responding to disasters
TRANSCRIPT
TRAINING MANUAL
BOOKLET III
Responding to Disasters
FOR THE PROJECT ONCapacity Building
inDisaster Management
for Government Officialsand
Representatives of Panchayati Raj Institutions & Urban Local Bodies
at District Level
(An Initiative of National Disaster Management Authority and IndiraGandhi National Open University)
A-PDF MERGER DEMO
National Disaster Management Authority (NDMA)
The NDMA has the Prime Minister of India as its Chairman. Other members of the Authority,notexceeding nine, are to be nominated by the chairman. The chairman of the NDMA may designate oneof the members to be the Vice-Chairman of the NDMA. The Vice-Chairman of NDMA has the statusof Cabinet Minister and other members have status of Ministers of State. The NDMA has been assignedthe responsibility of laying down policies, plans and guidelines for disaster management for ensuringtimely and effective response to disaster.
The NDMA has the following responsibilities:
Lay down policies on Disaster Management;
Approve the National Plan;
Approve plans prepared by the Ministries or Departments of the Government of India inaccordance with the National Plan;
Lay down guidelines to be followed by the State Authorities in drawing up the State Plan;
Lay down guidelines to be followed by the different Ministries or Departments of theGovernment of India for the purpose of integrating the measures for prevention of disasteror the mitigation of its effects in their development plans and projects;
Coordinate the enforcement and implementation of the policy and plan for disastermanagement;
Recommend provision of funds for purpose of mitigation;
Take such measures for the prevention of disaster, or mitigation, or preparedness, and capacitybuilding for dealing with the threatening disaster situation or disaster as it may considernecessary;
Provide such support to other countries affected by major disasters as may be determinedby the Central Government;
Lay down broad policies and guidelines for the functioning of the National Institute ofDisaster Management (NIDM).
The Indira Gandhi National Open University (IGNOU), since its establishment in 1985, has contributedsignificantly to the development of higher education in the country through the open and distancelearning mode. IGNOU follows a learner-centric approach and provides seamless access to qualityeducation, innovative learning, flexible methodology, Information and Communication Technology,professional skills and training.
The education is disseminated in conventional, as well as emerging inter-disciplinary areas, such asconsumer protection, disaster management, environment, human rights, women empowerment andchild development, participatory forest management, participatory planning, resettlement andrehabilitation, food and nutrition. Various literacy programmes focusing on community awareness,education and training in need-based and relevant areas have been successfully undertaken by theUniversity as a part of its strategy of social intervention and community capacity building.
Extension education is an important component of academic activities of IGNOU. It provides muchneeded linkages between the community and the University. The University has established a networkof 43 Regional Centres, 6 Sub-Regional Centres and 1,400 Study Centres all over the country toprovide easy access and effective support services to the learners. These include Programme StudyCentres, as well as Special Study Centres for SC/STs, minorities, differently-abled learners, jailinmates, and personnel of different wings of Defence and Para-military services.
The University develops its academic programmes through 21 Schools of Study comprising Facultytrained in distance education methodology. The academic programmes of the University have multi-media support. The University has facilities for audio, video, radio, television, interactive radio andvideo counselling, as well as tele-conferencing. IGNOU has also been identified as the nodal agencyfor running a 24-hour educational TV channel called Gyan Darshan. It has the unique distinction ofcombining the conventional role of a University with that of an apex body in the promotion, coordinationand maintenance of standards in distance education, through continuous assessment and accreditationof the Open and Distance Learning institutions.
Universe of the Project on “Capacity Building in Disaster Management for GovernmentOfficials and Representatives of Panchayati Raj Institutions and Urban Local Bodiesat District level”.
Project is being undertaken in 11 States, covering the following 54 Districts:
1. Andhra Pradesh: Anantapur, Mahabubnagar, Nellore, Prakasham, Srikakulam.
2. Assam: Barpeta, Cachar.Dhubri, Dhemaji, Lakhimpur.
3. Bihar: Madhepura, Muzaffarpur, Patna, Sitamarhi, Supaul.
4. Haryana: Ambala, Gurgaon, Panipat, Rohtak, Yamuna Nagar.
5. Himachal Pradesh: Chamba, Kinnaur, Kangra, Kullu, Manali.
6. Kerala: Ernakulam, Idukki, Malappuram, Palakkad, Wayanad.
7. Maharashtra: Nasik, Pune, Raigarh, Satara, Thane.
8. Orissa: Balasore, Bhadrak, Ganjam, Jagatsinghpur, Kendrapara.
9. Tripura: Dhalai, North Tripura, South Tripura, West Tripura.
10. Uttarakhand: Bageshwar, Chamoli, Pithoragarh, Rudraprayag, Uttarkashi.
11. West Bengal: Bankura, Burdwan, Murshidabad, Purba Medinipur, South Dinajpur.
TRAINING MANUAL
BOOKLET III
Responding to Disasters
FOR THE PROJECT ONCapacity Building
inDisaster Management
for Government Officialsand
Representatives of Panchayati Raj Institutions & Urban Local Bodies
at District Level
(An Initiative of National Disaster Management Authorityand
Indira Gandhi National Open University)
PROJECT TEAM NDMA
PROJECT TEAM IGNOU
Prof. Pardeep SahniMANUAL COORDINATION
Prof. Pardeep SahniProf. E. VayunandanProf. Uma MeduryProf. Alka DhamejaProf. Dolly MathewDr. Durgesh Nandini
Mr. Amit Jha, Joint Secretary (A)Ms. Sujata Saunik, Joint Secretary (Policy &Plan)Mr. S.S. Yadav, Director (Finance)Ms. Madhulika Gupta, Director (MIT)Mr. R.K. Singh, Joint Advisor (Policy & Plan)Ms. Preeti Banzal, Director (CBT)Mr. P. Thakur, Under SecretaryMr. Rajendra Prasad, (SO, CBT)Mr. Naval Prakash (SRO)
Prof. Alka Dhameja
MANUAL FORMATING AND COMPILATION
Mr. Rahul ChhabraCOVER PAGE DESIGN
February, 2012© Indira Gandhi National Open University and National Disaster Management Authority, 2012All rights reserved. No part of this work may be reproduced in any form, by mimeograph or any other means,without permission in writing from the Indira Gandhi National Open University and the National DisasterManagement Authority.Printed and published on behalf of the Indira Gandhi National Open University, New Delhi.Lasertypesetted at Graphic Printers, 204, Pankaj Tower, Mayur Vihar, Phase-I, Delhi-110091.Printed at :
Mr. Manjit Singh
PRODUCTION
Prof. Vinod K. Sharma, Indian Institute of Public Administration, New Delhi.MANUAL EDITING
Mr. Amit SrivastavaGRAPHICSMr. Simanchal Pattnaik and Mr. Manoj DashBOOKLET WRITING
MESSAGE
The National Disaster Management Authority (NDMA) was set up in 2005 by the Government of Indiaas an apex body to spearhead and implement a holistic and integrated approach to Disaster Management.NDMA has the responsibility for laying down policies, plans and guidelines for disaster management andcoordinating their enforcement and implementation for ensuring preparedness mitigation and timely andeffective response to disasters. NDMA has launched a number of initiatives to take the message ofdisaster management to all the stakeholders including community at the grass root levels. NDMA hastaken up mainstreaming of disaster risk reduction concerns in Government departments, States, Districtsand civil society, School and College education, technical education, Panchayati Raj Institutions andUrban Local Bodies. NDMA has laid down the framework of capacity building and mainstreamingDM for various disasters through its National Disaster Management Guidelines.
Communities are the first responders in the event of any disaster and the representatives of localadministrative bodies have a critical role in adoption of the new culture of disaster management in India.The National Disaster Management Authority is collaborating with the Indira Gandhi National OpenUniversity (IGNOU) to undertake a pilot project on “Capacity Building in Disaster Management forGovernment Officials and Representatives of Panchayati Raj Institutions and Urban Local Bodies atthe District Levels”. Under this project, a total of 4050 government officials and 12150 elected representativesof Panchayati Raj Institutions and Urban Local Bodies would be trained in Disaster Managementthrough Face to Face Training Programmes at the district level in 54 hazard prone districts of 11 States.
The Face to Face Training Programmes will focus on the critical aspects of prevention, preparedness,mitigation, relief and immediate response, rehabilitation, reconstruction and recovery with respect to disasters.The Indira Gandhi National Open University has a long experience of teaching courses in disaster managementand has developed rich knowledge on the subject. This project combines their knowledge with thevarious guidelines evolved by NDMA for Disaster Management.
I hope that this project would lead to larger programmes on capacity building of elected representativesof local bodies in the country and learning attained through such trainings will reach the community viathe identified facilitators. This will help enhance preparedness, strengthen mitigation and fulfill the visionoutlined in the National Policy on Disaster Management 2009, “To build a safe and disaster resilientIndia by developing a holistic, proactive, multi-disaster oriented and technology driven strategythrough a culture of prevention, mitigation, preparedness and response.”
New Delhi20 June 2011
(M. SHASHIDHAR REDDY)
Vice-ChairmanNational Disaster Management Authority
Government of India
4th Blank
FOREWORD
Accelerated pace of development brings with it the perils of unsafe living, pressures on non-renewableresources, densely populated spaces and environmental degradation among others. As a consequence,the frequency of catastrophes such as earthquakes, floods, cyclones, landslides, droughts, and fires hasgone up. We hear of disasters so often that we as individuals are sadly becoming immune to them. Wedisplay concern and anxiety when these calamities happen, but by and large depend on the concernedstakeholders to do the needful, who on the other hand, have a reactive rather than pro-active approachto disasters. Stitching up of loose ends takes place after an event and then because of lack of follow-upin terms of reconstruction and rehabilitation, the affected areas are rendered further vulnerable to suchevents that keep happening, leading to enormous loss of human resources in particular.
Making disaster management more effective and efficient, against this backdrop, is not just a pressingconcern, but an overarching problem facing the stakeholders in disaster management. Many efforts inthe past, both governmental and non-governmental, have been initiated in this direction. Many committees,forums and organizations, both national and international, have reiterated the pressing need of managingdisasters. There is no dearth of material in the form of reports, books, articles and manuals on thesubject. From relief and response to preparedness and long-term recovery, all major facets of disastermanagement have been examined at length. Yet, the need to revisit the issue is still pertinent, as it opensup fresh avenues of analyzing its different aspects. This Manual tries to focus on the knowledge, skilland attitude inculcation on the various facets of disaster management in a novel manner. It emphasizesthe role and relevance of governmental functionaries and representatives at the grassroots level, andreiterates the need for community understanding and participation in the disaster management process.The interconnection between disasters and development seems to be the core concern of the Manual.
