
everyone in the forum but all are agreed of taking actions as per
the consensus, so that the future generations of Bhubaneswar
should always be prepared to face any challenge.
Second, Risk Communication, which is an integral part of effective
risk assessment, is given priority, because in past many wrong
things happened which could have been avoided or reduced. This
is particularly true in cities like Bhubaneswar in past wherein the
impact of disasters is felt most by the poor, who are often
impacted because of the fact that they remain left out of many
communication and warning dissemination nets. As a result, there
are numerous cases of disasters hitting communities hard because the risk was not assessed or communicated
at the community level.
Good Practices 5 Geographic Information System (GIS) use in City Planning
Bhubaneswar Development Authority (BDA) is the nodal agency for city’s Urban Planning Agency. Way back in 1998 BDA realized that citizens must be provided better options for understanding city land use. So much before similar institutions undertook integration of GIS use in City Planning, Bhubaneswar city undertook digitization of all its cadastral maps first and now integrated with satellite maps. Using GIS BDA is able to deliver plot level detail information to citizens and using in Building Plan permission. The system also provides relevant information related to building byelaws. This verifies whether an area is suitable for habitation, low lying or zone of risk for settlements. A Land Use Information Cell was established in BDA with an objective to provide information related to land use to the prospective developers, plot owners, and buyers with a nominal user fee of Rs.100/-. Even a touch screen kiosks is provided where any individual can see the information about Development Plan and potential. The system allowed city for monitoring Effective development control and reduction in unauthorized construction.
Fortunately since later part of the nineties the city has developed very well integrated satellite imagery with
Geographic Information System (GIS) based database and it
updates the information on a regular intervals. This information’s
are accessible for everyone using Internet in PDF version and
physically in office premises. Today the city is learning to
integrate various outcomes of risk assessment in cities master
planning exercise. This further assures understanding of added
value of mapping and awareness by policy makers.
A sound scientific basis for issuing accurate warnings on time with
clear understandable warnings must reach those at risk. It is
essential that communities understand their risks; they must
respect the warning service and should know how to react. Many
often in past frequent occurrence of disasters led community‐
practicing business as usual principle despite of warnings. One
such phase is during super cyclone in spite of warning community
dint feel to move from risk areas. The result was massive loss not
only for human beings but also animal, agriculture and economy.
Over the last decade, the importance of effective information
management is being increasingly recognized in the disaster
management sector in this part of the World. A number of
measures were established for disaster management information
systems according to own specific needs. The applications of
these systems range from emergency response planning to short‐
range early warning to long‐range mitigation and prevention
planning. The city of Bhubaneswar has perhaps learned the
importance of early warning, preparedness and emergency
management much better than any other cities in this region, due
to past its records. As a result not only local governments gave
priority to pre disaster situation but also ensured with state Govt.
in building infrastructures that may required for Disaster
Management.
Unlike past today the city has better early warning system of
reaching the communities and alerting multi level agencies much before & last minute disaster strikes. This
because of high degree of climatic weather forecast, GIS based maps, surveillance systems and enthusiastic
media participation. In a typical pre disaster system the nodal agency communicates with all lines institutions
with appropriate measures with activating warning systems. As a response concern institutions takes action
relating to the situation i.e. evacuation of people leaving in low lying areas during flash floods, winds, cyclone;
working hours limitation during summer heat wave etc. Similarly once a warning is issued the message is also
now communicated through Short Message Service; flash news in Television, radio, FM and on public displays.
Good Practices 7 Disaster Management in Academics Disaster Management, Risk reduction educations were integrated at various levels i.e. primary & secondary schooling, colleges and university education. Indira Gandhi National Open University (IGNOU) conducts distance-learning course on Disaster Management. Local University has semesters on Disaster Management in Rural Management, NGO management etc. The state administrative training institute Gopabandhu Academy of Administration has a special chair on Disaster Management for officials and peoples representatives.
Good Practices 6 Municipal Leaders Forum on Urban Management Addressing Disaster & Climate change needs access to knowledge by both people’s representatives and officials. Therefore CMAO formed a Municipal Leaders Forum consisting of Mayors to learn, share and raise their Voices together. MLF is the catalyst of sharing knowledge with cities, conducting education progammes using case studies and simulations. Since 2004 it has trained more than 3500 people’s representatives, Civil Servants, planners, administrators and functionaries on Urban Disaster Management within Urban Management programmes. According to the Mayor “the city understands various dimensions of disaster risk within a community, can be addressed and continuously reinforced, passed between generations, through education & awareness”.
The advantage of such communication is well receives by
community with proper steps, which was absent in past.
(3) HFA Priority 3:
Using Knowledge and Education to Build a Culture of Safety and
Resilience
The application of knowledge and innovation for risk reduction in
urban context is a very important field. The past decade saw
Disaster Management emerging as a comprehensive and viable
subject, and has catching up with the ever‐increasing demands
imposed by rapid increase in urban risk dimensions and magnitude
that accompany growth trends and climate change. A number of
initiatives have been taken up in this region over the past decade
on the creation and dissemination of risk knowledge.
An investment in human resources and increasing individual
capabilities across generations are likely to have more lasting value
than any specific investments made in technical measures to
reduce risks. Priority emphasis is given to education as an essential
part of disaster reduction strategies. Now days Disaster
management as a core curriculum introduced in the school
curriculum and Teachers were trained to teach disaster
management. Similarly courses like Earthquake Engineering,
Disaster Management etc were integrated in the academic
curriculum of undergraduate engineering and architecture
courses. Local Universities are now days teaching course on
Disaster Management at the Master levels.
The Urban Earthquake Vulnerability Reduction Programme of
UNDP and Government of India, the Connect to Knowledge
Programme of CMAO, free education programme for Masson’s
and community based disaster preparedness programmes of NGO
and many other such programmes have proved the viability of the
approach and set benchmarks for other cities to follow. These
activities show the way forward for a knowledge‐based approach
to urban development, and the mainstreaming of risk reduction in
the development processes.
Recognizing that awareness about vulnerabilities is a sine qua non
for inducing a mindset of disaster prevention, mitigation and
preparedness, the Local Government has initiated citywide
awareness generation campaign as part of its overall disaster risk
management strategy. National & State Govt. supported the
efforts of cities though a holistic campaign with keeping the campaign strategy aimed at changing peoples’
Good Practices 8 Mainstreaming DRR in Schools & Colleges DRR education is one area that has emerged as a leading area of recent action in knowledge support system. There have been cases of regular & surprised drills were conducted relating to disaster and IEC materials for public education. Even school children in this city understand much better way learning steps in disaster management not only for themselves but also disseminating messages to all corners of the society.
Good Practices 9 Bhubaneswar Climate Policy Bhubaneswar City Recognizes the Climate Change is likely to be one of the Key Drivers of Change within our community in coming years leading to disasters, life style and livelihoods We Acknowledge that • Evidence continues to mount
that climate change is occurring. • By 2030, two third of humanity
will live in urban centers, where today more than 50% of world population lives and more than 75% of all energy is consumed.
• All cities are highly vulnerable to the impacts of climate change, especially frequent & severity of disasters.
• Climate Change will have far reaching efforts on cities economy, society and environment
perception on natural hazards and urban risk reduction. Apart
from the use of print and electronic media, the campaign reached
high public visibility viz. hospitals, schools, railway stations and bus
terminals, airports and post offices, commercial complexes etc. to
make people aware of their vulnerabilities and promote creation
of a safe living environment. On special occasions messages were
scrolled in local TV channels for building awareness.
Similarly National Governments supported campaign on Disaster
Risk Reduction using innovative methods like use of government
stationery viz. postal letters, bank stationery, railway tickets,
airline boarding cards and tickets etc. for disseminating the
message of DRR. The mass media campaign is helping in building
the knowledge, attitude and skills of the people in vulnerability
reduction and sustainable disaster risk management measures.
In order to assist the local government in capacity building and
awareness generation activities and to learn from past experiences
including sharing of best practices, the CMAO has
compiled/prepared a set of resource materials developed by
various organizations / institutions for dissemination. These
resources covers various construction toolkit; communication toolkit including multi‐media resources on
disaster mitigation and preparedness. These materials further used in capacity building programmes for local
schools, policy makers and trainers. The IEC material seeks to generate awareness on mitigation and
preparedness measures for risk reduction. Material and strategies used by various cities and international
organizations have been incorporated along with multi‐media CDs on disasters.