This Manual, which is an integral part of the Project on ‘Capacity Building for Government Officialsand Representatives of Panchayati Raj Institutions and Urban Local Bodies at District Level’, addressesthe concern of empowering the officials and functionaries at the grassroots level. These are the peoplewho are in constant touch with the community. When the disaster strikes they are the immediate respondersalong with the community to go to the site with relief. Their training in disaster management is the bestexample of preparedness needed for disaster management in the country. Having myself worked in thearea of capacity building of PRIs for over two decades and being deeply involved in Rural Developmentinterventions both at national and international levels, I am convinced that this Manual will be able to liveup to the expectations of the participants. I am confident that it would be of substance and value to thegrassroots level officials and functionaries, and all those interested in the area of disaster management.
(Professor. M. Aslam)Vice Chancellor IGNOU
6th Blank
ACKNOWLEDGEMENTTraining Manuals are meant for the enhancement of knowledge, skills and attitudes of trainees. If thisendeavour succeeds in moulding the mindsets of the target groups of this Project; a ray of satisfactionwould be visible; not to mention the collective joy that would ensue. Many people are involved in suchefforts. Acknowledgement is a small way of expression of gratitude to them. I wish to express myforemost appreciation for General N.C.Vij, Former Vice-Chairman, National Disaster ManagementAuthority (NDMA), during whose tenure, the Project was conceptualized. I am equally obliged andbeholden to Shri M. Shashidhar Reddy, Hon'ble Vice-Chairman, NDMA, for his guidance, constructivecriticism, support and blessings towards the final execution of this Project.
I extend deep gratitude to Prof. V.N. Rajasekharan Pillai, Former Vice-Chancellor, Indira Gandhi NationalOpen University (IGNOU) for his support and encouragement. He has been involved with all the initialphases of the Project. I am indebted to Prof. M. Aslam, Vice-Chancellor, IGNOU for his kind cooperationand support towards the implementation of the project. My deep gratefulness to all those from the NDMAwho have sincerely worked for making this Project a reality. Special gratitude is in place to the seniorofficers of the NDMA namely Mr. Amit Jha, Ms. Sujata Saunik, Mr. R.K Singh, Mr. S.S Yadav, Ms.Madhulika Gupta, and Ms. Preeti Banzal for their constant cooperation, as well as for their content inputon the NDMA. I would also like to thank Mr. P. Thakur, Mr. Rajendra Prasad and Mr. Naval Prakash ofthe NDMA Project Team for their valuable help on Manual Draft. Other contributors from NDMA arealso worthy of my deep gratitude. But for them, the important details in the Manual would not have beenclarified. I thus thank Dr. C. Jayakumar (Sr. Consultant – Psychological Care), Shri S.N. Mahapatra (Sr.Consultant – Earthquake & Tsunami), Dr. M.C. Abani (Sr. Consultant – Nuclear & Radiological Hazards),Sh. B.B. Gadnayak (Consultant – IRS), Dr. T.S. Sachdeva (Consultant – Medical Preparedness), Sh.V.K. Jain (SAO), Dr. A.K. Sinha (SRO) for their noteworthy advice and suggestions.
Professor Pardeep Sahni of the Faculty of Public Administration, IGNOU deserves heartfelt thanks forconceiving and implementing his vision on the Project. He has coordinated each aspect of the Manualwith enthusiasm. I am truly thankful to Prof. Dolly Mathew of the Faculty for her dedicated compilationof audio and video components of the Project. Prof. Uma Medury deserves my gratitude for proofreading Manual booklets thoroughly. Other members of the Faculty namely Prof. E. Vayunandan andDr. Durgesh Nandini need to be exclusively thanked for their commitment and sincerity towards theconduct of Project Workshops in different states of the country. In fact, all Faculty members deserveearnest thanks for their genuine involvement in the Project Workshops. I express deep appreciation forthe Research and Teaching Assistants of the Faculty, namely Ms. Sandhya Chopra for her assistance onthe audio-video input, and also Mr. Senthamizh Kanal, Mr. Senthil Nathan, Ms. R. Anitha and Ms. G.Niranjani for their ceaseless help and support in this endeavour. Dr. Rajwant, Former Consultant with theFaculty, deserves a special thanks for preparing guidelines and slides for the Project Facilitators.
I express my deepest appreciation for the writers of this Booklet Mr. Simanchal Pattnaik and Mr. ManojDash. My earnest thanks to Professor Vinod K. Sharma of the Indian Institute of Public Administration(IIPA) for meticulously undertaking the content editing of all the 4 Booklets of the Manual. I am trulybeholden to all those who have been involved with the different aspects of the Manual, be it typing of themanuscript, running errands for the Workshops, and translation tasks. Mr. Lalit Kumar, Mr. Devender PalRawat, Ms.Yogita Vasandani, Mr. Sanjay Aggarwal, Mr. Amit Kumar Thakur and Mr. Dheeraj Kumarthus deserve my heartfelt thanks. I also owe special thanks to Ms. Abha Mishra, Project Officer, GOI–UNDP DRR Programme, New Delhi and Mr. Anshu Sharma of SEEDS, New Delhi for their valuablecomments on the drafts of the Manual Booklets. Deep gratitude is in place to all those who have workedvery hard on the presentation style of the Booklets. I am grateful to Mr. Amit Srivastava for creating thegraphics, Mr. Tamal Basu for finalizing the illustrations, Mr. Rahul Chhabra for designing the cover pages,Mr. Manjit Singh for printing, and Graphic Printers for laser composition of the Booklets.
(Alka Dhameja)
INTRODUCTION TO THE PROJECT
The Pilot Project on “Capacity Building in Disaster Management for Government Officials andRepresentatives of Panchayati Raj Institutions and Urban Local Bodies at District Level” is a joint effortof Indira Gandhi National Open University and National Disaster Management Authority. The Project isaimed to build and strengthen the capacity of the target groups in the areas of disaster prevention,preparedness, mitigation, response and recovery.It is being undertaken in selected 11 States, identified on the basis of their vulnerability to various naturaland man-made hazards. These States have been selected from all five Regions namely North-East(Assam, Tripura); North (Haryana, Himachal Pradesh, Uttarakhand); East (Bihar, Orissa, West Bengal);West (Maharashtra); and South (Andhra Pradesh, Kerala); covering the following 54 districts, 4 fromTripura and 5 from each of the other ten identified States under the Project: Andhra Pradesh: Anantapur, Mahabubnagar, Nellore, Prakasam, Srikakulam. Assam: Barpeta, Cachar, Dhubri, Dhemaji, Lakhimpur. Bihar: Madhepura, Muzaffarpur, Patna, Sitamarhi, Supaul. Haryana: Ambala, Gurgaon, Panipat, Rohtak, Yamuna Nagar. Himachal Pradesh: Chamba, Kinnaur, Kangra, Kullu, Manali. Kerala: Ernakulam, Idukki, Malappuram, Palakkad, Wayanad. Maharashtra: Nasik, Pune, Raigarh, Satara, Thane. Orissa: Balasore, Bhadrak, Ganjam, Jagatsinghpur, Kendrapara. Tripura: Dhalai, North Tripura, South Tripura, West Tripura. Uttarakhand: Bageshwar, Chamoli, Pithoragarh, Rudraprayag, Uttarkashi. West Bengal: Bankura, Burdwan, Murshidabad, Purba Medinipur, South Dinajpur.From each district, 300 people shall be trained under the Project, out of which 75 will be Governmentofficials and 225 will be the representatives of Panchayati Raj Institutions (PRIs) and Urban LocalBodies (ULBs). Thus, in all, 16,200 Government Officials (GOs) and representatives of PRIs/ULBsshall be trained in Disaster Management under this Project.Objectives of the Project have been to: Build and strengthen the capacity of Government Officials and representatives of PRIs and ULBs
in the areas of disaster prevention, preparedness, mitigation, response and recovery. Encourage the GOs as well as PRI and ULB representatives to enlist the support of local institutions,
NGOs, CBOs, etc., for community awareness, as well as capacitate the officials and local institutionsto procure the support from other relevant quarters.
Reinforce the skills of officials and representatives in appropriate hazard assessment, vulnerabilityanalysis, resource analysis and local capacity assessment.
Develop the required disaster management knowledge base of the GOs, as well as PRI and ULBrepresentatives.
Formulate training modules, including standardized training methodology, technical support fororganizing training programmes on emergency preparedness and management for the officials andrepresentatives.
Develop community based disaster management systems for their specific needs in view of theregional diversities and multi-hazard vulnerabilities through a consultative process.
Disseminate important concepts of NDMA Guidelines in the various regional languages throughmulti-media technologies.
Enable officials who are functioning at the district levels to be better equipped to deal with naturaldisasters such as earthquakes, floods, landslides and other natural phenomena that are likely tocause damage.
Train the team of district officials to enable them to introduce basic guidelines/procedures andbecome aware of safety and evacuation techniques, as well as seismic-resistant constructions.
Equip the functionaries at district level to immediately arrange for basic relief work, in case ofcommon natural/man-made disasters without waiting for help/ instructions from external sources.
Methodology of Execution:In the identified 54 multi-hazard districts, a systematic methodology has been adopted under the Project,which includes:1. Identification of Administrative Training Institutes (ATIs), in each of the 11 States for organization
of Pilot Face-to-Face Training Programme (FFTP) for Training Need Analysis (TNA).2. Development of background material and audio and video programmes to be provided to the
participants of FFTPs.3. Translation of background material in Hindi, Assamese, Bengali, Marathi, Malayalam, Oriya, and
Telugu.4. The Study Centre Coordinator has been identified as the nodal officer representing IGNOU for
carrying out the following activities pertaining to the Project: To be in touch with the Nodal Officer from the District Administration to get the names of the
participants for attending FFTPs. NDMA is responsible for passing on the names and contactdetails of the Nodal Officers to the Study Centre Coordinator, once the same is finalized andconveyed by the district administration.
To organize the Capacity-Building exercise through 8 FFTPs of two day duration each, to beattended by 35-40 participants identified by the district administration for each FFTP.
2 Resource Persons identified from different fields of study from each Study Centre havebeen assigned to conduct 8 FFTPs of two day duration each.
Mock Drill of around two hours on the second day of each FFTP has been provisioned todemonstrate skills and methods required in rescue operations, including first aid techniques/skills.
The Main Stakeholders of the Project are: National Disaster Management Authority (NDMA) Indira Gandhi National Open University (IGNOU) State Governments State Disaster Management Authority (SDMA) District Disaster Management Authority (DDMA) District AdministrationThe Project aims at training the participants who shall further help the community to undertake requiredtasks for effective disaster management.