Awareness & Preparedness Measures • Sensitization of 136 engineers, Architects & Planners on Earthquake Vulnerability • Training of 27 engineers & Architects on Rapid Visual Screaming to identify earthquake resistant
capacity of the built environment. • Training of Doctors on Emergency Health Management • Training of 189 teachers on School Disaster Management Planning • Orientation of 281 officials, 302 Professionals & all corproators on Disaster Management with special
reference to Earthquake. • Orientation of 2080 School Students on School Disaster Management Planning and disaster safety
tips. • Orientation of more than 600 College Students on Disaster Management Planning, Volunteerism and
disaster safety tips. • Training of 376 Masson on “Earthquake Resistant Construction Technology” • Training of 26 volunteer drawn from 11 NGOs on Mapping Exercises. • Training of 150 Aganwadi Workers and 500 Women Self Help group on First Aid • Orientation of more than 100 Resident Welfare Association on Disaster Management Planning and
disaster safety tips. • Mock Drills at the School / Offices / Business establishment level as well as in Colleges & Universities. Source: Bhubaneswar Municipal Corporation
Good Practices 11 Bhubaneswar Slum Profile In year 2008 Bhubaneswar Municipal Corporation unveiled its Slum Profile. Which identified 377 slums containing 3,08,614 people and their concentration within the city. Each slum is identified based on their right to tenure, accessibility to water, sanitation, electricity, location in land use zones etc. The whole slum areas are identified and mapped using GIS toolkits. This is a comprehensive database for developing slum up gradation strategy for improving lives of urban poor in Bhubaneswar. The survey outcome is integrated with City Land use plan. Resulting in convergence of programmes including construction of houses in-situ or relocation depending on possibilities of habitation. Under the National Urban Renewal Mission beneficiaries were provided with 90% Grants for building concrete houses along with provisions of social, cultural & physical infrastructure.
Good Practices 10 Urban Infrastructure Upgradion City is not just vulnerable to Natural Hazards but also to humanization. The risk assessments of Bhubaneswar identified key on Urban Infrastructure up gradation. Since 2003 various key infrastructures were upgraded including roads, sewerage, transport etc. 85% of all roads in this city fully paved and remaining 15% as concrete. Most of the major roads of about 60Kms are either four or six lanes with additional pedestrian and bicycle paths. The city is implementing Integrated Sewerage Project amounting 754.23 Crore. It introduced first ever-public transport system for the city and ready with plans to introduce Bus Rapid Transit System (BRTS).
(4) HFA Priority 4:
Reducing the Underlying Risk Factors
It is crucial to integrate DRR in key sectors in urban development
and planning, as vulnerability to natural hazards is increased in
many ways in the process of development. Sustainability and
climate change adaptation is one of the key areas to which city
managers need to pay their attention. Human health in urban
areas may suffer as a result of climate change, especially in poor
urban areas whose inhabitants are least able to adapt. They
already suffer from a variety of problems associated with poverty
and inequity; Climate change will further aggravate these. For
example, poor areas that lack health and other services,
combined with crowded living conditions, poor water supply and
inadequate sanitation, are ideal for spreading respiratory and
intestinal conditions, and for breeding mosquitoes and other
vectors of tropical diseases such as malaria, dengue and yellow
fever. Changes in temperature and precipitation can spread
disease in previously unaffected areas and encourage it in areas
already affected. Changes in climate and the water cycle could
affect water supply, water distribution and water quality in urban
areas, with important consequences for water‐borne diseases.
Bhubaneswar has initiated various actions relating to climate &
sustainable urban development. These includes up gradation of
infrastructure, reforms in water & sanitation, slum up gradation
and environmental sustainability. Unlike past congested narrow
lane is now converted into six lanes with two dedicated lanes for
pedestrian & cyclist. All new roads are integrated with drainage,
sewerage, cycling and pedestrian paths ensuring that city gets
itself ready for any flash rain fall or movement of vehicles etc.
The city has well established climate change programme since
2001 including Green House Gas (GHG) emission inventory,
actions and policy intervention. All activities in Bhubaneswar city
contributed 10, 00,714 T e Co2 in 2008‐09; this has gone up by
41.40% in comparison to 2000 ‐ 01. Latter on the city has
developed various actions to demonstrate its commitment on
reducing impact on Climate Change. The activities include
reducing energy bills its own office premises, installing solar
power photovoltaic structures, improving the design of street
lighting etc. One of the interesting activities is integration with
cities informal vending activities by integrating energy efficiency approaches in vending zones. In 2008 about
Good Practices 13 Uninterrupted provision of Water Learning past experiences of disaster the city has built over thousands of Tube wells. These tube wells are managed by community for using waster during any failure of formal water supply either in normal time or in a disaster situation. In 2010 city launched a programme called “PIYUSH” for enabling urban poor to access water supply system in formal manner at very low prices (less than 1$ a month).
Good Practices 12 Mainstreaming Preparedness Bhubaneswar is one such city, which has seen all most all form of disaster in past resulting community, schools, corporate, public offices, media and citizens do consider the warning & preparedness much seriously. The ODRAF unit is equipped with communication equipment like telephone, fax, VHF and mobile phones. Mock drills have been conducted involving ODRAF, State Fire Service, National Disaster Response Force (NDRF) and Community Volunteers for better coordination among the stakeholders for effective management of disasters. Today there is regular & surprised drills were conducted relating to disaster. Similarly large offices do conducts regular mock drills along with local fire safety officials.
3500 vendors replaced their 100w, 200w incandescent bulbs and
40w tube lights with 18w CFLs bulbs. As a result of using CFL bulbs
the consumption of 3500Kw of electricity/day in lighting came
down to 630Kw/day thereby saving 82% of electricity or 492.34
tonnes of CO2 per year. The result not only reduced GHG emission
but also the poor vendors saved money from electricity bills.
Today all venders in the state are using the CFL lighting for street
vending.
One of the important risks that city identified to overcome is
reducing congestion due to roads and absent of public transport
system. As a result, there is a growth in three wheeler, car usage,
two wheelers auto rickshaws and personalized vehicles resulting
in Deterioration of air quality, human health, emissions of
greenhouse gases; road accidents and reducing the economic
efficiency of urban poor. Often‐overcoming problems relating to
traffic & transport are leading urban disaster. The city has setup
Bhubaneswar Puri Transport Services Limited (BPTSL) the first
ever‐formed public company in Orissa state to run city busses.
The BPTSL has the mandate of running city buses in and around
linking Bhubaneswar and Puri. The BPTSL has 125 buses to run in
nine routes covering a distance of 267 km.
Globally it is assumed that urban poor are mostly vulnerable to natural & climatic linked disaster.
Understanding the importance, the city has prepared a slum profile for the city in 2008. Using the GIS platform
the city undertaken dialogue with community for building concrete housing and where ever there is a risk of
human habitation they are asked for shifting to places of non risk. Under the housing for the poor programme
90% of the cost is given as grant and 10% by the beneficiaries. There are provisions in which beneficiaries can
avail soft loans from Banks in building safe house. The whole process from planning to execution to
accommodation is supervised by local government with ensuring
that the buildings are safe for living. Local Government has a plan
to cover all poor people living in poor housing to better habitation,
ensuring reduction in risk.
(5) HFA Priority 5:
Strengthening Preparedness for Effective Response
Over the past couple of years, Government of India brought about
a paradigm shift in the approach to disaster management. The new
approach proceeds from the conviction that development cannot
be sustainable unless disaster mitigation is built into the
development process. Another corner stone of the approach is
that mitigation has to be multi‐disciplinary spanning across all
Good Practices 14 Progress Through Partnership for Better Bhubaneswar In order to involve private sector in city management, the Bhubaneswar Municipal Corporation launched an innovative programme called Progress Through Partnership for Better Bhubaneswar in 2005. Through this partnership various corporate houses of the city were encouraged to participate in city beautification activities. Using this platform the Local Government requested the corporate houses to participate in DRR activities. The city is witnessing severe heat wave since 1998 resulting deaths of human beings due to lack of awareness & access to cold water during summer. This was an opportunity for Corporate Houses of Bhubaneswar Joining Local Government call on setting up & managing kiosks for providing cold water, first aid, awareness pictures etc. Even agencies came forward in setting up permanent cold drinking water facilities at cities busiest junctions. This has become a regular practice for corporate house during summer without interventions of Local Governments and contributing the society. Other local governments in this region replicate even this practice for addressing heat wave.