INTRODUCTION TO THE BOOKLET
Disasters are calamitous, but if not responded to properly, they can turn even more devastating. ThisBooklet titled ‘Responding to Disasters’ comprehensively deals with the concepts of ‘Evacuation,Search and Rescue’ by underlining their principles and cardinals. The key concepts in the Bookletprovide explanation to the terms like Buffer Stock Maintenance, Casualty Site Management,Corporate Social Responsibility, Counselling, Critical Incident Stress De-briefing, EpidemiologicalProcedures and Post-Traumatic Stress Disorder. Adequate response is dependent on the effectivenessof the stakeholders involved. The Booklet attempts to bring home this point by elucidating the roleof Civil Defence, Non-Governmental Organizations, Nehru Yuva Kendras and National DisasterResponse Force.
The Booklet explains disaster response management under two broad categories, namely DisasterResponse Management for Response Activities and Disaster Response for Specific Disasters. Responseactivities focus on different response tasks such as Incident Response System, damage assessment,relief distribution, health planning, shelter management, water purification, sanitation options, logisticsmanagement, stress management; and relief to livestock. Responding to disasters such as earthquakes,fires, cyclones and floods form a part of disaster-specific response management. The Booklet alsoexplains the functions of various response teams like carcass disposal, shelter management, waterand sanitation, quick first-aid, damage assessment, trauma counselling, as well as medical assistanceand first-aid. It analyzes the constraints in response and the ways of overcoming them. The Bookletwill help you all in understanding the nature of activities involved in different types of disasters; andfamiliarize you with the response required of you in disaster aftermath.
CONTENTS
SECTION TOPIC PAGE
Abbreviations 12
RESPONDING TO DISASTERS
1.1 Evacuation 15
1.2 Relevance of Search and Rescue 161.2.1 Characteristics of SAR 17
1.2.2 Basics of Search and Rescue 18
1.3 Concepts to Remember 19
1.4 Role of Stakeholders in Response 22
1.5 Disaster Response Management 281.5.1 Incident Response System 29
1.5.2 Damage Assessment 34
1.5.3 Relief Distribution 36
1.5.4 Shelter Management 39
1.5.5 Health Planning 42
1.5.6 Water Purification 44
1.5.7 Sanitation Options 46
1.5.8 Warehouse Maintenance 48
1.5.9 Relief to Livestock 50
1.5.10 Stress Management 51
1.5.11 Logistics Management 55
1.6 Disaster Response for Specific Disasters 561.6.1 Earthquakes 56
1.6.2 Cyclones 57
1.6.3 Floods 58
1.6.4 Droughts 59
1.7 How Does Disaster Response Actualize? 60
1.8 Overcoming the Constraints in Response 80
1.9 Do’s and Dont’s 83
References 87
12
ABBREVIATIONS
AIM : Anna Institute of Management
AC : Area Commander
ATI : Administrative Training Institute
BDMC : Block Disaster Management Committee
BDO : Block Development Officer
BSF : Border Security Force
CBO : Community Based Organization
CBRN : Chemical Biological Radiological Nuclear
CEO : Chief Executive Officer
CD : Civil Defence
CISF : Central Industrial Security Force
CMO : Civil Military Operations
CRPF : Central Reserve Police Force
CRF : Central Reserve Force
CS : Chief Secretary
CSSR : Collapsed Structure Search and Rescue
CSR : Corporate Social Responsibility
CWD : Civic Works Department
DC : Disctrict Collector
DDA : Detailed Damage Assessment
DDMA : District Disaster Management Authority
DDMP : District Disaster Management Plan
DGHS : Directorate General of Health Services
DM : Disaster Management
DMD : Disaster Management Department
DMT : Disaster Management Teams
EMR : Emergency Medical Response
EOC : Emergency Operations Centre
ESF : Emergency Support Function
FFTP : Face-to-Face Training Programme
GoI : Government of India
13
GPDMP : Gram Panchayat Disaster Management Plan
IC : Incident Commander
ICDS : Integrated Child Development Services
ICMR : Indian Council of Medical Research
ICP : Incident Command Post
IGNOU : Indira Gandhi National Open University
IMD : India Meteorological Department
IRS : Incident Response System
IRT : Incident Response Team
ITBP : Indo-Tibetan Border Police
L&FS : Logistic and Finance Section
L&FSC : Logistic and Finance Section Chief
MHA : Ministry of Home Affairs
MFR : Medical First Response
NBC : Nuclear Biological Chemical
NCC : National Cadet Corps
NCMC : National Crisis Management Committee
NDMA : National Disaster Management Authority
NDRF : National Disaster Response Force
NEC : National Executive Committee
NGOs : Non-Governmental Organizations
NICD : National Institute for Communicable Diseases
NISA : National Industrial Security Academy
NO : Nodal Officer
NRHM : National Rural Health Mission
NSS : National Service Scheme
NYKS : Nehru Yuva Kendra Sangathan
NYC : National Yuva Cooperative
OSC : Operation Section Chief
OS : Operation Section
PDMP : Panchayat Disaster Management Plan
POL : Petroleum Oil and Lubricant
PRIs : Panchayati Raj Institutions
14
PS : Planning Section
PSC : Planning Section Chief
PSSMHS : Psycho-Social Support and Mental Health Services
PTSD : Post-Traumatic Stress Disorder
PWD : Public Works Department
QRMT : Quick Reaction Medical Teams
RC : Relief Camp
RCC : Reinforced Concrete Cement
RO : Response Officer
RDA : Rapid Damage Assessment
SA : Staging Area
SAR : Search and Rescue
SDMA : State Disaster Management Authority
SDO : Sub-Divisional Officer
SDRF : State Disaster Response Force
SEOC : State Emergency Operations Centre
SOS : Save Our Souls
TNA : Training Needs Analysis
TOT : Training of Trainers
ULB : Urban Local Body
VDMP : Village Disaster Management Plan
VIP : Ventilated Improved Pit
15
RESPONDING TO DISASTERS
“An ounce of practice is far better than tons of precepts”
(High Powered Committee Report, 2001)
The first priority in the response phase is to minimize loss of lives, in any disaster situation, byundertaking search and rescue, as well as evacuation efforts for the affected people. The firstresponder is the community and initial help comes only from them. This help needs to be convertedinto a methodical and trained response if disaster management has to be effective. Each disasterinvokes a different type of response. For instance, response in earthquake aftermath would bedifferent from that of the aftermath of cyclones or floods. If evacuation, search and rescue remainpertinent in each aftermath, their degree would vary from disaster to disaster, being minimum in caseof droughts. The fundamentals of disaster response rest on the principles of effective evacuation,search and rescue. We have to be very clear about their meaning, nature and scope.
1.1 EVACUATION
Evacuation is the organized withdrawal froman area for purposes of protecting the safetyof the area’s inhabitants.
Types of Evacuation
Preventive: This is done much beforethe disaster. On the first sight of warning,people are evacuated from thevulnerable sites to safer places.
Protective: Sometimes, evacuation isdone as a precautionary measure toguard against spread of diseases or animpending disaster. Aim is to protect community from catastrophic situations.
Rescue-oriented: This type of evacuation is focused on rescue operations; where people havealready been hit by a disaster and have to be taken/flown to safer places. Thus, this type ofevacuation falls under Search and Rescue (SAR).
Reconstructive: This process of evacuation involves resettlement of evacuees in sheltersreconstructed at safe locations; thereby, this process follows SAR.
Phases of Evacuation
Warning
Order to Move
Source: ndma.gov.org
16
Actual Evacuation
Evacuation Centre Management
Return to Former or New Place
DID YOU KNOW?
Plan for Actual Evacuation should:
Identify a safe place for evacuation
Ascertain shortest and safest route
Prepare alternative routes
Plan evacuation of livestock
Place road signs along evacuation routes
Prepare evacuation schedules and groupings
1.2 RELEVANCE OF SEARCH AND RESCUE
Graphic 1: Rescue Operation in Earthquake Aftermath
Search and Rescue or SAR, as it is called, is a technical activity rendered by a group of speciallytrained personnel, who rescue and attend to the casualties under adverse conditions, where life is
17
under threat. Search and rescue is organized in close cooperation with the community with a teamorientation. It is a procedure carried out immediately after a disaster to look for survivors and deadones.
DID YOU KNOW?
‘Search’ is a methodical process, undertaken with the help of community and experts tofind out the whereabouts of disaster victims.
The first life saving procedure is ‘Rescue’ of victims of disaster, without aggravating theexisting damage to their health and safety. Rescue operations often become haphazardand hazardous due to fear and panic that grips nearly every unprepared individualduring a sudden disaster event. Hence, through prior training, education, mock exercisesand awareness among the local population, more lives can be saved and disabilities orinjuries can be minimized. Rescue is a team effort that needs coordination and planningamongst the members for an optimum response operation. After the assessment, therescue team is generally in a position to adequately plan the rescue operation, which isbased on certain specifications such as manpower, equipment, and methods called therescue resources.
These are the most critical operations that are generally performed by local volunteers,voluntary organizations and emergency agencies.
1.2.1 Characterstics of SAR
The characteristics of SAR process are:
Rescuers or manpower include trainedpersonnel and volunteers.
Tools or equipment depend on theiravailability and needs of the situation. Forexample, storm or earthquake damage mayrequire tools for lifting debris, whereas flooddamage may require boats, ropes, and lifepreservers.
Time may be very limited for some victims. The first 24 hours after a disaster have been calledthe “Golden Day”. This is the period during which injured or trapped victims have an 80 percent chance of survival if rescued. Thus, the method adopted by rescuers is most critical. Theyhave to be very particular about certain factors, which aim to:
i) Rescue the survivors trapped under the debris, from the damaged buildings or froma cyclonic storm surge, flood, earthquake and fire.
ii) Provide First-Aid services to the trapped survivors and dispatch them for medicalcare and ‘triage’.
iii) Take quick and necessary actions for temporary support and protection to theendangered/collapsed buildings or structures.
Source: Disaster Relief Activities mod.go.jp
18
iv) Hand-over, recover and dispose-off the bodies of the deceased.
v) Train, demonstrate and raise awareness on how to use the local material for self-rescue amongst the community people; and
vi) Form Disaster Response Teams.
DID YOU KNOW?
To avoid the problems associated with spontaneous actions, rescue efforts should beplanned and practiced in advance. The decision to attempt a rescue should be based ontwo factors:
Risks involved
Overall goal of doing maximum good to the maximum number of people
1.2.2 Basics of Search and Rescue
Proper assessment saves time and improves better performance. Thus, it is essential to collectinformation on the extent of the damage, assess the approach to the damaged area, ascertain theparticulars of the damage, and determine if any further damage is likely to occur. The assessmentcan be done through two methods:
Sample Surveys
Interaction with community and concerned officials who can provide data
Search and Rescue is rendered by trained personnel, who follow the 3 key principles during thesurvey or assessment:
LOOK: See physically the incidents and make a thorough visual inspection.
LISTEN: Listen to all sources of information from the community, and government records etc.Assess the community data regarding people in danger.