sectors of development. The new policy also emanates from the belief that investments in mitigation are much
more cost effective than expenditure on relief and rehabilitation.
The aftermath of Super Cyclone in 1999, frequent floods and
various disasters that are emerged from activities of
humanization realized provincial Govt. of setting up a formal
institution. As result the state nodal agency for disaster
management OSDMA has taken several preventive and
preparedness measures for the cities to minimize the effects of
disasters. One such effort is setting up of Orissa Disaster Rapid
Action Force (ODRAF) to assist the civil Administration at the time
of calamities. 91 different types of emergency equipment have
been provided to each of the ODRAF unit to handle multi faceted
operations like Water Rescue, Relief Line Clearance, Collapsed
Structure Search and Rescue (CSSR), Medical First Responder
(MFR), Transportation, Communication, Personal Protective
Equipment (PPE) and Logistics. Comprehensive training
programmes are chalked out for capacity building of ODRAF
personnel in the state and national level training institutions.
Access to clean water is one of the key ingredients required by
everyone during any form of disaster. In past having a good
supply system the city faced obstacles in providing water during
super cyclone due to power failure, blockage of roads and
insufficient tankers. Understanding the importance of water in
emergency situation the city has constructed more than
thousands of tube wells covering entire city. So that communities
are able to access these tube wells during emergency situation.
The importance is community is much better prepared now to
face emergency situation, they ensures that the tube well and
other infrastructure are always ready for operation.
The local government in Bhubaneswar has very good network of
Neighbourhood Groups (NHG), Neighbourhood Committees
(NHC) & Community Development Society (CDS) for effective decentralised planning & people’s participation.
Periodically these bodies were sensitised about different schemes & their roles and responsibilities therein
including coping a disaster like situation. Near about 5000 women were trained with the avowed objective of
gearing up the community for natural calamites through the P3 ‐ Preparation, Prevention & Panacea. First Aid.
Training provided to about 200 women from different part of the cities. These women’s were also provided
with first aid kits for meeting the emergency situation.
In the aftermath of past disaster records Bhubaneswar city has learned benefits of community‐based disaster
preparedness (CBDP) from villages in and around state. Though CBDP is not a usual practice in many Indian
cities but this city is integrating residential welfare associations (RWA), NHG, NHC & CDS to cope with disasters
like situation. Involving local NGOs, Red Cross, Scouts & Guides, Volunteers and schools in developing exit plan,
identifying temporary shelter, building leadership for helping each other and ensuring their locality is better
prepared for facing disaster like situation in any given time. The city has now planned to develop an integrated
community based disaster management map for the city. This will be first of its kind in this part of world
ensuring every citizen understanding the map. It is believed a map evolved within community supported by
technical people will have better usability in future ensuring reduction in post disaster damage assessment.
Schools, Colleges and Hospitals play very important roles in disaster management cycle. There safety is
important for ensuring cities getting ready. Many of the schools & colleges are of double storied buildings in
Bhubaneswar. The school & education department has a regular programme on ensuring these infrastructures
are safe for temporary habitation during emergency like situation. It is mandatory for the School & colleges to
practice regular mock drills on evacuation, rescue and preparedness mechanisms. On the other side with
increase in population the numbers of hospitals not only simple but multi super specialty have come up in the
city. These super specialty hospitals too brought with them high categories of Ambulance for patients. These
infrastructures will also be useful for the cities preparedness to meet disaster like situation. Currently the city
has about 25 such high‐end with thousands of normal ambulance to support the cities.
Many often the focus of disaster response is more towards recovery of human beings & infrastructure.