FEEL: Feel convinced regarding the facts, the gravity of the dangers involved and one’s owncapacity to respond.
Source: Gujarat State Disaster/newshopper sulekha.com
19
Rescue may be necessary when the individuals are:
Trapped under the ruins of collapsed buildings.
Buried under mud or landslide.
Cut off due to floods or damage to communication routes.
DID YOU KNOW?The rescue parties must observe the following rules: Do not trample over ruins Do not remove rubble unless one is sure of not causing further collapse of building
or structure Use manual method of removing the rubble Use spades and pickaxes and be careful with the persons trapped underneath gas,
water pipes and high voltage electric cables
EXERCISE 1
LIST THE BASICS OF EVACUATION, SEARCH AND RESCUE
1.3 CONCEPTS TO REMEMBER
Buffer Stock Maintenance
Maintenance of buffer stocks means the advance stock piling at thevulnerable pockets in terms of personnel and material resources. Inthe planning stage, decision is taken on the buffering of relief materialsin the vulnerable pockets. Depending on the assessment of seasonalvulnerability, time is fixed to go for buffer stock. Pre-buffering ofrelief materials are kept in the identified place. This way of bufferinghelps the community to sustain the entire period of disaster, be itfloods or droughts.
Casualty Site Management
Casualty site management is the management of the casualtiesat the site of disasters. The basic aim is to prevent deaths,disabilities and diseases. It means immediate care andattention to the victims. The activities include the provisionof medical facilities, and transportation of the affected to thehealth camp. The principle to be adhered to is to rescuevictims without aggravating their existing injuries.
Clinical Casualty Management
It deals with the management of the casualties, once they arrive at the hospital emergency. Responsebegins with Communication, Transport, Hospital Alert, Expansion of the Casualty Area, Security,Hospital Triage, Clinical Care, Support Services – Medicines, Blood Bank, Light Arrangements,Engineering, Sterilization, Medical Records etc., Public Relations and Information System, Medico-legal Aspects, Discharge System, Documentation, and Disposal of Dead.
Source: Serve as a Buffer Stock/article.wn.com
Source: Mass Casualty at dipity.com
20
Corporate Social Responsibility (CSR)
CSR is also known as corporate responsibility, corporate conscience, corporate citizenship, responsiblebusiness, sustainable responsible business, or corporate social performance. It is a form of corporateself-regulation integrated into a business model. CSR functions as a built-in, self-regulating mechanism,whereby business monitors and ensures its support to law, ethical standards, and international norms.Corporate or business houses have to share the responsibility for the impact of its activities on theenvironment, consumers, employees, communities, stakeholders, and all other members of the publicsphere.
Counselling
It means providing of techniques and tips for coping with trauma and stress in a scientific andmethodical manner. A methodical counselling programme is always at the heart of handling post-trauma stress disorder; a common consequence of a disaster situation, most evident in children andwomen. A good counselling programme has to be generally based on empirical ratings, case studiesand clinical expertise. It must involve coping techniques based on description, classification anddiagnostic pattern of disaster related experiences.
Critical Incident Stress De-briefing
It is quite common for rescue workers to develop high levels of stress, due tohigh magnitude of the disaster and the enormity of needs, and also due tofeeling of powerlessness, helplessness and hopelessness in a disaster situation.The exposure to dead bodies can be very stressful. Therefore, it is necessarythat all workers be given an opportunity for emotional debriefing during theirwork and also at the end of their work. Debriefing helps in mental healthrecovery of the disaster workers. Debriefing involves going through, in detail,the sequence of events as experienced by the workers, and helping the workerto cope with stress more positively.
Epidemiological Surveillance
Epidemiological methods help in measuring and describing the causes and consequences of thenatural and man-made disasters. With the help of epidemiological methods, it is possible to gaugethe needs of population affected by disaster, relate the disbursal of resources to their needs, checkthe adverse effects, review the efficacy of various health programmes, and prepare better plans forthe future. The common tools recognized for this purpose are rates, ratios and proportions. Thesetools help in describing the distribution and magnitude of health and disease in the population. Theyhelp in:
1) Preparing strategies to lessen morbidity and mortality in future, by identifying the risk factors.
2) Planning for warning and evacuation system.
3) Developing guidelines, and education and training programmes for generating public awarenessand preparedness.
4) Anticipating the future health consequences of disasters, and
5) Collecting and analyzing data for taking short-term and long-term decisions.
Source: Management: AnIntegrated Approach toTherapy/bookadda.com
21
Graphic 2: Medical Surveillance at a Temporary Shelter
Epidemiological Procedures
For the distribution and the determinants of the disease, these procedures follow a scientific courseof action, or a standardized pattern, such as:1. Defining the population to be studied2. Defining the disease for study3. Describing the distribution of the disease (descriptive epidemiology) by the factors of – ‘Time,
Place and Person’4. Measuring the disease5. Formulating a hypothesis6. Testing the hypothesis to determine the cause of the disease (analytical epidemiology)
Post-Traumatic Stress Disorder (PTSD)
PTSD is most visible in disaster aftermath, and thus psycho-socialsupport interventions help individuals, families and groups to buildhuman capacities, restore social cohesion and infrastructure alongwith maintaining their independence, dignity and cultural integrity.The greater the trauma, the more severe is the psychological distressand social disability. The magnitude of psychological trauma andsubsequent experiences due to disasters like earthquakes andtsunamis may be severe for a majority of people. The magnitude oftrauma in lesser gravity disasters may be less severe. The response process by government and non-government organizations is directly related to the severity of the experience and is prolonged in thecase of higher magnitude disasters.
Psycho-Social Support and Mental Health Services (PSSMHS)
Apart from logistic and material help, the disaster-affected community requires PSSMHS. Psycho-Social support in the aftermath of disasters helps in reducing the level of actual and perceived stress,and in preventing adverse psychological and social consequences amongst disaster-affected community.
Source: Stress Management/wn.com
22
The PSSMHS shall be considered as a continuum of the interventions as an important componentof general health services in disaster situations. Psycho-social support will comprise the generalinterventions related to the larger issues of promoting or protecting psycho-social well-being throughrelief work, meeting essential needs, restoring social relationships, enhancing coping capacities; andpromoting harmony among survivors. The individual psycho-social responses/reactions are directlyrelated to the type of trauma and severity of the disaster.
DID YOU KNOW?
Experiences in recent major disasters in India indicate that there is an increasedawareness about the role of PSSMHS. There is a need to create psycho-social supportto develop protective barriers for the community to reduce the long-term effects of disasters.These protective resources are themselves vulnerable to the impact of disasters and theydecline or deteriorate in their capacities. In order to tap the community resources, threeimportant dimensions have been identified in the NDMA Guidelines: Human Capacity(Physical and Mental Health), Social Ecology (Social Relations), and Cultural Capacity(Community’s Values, Beliefs and Practices). These dimensions are complementary innature for the total well-being of people and the community.
EXERCISE 2
MAKE NOTES ON THE FOLLOWING:
CRITICAL INCIDENT STRESS DEBRIEFING
EPIDEMIOLOGICAL SURVEILLANCE
PSSMHS
PTSD
1.4 ROLE OF STAKEHOLDERS IN RESPONSE
1) NGOsThe NGOs perform a very important role in disaster response.As per the NDMA Guidelines on NGOs, they: Seek to strengthen local responses to prevent and address
issues of exploitation, trafficking and abuse. Raise community awareness to identify and protect vulnerable
children. Increase access to health, education, and shelter for working children. Increase skills training and economic alternatives for youth and families. Reintegrate and rehabilitate the destitute. Provide psycho-social support; community reintegration; counselling and access to basic services. Facilitate media campaigns on vulnerable issues. Pursue policies to increase public and private funding. Create awareness on women’s maternal health; and Provide avenues to promote equity and equality in access to services and benefits to dalits,
minorities, elderly, women and other disadvantaged sections of the society.
Source: Sansthan Society/Working Gurgaon.olx.in
23
2) Nehru Yuva Kendra Sangathan (NYKS)
NYKS was started in 1972 by the Ministry of Education (Now,Ministry of Human Resource Development) with the objectiveof providing the non-student rural youth with an opportunity tohelp them grow and involve themselves in the nation-building-activities. It is an autonomous organization of the Ministry ofYouth Affairs and Sports, Central Government, India. It hasundertaken the promotion of the National Yuva Co-operativeSociety as a way to harness and channel the productivitycapacity of young people. The National Yuva Cooperative(NYC) was developed to encourage economic ventures byyoung people reflecting the spirit of self-help, participation andco-operation. NYKS is fully involved with disaster response work in different states. In fact, theircooperation is being sought to operationalize disaster management programmes. It aims to: Promote and undertake employment oriented and income generating activities Finance viable projects proposed by members Provide services, raw materials, and assistance to young people Create and provide marketing networks and support Provide skill development training Promote and support community service activities Encourage self-help groups, entrepreneurship and micro-enterprises among youth Promote e-commerce; and Help in increasing agricultural production as well as agro-based and rural-based industries
3) Civil Defence (CD)
Civil Defence (CD) in India operates under the statutory authority of the CD Act 1968. The organizationwas raised in the year 1963.The aims of CD include saving of life, minimizing damage to property,maintaining continuity of production in industries and keeping the public morale high in the event ofhostile attack.
CD Act has been amended, involving CD in disaster management framework. CD is a communitybased voluntary organization and community will always be the first responder in the event of disaster.They also play a stellar role in the field of public awareness and community capacity building. Thepersonnel of this organization are trained in fire fighting, medical preparedness, search and rescue,communication and welfare, etc. All these services are related to disaster management and theGovernment of India has taken adequate steps to revamp CD setup in the country.
DID YOU KNOW?
A group of 5 NSS – Scouts and Guides – Project Officers from vulnerable districts inTamil Nadu have been trained at Anna Institute of Management (AIM), Chennai. ProjectOfficers of National Service Scheme (NSS) were identified as Master Trainers fromCuddalore District and were sensitized in disaster management. These 5 Master Trainersin-turn organized the same sensitization training programme for all the 54 NSSProgramme Officers in the district. Information regarding disaster management,importance of knowing the principles and practice of first-aid, especially during mass
Source: Nehru Yuva Kenra/gyws.org
24
calamities, and various steps to be taken while encountering natural disasters were dealtduring this training programme. As part of implementing Disaster Risk ManagementProgramme, disaster management has been included as a subject in the trainingcurriculum of NCC, NSS – Scouts and Guides, NYKS, Civil Defence, Sainik Boards etc.The Programme envisages to discuss the strategy to include disaster management as partof their training and link the volunteers at State, District, Block, Gram Panchayat andvillage levels for effective disaster management.
4) Police Personnel
Police personnel are generally the first to arrive at disaster site. Police have a well-developedcommunication system, wider-reach in the local area and familiarity with the local terrain. This makesthem better equipped to deal with disasters, primarily by maintaining security and law and order indisaster affected area. NDMA, SDMA and some other organisations are constantly conducting trainingprogrammes for the police personnel in Collapsed Structure Search and Rescue (CSSR), MedicalFirst Response (MFR), and flood rescue.
5) Fire Services
Fire at the time of disaster or a fire disaster itself can kill within a few seconds, cause severe injuries andpermanent disfigurement. That is why the role of the fire brigade personnel in disaster response is ofutmost importance. Fire personnel must possess knowledge and skills in use of advanced fire-fightingequipment such as Mist Technology Cylinder, worst case scenario, emergency preparedness, evacuationof injured and burn casualty triage. The NDMA holds Mock Drills and Table Top exercises on firesafety measures and effective fire services.
6) Panchayati Raj and Urban Local Body Representatives
The entire response process is based on certain specific tasks, in which Panchayati Raj and UrbanLocal Body Representatives perform a facilitative role. These are:
Gathering Information
a) Ascertaining the places/people likely to be affected by disasters.
b) Providing prior warning.
c) Finding out the degree of damage in the aftermath of disaster.
d) Gathering information on victims.
e) Assessing risks and vulnerability on thebasis of information gathered.
Search, Rescue and Evacuation
a) Preparing SAR Kits.
b) Chalking out rescue methods andresources.
c) Arranging transport facilities.
d) Activating the control room.
e) Arranging for emergencycommunication facility. Source: Rescue/tripwow.trip.advisor.com
25
f) Formulating disaster rescue and relief teams.
g) Prioritizing the use of Hand Grasps, Ropes, Ladders, Boats, Fire Extinguishers, Pulleys,Sacks, Sickles, Hammers and Knots.
Clearing the Debris
a) Organizing volunteers to clear the debris.
b) Assessing the loss of lives and infrastructure.
c) Following standard debris removal procedures.
Providing for Temporary Shelter
a) Recycling of rubble.
b) Erecting of interim houses for livestockand community.
c) Removing the garbage and pollutingmaterial from around the shelters.
Maintaining Buffer Stocks inWarehouses
a) Arranging for food, water and clothes.
b) Providing pesticides and lighting inwarehouses.
c) Providing for fire safety measures.
d) Inspecting the stores.
e) Cleaning and sanitizing warehouse area.
f) Examining the stocks.
g) Keeping the records.
Distributing Relief Material
a) Storing the relief material in cleanplaces and adequately maintainingwarehouses.
b) Making a plan for distribution.
c) Segregating dry rations from cooked(wet) rations and livestock food fromhuman food.
d) Segregating food items from non-food items.
e) Distributing standard relief material.
f) Preparing vulnerability indices for relief distribution, keeping in view the needs of children,aged, women and disabled.
Source: At the Earthquake Disaster/monsters and critics.com
Graphic 3: Distribution of Relief Itemsat a Disaster Affected Site
26
g) Preparing feeding schedules.
h) Allotting relief duties to volunteers.
Managing Logistics
a) Preparing a list of contact persons.
b) Making/chalking out alternate routes to the affected areas.
c) Documenting the cargo and relief material.
d) Determining costs and expenditure of response work.
e) Preparing time schedules.
f) Keeping a record of all relief work.
g) Appointing/recruiting volunteers, relief officers and other personnel.
h) Liaisoning with non-government relief agencies at the national and international levels.
Formulating Strategies to involve the Community
a) Disseminating relevant information on relief work tothe community through meetings, distribution ofpamphlets and leaflets, as well as use of communityradio.
b) Generating awareness on the need to ration reliefsupplies and hygiene maintenance.
c) Impressing upon the community to keep theirtemporary shelters as clean as possible, and takerecourse to immunization programmes.
d) Telling community to take cognizance of the advice given by the health workers anddoctors in the area.
e) Organizing regular meetings with community and community leaders.
f) Involving people in preparing relief schedules and allotting them specific relief duties.
g) Generating awareness on traditional wisdom to cope with crises.
Community Awareness Programmes being conducted by the NDRF
Source: Watershed Management TrainingCamp/flickr.com
27
7) National Disaster Response Force (NDRF)
Mock Exercises conducted by NDRF
The NDRF performs a major role in disaster response. Presently, this Force is constituted of tenbattalions. Each battalion is mandated to provide 18 self-contained specialist search and rescueteams of 45 personnel, each including engineers, technicians, electricians, dog squads and medical/paramedics. The total strength of each battalion is approximately 1,158. These NDRF battalions arelocated at 10 different locations in the country based on the vulnerability profile to cut down theresponse time for their deployment. During the preparedness period/in a threatening disaster situation,proactive deployment of these forces is carried out by the NDMA in consultation with state authorities.
AREA OF RESPONSIBILITY OF NDRF BATALLIONS
28
Regular and intensive training, familiarization with the area of responsibility, carrying out mock drillsand joint exercises with the various stakeholders form the key functional parametres of this Force. Four training centres have been mandated to be set up in Kolkata, Latur, Bhanu and Hyderabadby respective paramilitary forces to train personnel from NDRF battalions of respective forces. TheNDRF units are mandated to impart basic training to the State Disaster Response Force (SDRF)in their respective locations. Further, one national-level Disaster Management Academy will be setup at Nagpur to conduct Training of Trainers (TOT) programmes, and to meet other national andinternational commitments.
DID YOU KNOW?
When Cyclone Aila hit the coast of WestBengal on May 25, 2009 with a windspeed of 100-110 kms per hour and stormsurge with high waves (25 feet), NDRFpromptly responded to the call ofGovernment of West Bengal, and 14 teams(600 personnel) of NDRF from Kolkataand Mundali were rushed to the spot.Along with them 84 boats, life buoys, life-jackets, fishing nets, relief materials andmedicines were provided in the affectedareas of district 24 Pargana, North andSouth, for rescue and relief operations.During the operation NDRF personnelrescued around 2000 trapped persons including school children and evacuated them tosafer places. NDRF teams distributed about 50 truckloads of relief material to theaffected people. NDRF personnel distributed medicines to 30,000 cyclone victims andfood packets to 16,000 homeless victims of Sandesh Khali, Hingalganj, Hasanabad,Sagar Island, Namkhana, Pathar Pratima and Gosaba areas of these districts.
EXERCISE 3
WHO ARE THE IMPORTANT STAKEHOLDERS IN RESPONSE? BRIEFLY NOTEDOWN THEIR FUNCTIONS.
1.5 DISASTER RESPONSE MANAGEMENTResponse Management constitutes the functions of planning, execution and coordination. Planning inthe pre-disaster phase is the responsibility of various authorities created under the DM Act, the executionof the plans has to be carried out by the various line departments of the Government and the existingadministrative structure in the country. For proper planning and ensuring the smooth execution of plans,bodies like NDMA, National Executive Committee (NEC), SDMA and State Executive Committee(SEC) have been created at the National and State Level. At the District level, planning, executionand coordination of all the activities related to disaster management have been vested in the DDMAheaded by District Magistrate. The Chairperson of the Zila Parishad has, however, also been placed asthe Co-Chairperson of the DDMA to elicit community participation in Disaster Management. Theresponsibility for disaster response clearly lies with the District Magistrate being the head of the Districtadministration.
NDRF personnel shifting school children duringCyclone Aila
29
For the purpose of better understanding, response can be divided into 2 categories:
1) Disaster Response Management for Response Activities
2) Disaster Response for Specific Disasters
To comprehend disaster response management better, let us try to understand the followingactivities:
I. Incident Response System
II. Damage Assessment
III. Relief Distribution
IV. Shelter Management
V. Health Planning
VI. Water Purification
VII. Sanitation Options
VIII.Warehouse Maintenance
IX. Relief to Livestock
X. Stress Management
XI. Logistics Management
1.5.1 INCIDENT RESPONSE SYSTEM
The NDMA guidelines on Incident Response System (IRS) recommends that there will be IncidentResponse Teams (IRTs) at the State, District, Sub-Division, and Block levels comprising players likeResponsible Officer (RO), Incident Commander (IC), Operation Section Chief (OSC), Planning SectionChief (PSC) and Logistic and Finance Section Chief (L&FSC). The guidelines have given a suggestivelist of officers who can perform the concerned activities. The idea is to pre-designate officers to performdifferent functions and to train them on their responsibilities so that whenever there is a disaster, everyoneknows who has to perform what duty and how will it be done. This will remove adhocism in responsesand make the response process smooth and effective. The Chief Secretary (CS) and District Magistratehave been designated as Responsible Officer (RO) and overall in-charge of Disaster Response in theirjurisdiction.
Organizational Structure for Disaster Response
a. Coordinating Arrangements at the National Level
The DM Act, 2005 has created a body called the National Executive Committee or NEC under theHome Secretary for coordination of response at the national level. It consists of the Home Secretary asthe ex-offcio chairman and secretaries of agriculture, atomic energy, defence, drinking water supply,environment and forests, finance (expenditure), health, power, rural development, water resources andthe Chief of the Integrated Defence Staff on the Chiefs of Staff Committee as members.
Source: agricrop.nic.in
30
Prior to the enactment of the DM Act, 2005, the GoI had already created a National Crisis ManagementCommittee (NCMC) headed by the Cabinet Secretary and all the secretaries as members.
DID YOU KNOW ?
By convention, the NCMC gets involved in very serious crisis and disasters. The NEChas to statutorily get involved in all disasters. The chairperson of the NCMC / NECwill function as Chief Coordinator for the management of disasters at the Nationallevel. The constitution of the NCMC / NEC has been designed with the purpose tocover all lead and support functions.
b. Coordination of Response at the State Level
In any disaster response, the initial efforts would always be taken by the District Administration. However,when Districts are overwhelmed in any situation, the support necessarily has to come from the Stateand National levels. In case an incident is beyond the control of a District administration or a number ofDistricts are affected, the RO of the State will consider the setting up of an Area Command anddesignate an Area Commander (AC). He may consider the Divisional Commissioner to act as AC ormay deploy appropriate/suitable officer irrespective of seniority. The RO may also deploy somesupporting staff to assist him. The hierarchical representation of RO with State EOC, HeadquartersIRT and its lower level of IRTs at District levels are shown in Fig. 1.
Fig.1 –Disaster response structure at state level - Hierarchical representation of RO with StateEOC, Headquarters IRT and its lower level of IRTs at District levels (Source: National DisasterManagement Guidelines on Incident Response System)
DID YOU KNOW ?
The State Government / CS will designate various officers of line departments for thecorresponding IRS positions to perform duties as enumerated in the NDMA – IRSGuidelines. The RO may delegate some of his functions to the Secretary, DM of theState, for the day-to-day supervision and management of the incident / disaster response.He will however remain fully briefed by EOC and IC and be aware of all developmentsand progress of response activities at all times.