However, apart from these aspects more important are shocks and stresses that affect survivors be it rich or
poor. The city has developed a good respond system along with the provincial Government to meet such
situation. The systems include rolling of access to free foods, financial assistance for running small‐scale
business and flexibility in accessing loans from bank. Various corporate do lend their support using Corporate
Social Responsibility (CSR) mechanism. Even NGOs have established their credential for providing psycho‐social
assistance and evolving recovery plans for affected communities.
During pre & post disaster poor communities do requires support for temporary shelters, food and sanitation
etc. The local governments is today better prepared with contingency fund to handle the situation. In 2008 the
city faced heavy unexpected rainfall leading to flash floods. But within twenty four hours the city was brought
into normalcy by pumping out the water from low lying areas, providing temporary shelters, foods and more
importantly removing the garbage generated during forty eight hours of rainfall. Many often the cities multi
storied schools & colleges acts as temporary shelters for disaster victims.
Climatic Urban Risk of Bhubaneswar
By 2030, India can expect a 1 to 1.5 degree Celsius rise in temperature and more intense spells of rain Indian
Institute of Tropical Meteorology (IITM). This implies India is going to be favourite for disasters relating to
Climate. Bhubaneswar city is not exceptional as signs of climatic weather change are visible. The change in
temperature pattern means there will be more rain fall but less in rainy days. Every summer is getting hotter
surpassing mid of monsoon, night temperature is getting hotter, winter is becoming colder and most of the
rainfall taking place in lesser days during cyclone formation than monsoon. This phenomenon is directly
impacting in issues like water conservation making it a necessary practice, tackling heat waves and handling
cold winter for the informal settlers.
A regular picture during Summer
Free Drinking Water Facility set up by Corporate, NGOs etc
Special License issued for selling of Watermelon during Summer
Medical Centre for Heat Wave affected People
The city lies in Seismic Zone III similar to that of Latur and Ahmedabad, which has already seen earthquakes in
past. Learning from the past Bhubaneswar city has initiated mapping of the fault lines and undertaken
programmes relating to earthquake risk management. A
second round training programme for engineers, architects
and urban planners are on the card to be trained on dealing
with situations arising out of such a disaster. They would also
be taught the skills of making earthquake‐resistant buildings.
The city has already implementing with reducing the impacts
due to heat waves. Since 1998 heat wave has wake up Govt. at
various levels in taking steps to reduce heat wave deaths and
impacts on human beings & animal etc. The main activities
undertaken to minimize the death toll and other sufferings
because of heat‐wave are through sustained awareness
campaigns in the print & electronic media, prevention and
response activities taken up by local governments.
The conditions of heat‐wave existed in the State in the months
of April, May, June and some time goes even to July till
Monsoon breaks. The impact of the heat‐wave can be well
judged from the fact that number of the days city temperature
remaining above normal average. However, despite rise in
temperature city is able to reduce number of deaths in
compare to 1998 because of preparedness/ preventive
activities undertaken by Government for management of heat‐
wave situation, some of which are given below:
1. All elected representatives, ward officers and officials were instructed to take all precautionary measures for mitigating the heat‐wave situation.
2. Meetings under the chairmanship of Hon’ble Chief Minister, Orissa conducted to review the preparedness activities of all concerned Departments
against heat wave conditions and drinking water problem in water scarcity areas of the State including Bhubaneswar.
3. The Mayor holds similar meetings at Local Government Level involving municipal officials, other line departments, schools, colleges, red cross, scouts, NCC, NGOs, NSS and Corporate houses to take necessary measures to tackle the heat‐wave situation.
4. IEC materials relating to heat‐wave were prepared, publish and Bhubaneswar Municipal Corporation for general awareness of the public. Advertisements were given through local newspapers, radio and television channels by OSDMA as well as Health & Family Welfare Department for raising awareness of the people.
5. All India Radio, Doordarshan and other Television channels also organised discussion and other programmes for creating awareness among people.
6. Action plan for mitigating water scarcity problems in different parts of the cities where mapped and adequate water tankers were deployed for supply of drinking water and defunct tube wells were replaced / repaired.