31
c. Coordination of Response at the District Level
The District Magistrate/DC is the head of the District administrative set up and chairperson of theDDMA as per the DM Act, 2005. He has been designated as the RO in the District.
The complete IRS organizational structure at District level is depicted in Fig. 2. The structure may beactivated as and when required. For monitoring and support of incident response, the RO will involveall required Emergency Support Function (ESF) and headquarter IRT to support the on – scene IC.Under the RO, there will be IRT at District, Subdivision and Block level, who will work in closecoordination with EOC and report to RO.
Fig: - 2 – The disaster response structure at District level - Hierarchical representation of ROwith District EOC, District Headquarters IRT and its lower level of IRTs (Source: NationalDisaster Management Guidelines on Incident Response System).
On receipt of information regarding the impending disaster, the EOC will inform the RO, who in turnwill activate the required IRT and mobilize resources. The scale of their deployment will depend on themagnitude of the incident.
At times, the information about an incident may be received only on its occurrence without any warning.In such cases, the local IRT (District, Sub-Division, Tehsil / Block) as the case may be, will respondand inform the higher authority, and if required seek reinforcement and guidance.
DID YOU KNOW?
There could even be such situations when the District officials may have no expertisein operationalizing the response, like for CBRN disasters. For such disaster situationsthe OSC should be identified in advance, so that he could be easily mobilized to leadthe OS as Section Chief. NDMA has already issued detailed guidelines on managementof such response vide National Disaster Management Guidelines on the managementof Nuclear and Radiological emergencies which should be followed. Other SectionChiefs will be selected according to the suitability and capability of the officer.
d. Emergency Operations Centre (EOC)
EOC is an off-site facility, which will be functioning from the State / District headquarters, and which isactually an augmented control room having communication facilities and space to accommodate thevarious officers of ESFs.
32
DID YOU KNOW?
ESF is a combination of various line departments of Government and other agencieswhose services are generally required during disaster / incident response. These officialswill be able to take decisions on the spot under the guidance of RO and will be able toassist the RO in achieving the incident objectives. RO will also ensure that the linedepartments do not issue parallel and contradictory instructions to their field levelofficers.
Facilities Required for Responding to Disaster
For effective response, the following facilities may be required to be established depending on theneeds of the incidents / disaster situation.
a. Incident Command Post (ICP)
The ICP is the location at which the primary command functions are performed. The IC will be locatedat the ICP. There will only be one ICP for each incident / disaster. This also applies to situations withmulti-agencies or multi-jurisdictional incidents operating under a single or unified command.
DID YOU KNOW ?
The ICP can be located with other incident facilities like Incident Base. For the initiallocation of the ICP, the nature of the incident, whether it is growing or moving andwhether the ICP location will be suitable in size and also safe for the expected durationof the incident should all be taken into consideration. Larger and more complexincidents will require larger ICP.
The ICP may also be located at Headquarters of various levels of administration ofState (State, District, Sub-Division, Tehsil / Block). In case of total destruction or reasonsof non-availability of any other space, the ICP may be located in a vehicle, trailer ortent with effective communication system.
b. Staging Area (SA)
The Staging Area (SA) is an area where resources are collected and kept ready for deployment forfield operations. These may include things like food, vehicles and other materials and equipment. TheSA will be established at a suitable area near the affected site for immediate, effective and quickdeployment of resources. The resources should be so arranged that it is easy to move any requiredresources whenever needed.
DID YOU KNOW ?
More than one SAs may be established if required. School and college playgrounds,community halls, cyclone shelters, Panchayat Offices, stadia etc., may be used as SA.In case of total destruction of buildings in an incident, tents or temporary shelters maybe used for such purposes.
c. Incident Base
All primary services and support activities for the incident are usually located and performed at the
33
Incident base. The Logistic and Finance Section will also be preferably located here. Normally base isthe location where all uncommitted / out-of-service equipment and personnel to support operations arelocated.
DID YOU KNOW ?
There will be only one Base established for each incident and normally it will not berelocated. In locations where major incidents are known to occur frequently, it isadvisable to pre-designate possible base locations and plan their layouts in advance.
d. Camps
Camps are temporary locations within the general incident area, which are equipped and staffed toprovide rest, food, drinking water and sanitary services to the responders. These are separate facilitieswhich may not be located at the Incident Base. Camps may be in place for several days and they mayalso be moved depending upon incident needs; while the Incident Base remains at the same location.
e. Relief Camp
All support services to the affected communities are usually provided in the Relief Camps (RCs). Theywill be established as per demands of the situation.
DID YOU KNOW ?
The resources required for the establishment of RC will be provided by the LS and itwill be maintained and managed by the Branch or Division of the OS deployed for thepurpose. It may be established at the existing buildings like Schools, Community Halls,Cyclone Shelters, etc., or tents may also be used for such purposes. While establishingthe RC, priority will be given for cleanliness of the RC.
f. Helibase / Helipad
A Helibase is the main location for parking, fueling and carrying out the maintenance of the Helicopters.It may also be used for loading and unloading of relief materials. Helipads are temporary locations in theincident area where Helicopters can safely land and take off. The Helibase is often located at theAirport or at another location decided by the District administration in consultation and approval by theagency operating the Helicopter. Helipads are established and used for operational purpose only likeloading and unloading of personnel and equipment, and other relief materials etc.
Community Participation in Disaster Response
A number of community based organizations like PRIs, NGOs, Self-Help Groups (SHGs), YouthOrganisations, Volunteers of NYK, Civil Defence (CD) and Home Guard, etc., and personnel ofdifferent projects funded by Government of India like National Rural Health Mission (NRHM), IntegratedChild Development Services (ICDS), etc., normally volunteer their services in the aftermath of anydisaster.
In the IRS structure, these organizations and volunteers are placed in the OS where the skills andservices of the community may be utilized systematically in the form of Single Resource, Strike Teamand Task Force. The incharge of the respective Incident Response Teams (IRTs) should identify suchcommunity resources and they should be encouraged and trained to be a part of the IRT.
34
EXERCISE 4
NOTE DOWN THE ORGANIZATIONAL STRUCTURES FOR DISASTERRESPONSE AT THE NATIONAL, STATE AND DISTRICT LEVELS ANDDIFFERENT FACILITIES REQUIRED FOR EFFECTIVE DISASTERRESPONSE.
1.5.2 DAMAGE ASSESSMENT
Immediately after the disaster, there is an urgent needof damage assessment. The objectives are to knowthe impact of disaster, mobilize resources for betterrescue and relief, garner detailed information on theextent of damage and its severity; and also developstrategies for reconstruction and restoration facilities.It entails collection and analysis of informationpertinent to disasters and disaster response. Damageis assessed with regard to loss of infrastructure suchas buildings, standing crops, agricultural area,livestock, forest cover and vital installations.
Thus, damage assessment is the process of determining the:
Impact, which a hazard has had on the affected area.
Needs and priorities for immediate emergency measures to save and sustain the lives of survivors.
Resources available for use.
Possibilities for facilitating and expediting longer-term recovery and development.
Damage assessment is done through:
Data Collection
Information Assimilation and Dissemination
It is useful to distinguish between the terms “data” and “information”, as data are simply units ofinformation including perceptions, numbers, observations, facts or figures. Data sometimes conflictwith one another, for example, when two individuals report widely differing perceptions of the sameevent. Information, on the other hand, is “useful data”. Data become information when it can betranslated into meaningful, relevant and understandable language, specially about particular people at aparticular time and place, for a particular purpose. (Remember what is information to one personmay simply be useless data to another).
Data collection, which is an on-going activity, depends on:i) Expertise and advice of survey specialistsii) Use of sample surveysiii) Cultural attitudesiv) Personal preferences
Based on detailed damage assessment, the government should finalize estimation of funds required and
Source: www.ndmaindia.nic
35
fund generation mechanisms. The state government should explore sources of funding required fordisaster recovery from central government through National Disaster Response Fund and State DisasterResponse Fund, and necessary steps should be taken to represent the cause of the state government tothe central government. After the normalcy returns, the damage assessment team carries out a detailedstudy of the damaged houses, livelihood assets and crops etc. Usually the Panchayat Extension Officeris made responsible for carrying out such assessment assisted by the damage assessment teams.
Assessments must be carefully planned and managed. A sequence of activities is involved and each ofthem must be planned in detail. These activities typically constitute the assessment process, which aimsto: Identify information needs and sources of reliable data Collect data Analyze and interpret data Report conclusions, forecast and provide alternatives to planners and decision-makers
DID YOU KNOW?
All data collection strategies are subject to problems of bias. Bias is the degree to whichthe conclusion drawn from data observation deviates from the true situation. Sometimesbias emanates from asking the wrong question, sometimes from asking the wrong peopleand, sometimes, from the “biased” perception of the observer or reporter of data.
Source: Damage Assessment/oldpatriot.blogspot.com
36
Damage Assessment is usually conducted in two phases viz.Rapid Damage Assessment and Detailed Damage Assessment
RAPID DAMAGE ASSESSMENT DETAILED DAMAGE ASSESSMENT Rapid Damage Assessment (RDA) emphasizes on a rapid appraisal of the situation and extent of damage to provide resources for effective relief and rescue. RDA is to be conducted by the Planning Section of the Incident Response Team (IRT), responsible for response management. The Planning Section (PS) of the IRT may be provided support of the local communities. The list of the stakeholders of PS of the IRT is given in the Annexure - XI of the IRS guidelines of NDMA. The RDA report is mandated to be submitted to the Incident Commander (IC) for effective planning of response and simultaneously submitted to the District Collector by the IC.
Detailed Damage Assessment is supposed to be done at the district level during the recovery stage involving skilled personnel from various line departments. The aim of this assessment is to estimate the economical and financial aspects of damage, the detailed building damage, agricultural damage, and property damage. It also aims at retrofitting or strengthening of houses, roads, bridges, hospitals, schools, warehouses, railway tracks and other infrastructure. Any State Development Authority team must be headed by the District Collector and should comprise the District Relief Officer, Executive Engineer PWD, Chief Medical Officer of the affected district, members of prominent NGOs working in the district and any other expert at the discretion of the District Collector. The team should also have two external observers from the State Disaster Management Authority and District Disaster Management Authority (DDMA) respectively. The other issues of disaster response including relief (entitlement, disbursal and monitoring), recovery and rehabilitation need to be comprehensively addressed in the Calamity Relief Fund Norms (Drought, Flood and Earthquake) issued by the Disaster Management / Relief Department.
1.5.3 RELIEF DISTRIBUTION
As we all know, relief distribution is a strategicexercise conducted by the Operations Section ofthe IRT. It needs to be seen that relief material iseffectively; fairly and justly distributed to all theneedy ones. We must also keep in view that thisexercise also has to be a sensitive one. Careneeds to be taken to pay extra focus on the Source: Disaster Relief/allhealthcare.monster.com
37
vulnerable i.e., the children, aged, destitute and lactating women, as well as the physically andmentally disadvantaged. There is a need to undertake the following activities: Respect Culture and Custom of the communities and countries where relief distribution takes
place. Build Disaster Response on Local Capacities by employing local staff, purchasing local
materials and trading with local companies. Where possible, involve local communities inplanning and implementation, and co-operate with local government structures.
Involve Programme Beneficiaries in the Management of Relief Aid through effectiverelief and lasting rehabilitation. It can be best achieved where the target beneficiaries areinvolved in the design, management and implementation of the relief programme.
Distribute Relief with an aim to reduce Vulnerabilities to a Future Disaster throughsustainable lifestyles. Attention should be paid to environmental concerns in the design andmanagement of relief programmes.
Hold Yourselves Accountable to the Community and the Donor by acting as an institutionallink in the partnership between those who wish to assist and those who need assistance duringdisasters. Recognize the obligation to ensure appropriate monitoring of aid distribution andcarry out regular assessment of the impact of disaster assistance.
Recognize Victims as Dignified Humans and not Mere Objects in Information, Publicityand Advertising Activities through interaction with the media. Try and project an image ofthe disaster situation; where the capacities and aspirations of disaster victims are also highlighted,and not just their vulnerabilities and fears.
The Process of Distributing Relief Material
Relief is distributed in many forms,in camps, through air drops and alsothrough the communication systemsin place. It is expected that thematerials distributed shall minimizesuffering of the affected population.It is the primary responsibility of thestate to take care of its citizenssuffering due to natural or man-madedisaster; hence, it is responsible fordistribution of relief at the time ofemergencies. Other than OperationsSection of the IRT; relief operationis also done by internationalagencies, NGOs, corporate bodies,civil society organizations and localcommunities. Therefore, to control or stop duplication of effort, the IC and the Operation SectionChief (OSC) of the IRT should access the external relief support provided by agencies other thangovernment, and support them to distribute it to the affected communities.
You, as government officials and members of PRIs and ULBs, are responsible for implementationof different programmes of the government. It is expected of you to take the lead in distribution of
Source: Food Relief Camp/Google Images
38
relief material at the time of emergencies. Normally, the situation emerges during relief distributionwhen victims are dissatisfied; one of the major reasons is scarcity of material in the disaster affectedareas. Many people get hurt and many die in the rush for receiving the relief material. In order toensure systematic relief distribution, following are some of the major points that need to be takeninto account:
The Humanitarian Imperative Comes First
This aspect covers the caste/creed/race/religion facet of relief aid as per laid down internationalstandards, which focus on:
Aid is for the Needy
In continuation with this facet it needs to be seen that:
The right to receive humanitarian assistance, and to offer it, is a fundamental humanitarianprinciple which should be enjoyed by all citizens of all countries.
Relief is given regardless of the race, creed or nationality of the recipients.
Wherever possible, the provision of relief aid should be based upon a thorough assessment ofthe needs of the disaster victims and the local capacities already in place to meet those needs.
Within the entirety of relief programmes, it is pertinent to reflect considerations of proportionality.
In implementing this approach, the crucial role played by women in disaster prone communitiesshould be recognized.
Every operation has to have a process to be completed smoothly; same is in case of relief distribution.Over here, planning is very essential. Every relief operation should take care of the three types offeeding:
General Feeding: Basic food/meals are provided for all members of all households.
Supplementary Feeding: Additional food is given to select nutritionally vulnerable individualsto compensate for specific deficiencies.
Therapeutic Feeding: This type of feeding is usually undertaken for nutritional rehabilitation.Special intensive feeding is provided under close medical supervision for severely malnourishedpersons, usually children.
Basic Principles of Distribution
Following are some of the steps to be taken toensure smooth distribution of relief items:
Coverage: Planning starts with the assessmentof the actual number of people/family to begiven the relief items, to avoid surplus orinadequate relief.
Quality: There has to be a proper checkingmechanism in place to ensure quality. Theexpiry date of food items and medicines must be checked.
Source: Rescue Workers in Flood Hit/boston.com
39
Planning Site for Storage: Accessibility, availability, safety and law and order situation aroundwarehouse, transport requirements, population to be covered; all need to be assessed.
Planning for Relief Distribution at Site: Deciding on a safe site for distribution is veryessential. Proper barricading of the site is equally important and that helps in controlling thecrowd.
Use of Cards/ Chits among the Affected Families for Collection of Relief Items: Thisis one of the ways to regularize distribution system. The card is distributed in advance to thefamilies who will be receiving the items from a location, and the timing of distribution is sharedwith them. The existing ration cards can be used for identification of the family, if they have notbeen lost.
Information to the Public: The affected families need to be informed well in advance so thatthey can collect the relief materials from the distribution point.
Documentation: Proper documentation will be helpful in avoiding the future auditing problem.
DID YOU KNOW?
Relief distribution is an art as well as science. Science of relief distribution followscertain parameters of logistics management (who gets what and where), whereas the artof relief distribution follows the parameters of humanity (who gets more and most).
EXERCISE 5
WRITE SHORT NOTES ON:
DAMAGE ASSESSMENT
DISTRIBUTION OF RELIEF
HUMANITARIAN IMPERATIVE
1.5.4 SHELTER MANAGEMENT
The impact of a disaster such as an earthquakeor a cyclone can result in the destruction of ordamage to existing housing, rendering ituninhabitable. Also in case of floods or warningof hurricane, situation may force people to leavetheir existing housing and seek alternative shelterelsewhere. Thus, shelter management is integralto relief.
It is increasingly being recognized that the meetingof shelter needs in the aftermath of disaster shouldbe seen as a process of ‘sheltering’.
Shelter and settlement responses should support individual household or community copingstrategies, and promote self-sufficiency and self-management where possible.
Source: Relief Shelters/Google Images
40
Opportunities for affected households or communities to maintain or establish livelihood-supportactivities should be maximized.
Shelter assistance should be provided to individual households for the repair or construction ofdwellings or the settlement of displaced households within existing accommodation orcommunities.
Collective shelter should be provided in suitable large public buildings or structures, such aswarehouses, halls or barracks, or in temporary planned or self-settled camps, or whereverindividual shelter is not possible.
Special attention should be paid to the safety and privacy needs of mothers with young children,lactating mothers and young girls while choosing for shelter sites and planning for shelter layout.Shelters have to be carefully erected keeping the needs of the vulnerable women, children andelderly in mind.
Nature and scale of the disaster and its impact on existing housing, climate and local environment,risks to security and personal safety, political situation, rural or urban context, and ability of theaffected households or community to meet their own shelter needs should all be taken into viewwhile deciding on shelter response.
Consideration should also be given to the needs of those ‘secondarily’ affected by the disaster(those not directly affected by a disaster), such as host families accommodating displacedhouseholds, or communities whose natural resources such as water, fodder or land are usedtemporarily to support those displaced.
Existing shelter and settlement solutions should be prioritized. It should be seen whether affectedhouseholds remain in, or return to the original site of their dwellings, or are hosted by otherfamilies.
Those that cannot return to the original site or be put up by host families should be accommodatedin mass shelters or in temporary-planned or self-settled camps.
Shelter assistance should comprise the provision of a limited quantity of materials such as plasticsheeting, fixings or tools to enable affected households to construct basic shelter, or the deliveryof tents in cases where immediate shelter solutions are required.
Any material assistance should be complemented by the promotion of improved design, settlementplanning, and building techniques drawing upon local knowledge.
Shelter Material
41
DID YOU KNOW?
It is unknown as to when the shelters would be needed. Therefore, it is important thatagencies are able to stockpile shelters in advance of a response. This is based on thefollowing factors:
Marking: Performance on the basis of size and manufacture.
Integrity: Compatibility to climatic conditions.
Durability: Use of locally available and long-lasting shelter material.
Space: Useable Area or Space within the shelter.
Ventilation: Adequate ventilation should be provided within the shelter design tomaintain a healthy internal environment and to limit the risk of transmission ofinfectious diseases.
Fire Safety: Safe shelter, appropriate heat and light emitting tents, and publicinformation campaigns are all of critical importance to mitigate injury and damageresulting from fire.
Vector Control: The patterns of shelter used by beneficiaries should inform the shelterdesign and subsequent vector control measures.
Environmental Toxicity: Shelters shouldbe continuously modified, passed on,and ultimately disposed of.
Privacy: Existing local practices in theuse of covered living area.
Adaptability and Repairability:Affected families will need to seekalternative means of increasing theextent or quality of the enclosed spaceprovided.
Law and Order in the Shelter/ Camps:It is essential to ensure some sort ofmonitoring mechanism to ensure conflict resolution and maintain peace in the shelters.In the absence of regular police, this can be done with the help of local volunteers.
Planning for Water Sanitation as part of Shelter Projects: It is very essential toensure proper and adequate water, sanitation and hygiene facilities in the shelters.
Record of the People living in the Shelters: There has to be a register book availablewith the in-charge of the camp or shelter to enroll each and every person who comesinto shelter.
Lighting at Night: Alternative lighting arrangement for the night time will be helpfulfor the camp dwellers, and at the same time will maintain law and order in thecamps.
Source: Disaster Recovery Service/rotarybiharrelief.org
42
EXERCISE 6
WHAT ARE THE FACTORS YOU WOULD LIKE TO OBSERVE WHILE SELECTINGA SHELTER SITE FOR DISASTER VICTIMS?
1.5.5 HEALTH PLANNING
Affected community is most prone to health problemssuch as Cholera, Diarrohea and spread of diseases,which assume epidemic proportions. This is the reasonwhy health planning is the most crucial component ofrelief and community participation. We must thus focuson community health management. Response becomeseffective with community involvement. Communityparticipation can be ensured by:
Identifying leaders with capabilities to undertakethe assignedtasks.
Encouraging the community and its leaders to comeforward through consultations and dialogues.
Having regular feedback meetings and an open book approach to demonstrate transparency.
Involving community in decision making at local levels.
Maintaining security and law and order.
Undertaking emergency evacuations.
Containing panic behaviour and maintaining orderly movement towards shelters.
Encouraging self-help and contributing labour, such as carrying patients to the ambulance,distribution of medicines, giving first aid etc.
Sustaining standards in sanitation and waste disposal.
Prevention of Health Risk would entail:
1. Immunization
2. Hygiene and Sanitation
3. Vector Control
4. Media Campaigns
5. Mitigation Plan
6. Training and Exercises
Source: Dirty Lane/Google Images
Source: In India get Health Care/the healthies.com
43
DID YOU KNOW?