7. Essential medicines, saline and ORS packets were stored in the Hospitals, Community Health Centres and Primary Health Centres. Separate beds were earmarked for treatment of heat‐stroke patients in the Hospitals.
8. The working hour for daily labourers was re‐scheduled i.e. from 6 a.m. to 11 a.m. and 3 pm to 6 pm. Provision of drinking water was made at the works site.
9. Plying of buses during peak hours i.e. between 11.00 AM to 3.00 PM was restricted. 10. Power distributing companies were instructed to ensure uninterrupted power supply during the
summer. 11. The time table of the schools was re‐scheduled from 6.30AM to 10.30 AM. Provision of drinking water
and first aid was made available at the examination centres. Tub wells inside the school campus were repaired.
12. Ex‐gratia assistance @ Rs.10, 000/‐ each was provided to the next of the kins of the victims of the heat‐wave out of Chief Minster Relief Fund.
13. Ward officials & elected representatives of BMC were instructed to have an on the spot assessment of the situation and guide the Local Governments in taking corrective measures.
Heat Wave Impacts in Orissa Khorda ‐ Bhubaneswar Year No of
Deaths Peak Temperature
Number of Days above 400 Cel
Year No of Deaths
Peak Temperature
Number of Days above 400 Cel
1998 123 46.0 13 2004 3 45.1 15 1999 7 41.6 14 2005 39 40.6 15 2000 ‐ 42.2 1 2006 1 41.3 6 2001 1 44.4 17 2007 2 40.4 3 2002 2 45.8 13 2008 6 43.4 7 2003 2 44.7 12 2009 18 44.6 20 The above table gives a clear example on reduction of deaths due to heat wave even if the temperature
remained high above 400 Celsius. This is a clear demonstration of over the year DRR practices involving
multilevel institutions, community and technology intervention for addressing the heat wave situation. The
above measure of Bhubaneswar city is itself a best practices for others cities in this region for replication.
Conclusion Disasters in cities vary considerably compared to their rural counterparts. They are not only represented by
one‐off events like earthquake or cyclones but also get exaggerated due to high population concentrations and
hindrances in accessing basic services. The pace of urbanization in this part of the country is less than the
average national but it is more vulnerable to disasters.
Knowing the fact that city is prone to Climatic & Natural Disaster, located in poorest state of India, complicated
institutional mechanism, Bhubaneswar demonstrated its leadership, knowledge network and involvement of
institutions in demonstrating Good Practices in Mainstreaming DRR / HFA along with My City Getting Ready
Campaign reaches more than hundred cities. The city hosts state supported institutions like Orissa State
Disaster Management Authority and Orissa Disaster Rapid Action Force. Today these institutions are Model for
many cities in the Country. This city has shown locally groomed DRR models for tackling heat wave. This can be
adapt by other cities of the world that are now getting warmer day by day.
It is important that despite located in a poorest state of India, very much prone to cyclones, floods, heat wave,
rain fall etc the city has emerged as the hub of industries, education and tourist destination for many. In recent
studies of World Bank ranked Bhubaneswar as 3rd best city in India to do business 2009 and Confederation of
Indian Industries identified within 37 most livable cities of India. This all compliments progress that
Bhubaneswar has made in last one decade emerging from a disastrous to progressive city of this part of the
world.
The impacts of Global Environmental Change (GEC), particularly climate‐related hazards, disproportionately
affect poor and vulnerable people—those who live in slum and squatter settlements on the railway lines, in
poorly drained areas, or in low‐lying areas. Until recently, intensity and frequency patterns of natural hazards
followed natural variations in global temperatures and tectonic activity are visible in Bhubaneswar. Today,
Bhubaneswar has not seen a winter snow fall or large scale of seismic and volcanic activity but all other
extreme disasters that human being can expect, is visible. Some way other way this city has began accepting
that intensity of hydro‐meteorological hazards is being affected by a changing climate. Finally the population
of Bhubaneswar is growing in making this as the centre of Megalopolis of the East running between Hyderabad
in South to Kolkatta in north. The success story of Bhubaneswar has the opportunity of building South‐South
Knowledge cooperation on Disaster Risk Reduction.