Triage is a system used by medical or emergency personnel to ration limited medicalresources when the number of injured needing care exceeds the resources available toperform care, so as to treat the maximum number of patients possible. The purpose ofTriage is to assess the severity of infirmity along with chances of survival, accord anappropriate category and ensure correct attention quickly thereafter. When a largenumber of injured people are brought at the same time to the health centres, triagebecomes necessary. It is done by sorting out patients into those who need more attentionand those who need less attention or medical aid.
Class I – Severely injured casualties who can be saved with stabilization,transportation and treatment
Class II – Urgent, but those who can be transported after sometime
Class III – Walking wounded
Class IV – Dead or very severely injured
Tagging of the victims is undertaken based on the ‘triaging’ of the victims. Standardformats/colour codes are most often used for tagging. Common tags used for the victimsof disaster are:
Red – Priority One/Class One
Yellow – Priority Two/Class Two
Green – Priority Three/Class Three
Black – Dead/Moribund Cases/Class Four
DID YOU KNOW?
General Principles of First-Aid focus on:
Rescue and removal of the casualty in theshortest possible time, without aggravatingexisting health situation.
Immediate arrest of haemorrhage.
Restoration of respiration and circulation.
Prevention of impending shock and treatmentof shock if the victim is already in such astate.
Immobilization of simple and compoundfractures and dislocations.
Alleviation of pain by simple procedures and medication.
Source: First Aid Care/sxiore.com
44
Assurance to the victim of getting well quickly, and morale boosting.
Ensuring free supply of natural air; avoiding fans or exhaust for this purpose.
Clearing victim’s throat using fingers; removing dentures, if present.
Loosening of collar, and belt; removing of shoes and socks.
Using blankets to keep the victim warm.
1.5.6 WATER PURIFICATION
Water purification is an integral part of health planning during disaster relief. The basic purpose ofwater treatment is to protect the consumer/user from pathogens and impurities in water that may beoffensive or injurious to human health.
The water treatment systems for urban water supply schemes mainly involve the following stages:
1) Pre-Treatment
2) Sedimentation aided with Coagulation
3) Filtration, and
4) Disinfection
Source: Water Purification/thewatertreatments.com
45
1) Pre-Treatment of Water
It consists of storage or disinfection of river waters. Most of the suspended impurities have to settledown under gravity during the storage process. Pre-disinfection is usually done, when water isabstracted and treated without storage. This process destroys or reduces harmful faecal bacteriaand pathogens. Another important objective of pre-treatment or pre-disinfection is to reduce theamount of ammonia in water.
2) Sedimentation aided with Coagulation
The very fine suspended mud particles and colloidal matter present in water cannot settle downduring the pre-treatment impoundment of water in the sedimentation tanks. These particles caneasily be removed through increasing their size by changing them into “flocculated” particles. Forthis purpose certain chemical compounds like aluminum sulphate, ferric or ferrous sulphate and ferricchloride should be used.
3) Filtration
To remove or to reduce the remaining impurities still further and to enhance quality, the water isfiltered through beds of fine granular materials such as sand.
Source: Water Purification Flow Chart/perfectlife.com.hk
46
4) Disinfection
It is the process in which microbiological organisms are destroyed by physical or chemical action,and is commonly used as the final process in the water treatment. A small amount of the activedisinfectant should normally remain in distributedwater, to destroy subsequent contamination duringdistribution. Chlorine is the most common and mosteffective disinfectant. Other ways to disinfect waterare through treatment with:
Boiling
Lime
Ozone Gas
Iodine and Bromine
Ultraviolet Rays
Potassium Permanganate
DID YOU KNOW?
In disaster settings, the Emergency Medical Response (EMR) Division of DirectorateGeneral of Health Services (DGHS) is the focal point for implementing the EmergencySupport Function (ESF) plan that includes identification of nodal officers forcoordination, crisis management and quick response at headquarters and field levels.
For investigating outbreaks, National Institute for Communicable Diseases (NICD) isthe nodal agency. NICD/ICMR institutions provide teaching/training, research andlaboratory support. Most of the states have a regional office for health and familywelfare, and the regional director liaisons with the state government for effectivemanagement of the health consequences of disasters.
1.5.7 SANITATION OPTIONS
It is not easy to go for hygienic sanitation options in temporaryshelters. The resources and space are limited and good healthytechniques are tough to explore. However, certain viableoptions need to be made available. The options alreadyavailable are:
i) Open Defecation: People generally defecate over theplaces like rubbish heaps, manure heaps, and in the fields.This encourages flies, which may spread various diseases.Other type of infections also develop due to this practice. This is the most undesirable meansand must be avoided in the vicinity of human shelters.
(NOT TO BE USED AT ALL)
Source: Rural water tap India/treehugger.com
Source: India’s Silent Revolution/unicef.org
47
ii) Shallow Pits: This method comprises the digging of a shallow hole and covering the faeceswith soil. Pits dug once can be utilized for longer duration also. The excavated soil is heapedbeside the pit and some portion of it is put over the faeces after each use. Decomposition offaeces is quite rapid. The method costs nothing and is a good source of fertilizer to the farmers.However, this method creates a lot of fly nuisance and leads to spread of hookworm larvaeover the ground, if the pit is not dug unto one-metre depth.
(TO BE USED IF NO OTHER VIABLE OPTION IS AVAILABLE)
iii) Simple Pit Latrines: This type of latrine consists of a slab over a pit, which may be 2m ormore in depth. The lavatory has a squatting hole or a seat so that excreta fall down in the pitdirectly. The slab is firmly supported on all sides and raised over the ground to prevent thewater entry into the pit. This is a low cost technique, which requires no water. This type oflatrine gives a bad smell and may create fly and mosquito nuisance, if the tight fitting cover overthe squatting hole is not provided. When the pit is full upto half, a new pit has to be dug.
(TO BE USED MORE)
iv) Ventilated Improved Pit Latrines: The VentilatedImproved Pit (VIP) latrines are the improved versionof simple pit latrines, where the pit is provided with avent pipe extending above the latrine roof. The insideof the super structure is kept dark. The vent pipe isprovided with a netting to prevent flies and mosquitoes.This type of sanitation system is hygienic, low costmethod, which requires no water.
(TO BE USED IN TEMPORARY SHELTERS)
v) Pour Flush Latrine: Pour flush latrines have a waterseal beneath the squatting plate. The water seal iscleared of faeces by pouring sufficient quantities ofwater to wash the solids into the pit. The water sealprevents the flies, mosquitoes and smell reaching thelatrine from the pit. The pit is usually connected withthe latrine through a short length pipe. It is convenientto have two pits instead of one pit. Both of these pitscan be utilized alternatively. This type of latrine is a low cost sanitation measure, which alsocontrols the odour, flies and mosquitoes. This type of latrine can be upgraded by connectingit to sewer, when sewerage becomes available. The only drawback is that this system requireswater in large quantity.
(TO BE USED WHERE WATER IS IN ABUNDANCE)
Source: Improved Pit Latrine/openideo.com
48
EXERCISE 7
1. WRITE SHORT NOTES ON:
PRINCIPLES OF FIRST-AID
SANITATION OPTIONS
WATER PURIFICATION
2. WHAT KIND OF METHODS DO YOU COMMONLY USE TO TREAT DRINKINGWATER?
1.5.8 WAREHOUSE MAINTENANCE
There is no point having warehouses, if these are ill-maintained and cannot store food items properly.The factors that need to be kept in mind for maintenance of warehouses are:
Site Survey
Prior to arrival of relief / emergency supplies, communities must also submit the list of identifiedsites for each warehouse within their respective villages. The site survey contains information criticalto delivery by providing a brief description of the delivery conditions for a warehouse/storage place,such as whether there is a loading facility or there is an access to a road network. Any communitythat has not submitted the form runs the risk of having to off-load assets at a facility other than thedesignated site.
Identification of Warehouse Area
Communities should identify a warehouse(a proper storage site, a school, acommunity centre) in advance and provideLocal / District Administration with thenecessary information in order to receiverequisite relief / emergency supplies.Communities who have not identified awarehouse may do so by requesting theLocal / District Administration well inadvance, to ensure delivery in response toan incident.
Cities and towns may also select“secondary” storage place – the same formcould be used, and the location would be flagged as “secondary” in the Local / District Administrationdatabase. Prior to delivery of warehouse assets, the respective municipality would notify its regionaloffice of the use on the secondary storage place, if the primary warehouse is not available.
Source: To Deliver Disaster Relief/disasters.worldconcern.org
49
Maintenance of Warehouses
The organization of a warehouse should take intoaccount the necessary guidelines for qualitymaintenance, and safeguarding items. Supplies have tobe protected in some place until they can be distributedor utilized. However, it is not a matter of just finding aplace to keep items. An organized system should alsobe utilized, which allows one to know the type, amountand location of the existing supplies in this place aswell as reserves for later needs.Apart from the physical characteristics, warehouses can be categorized according to their function.The following factors are important for maintenance of warehouses. Structure – should be designed or be suitable for use as a warehouse. It should be wind and
water-tight and maintained to a reasonable standard of construction and decorative order.Windows and roof lights should be in good condition and intact. Roofs should be watertightand gulley kept clear of debris and leaves.
Floors – should be kept in a sound and clean condition at all times, free from debris and otherobstructions. Floor marking is a desirable aid to good housekeeping with adequate traffic andpedestrian routes.
Electrical Installation and Lighting – should be safe and comply with the Electricity at WorkRegulations. Adequate light levels should be provided with light fittings located as high aspossible and out of the way of any likely damage from stacking and vehicles, and to preventdamage to stock by fire.
Doors – should be properly positioned with sufficient loading capacity. All external doors,whether for loading or personnel, should be as close fitting as possible. Locking arrangementsshould be to a standard approved by the insurers and Fire Brigade.
Staff Facilities – lavatory, washing and mess room accommodation, at least to the minimumstatutory requirements, should be provided in (or preferably adjacent to) the warehouse building.
Loading Area – where provided, should be free from obstruction, preferably covered, andallow an adequate turning circle for vehicles and parking space.
Fire Protection Measures and Equipment – should comply with legal requirements, bothlocal and national. Advice on implementation should be sought from the local Fire Authorityand the building insurers.
Fire Assessment of Warehouses – should be regularly carried out. Fire escapes and firedoors with hydrant points should be clearly marked and kept clear and free from obstruction,both inside and outside the building. Electrically powered roller shutter doors should be fittedwith a manual override at ground level. The quantity, nature and positioning of fire fightingequipment (e.g., fire extinguishers, sprinklers, etc.) should be established in consultation withthe local Fire Authority and the building insurers, and conform with any relevant local andnational statutory requirements. All equipment should be regularly and professionally maintainedand maintenance records should be kept.
Clear NO SMOKING signs should be exhibited.
Source: Hunger Relief Organization/shfbnews.blogspot.com
50
1.5.9 RELIEF TO LIVESTOCK
Livestock gets affected the most during disasters. Therefore, a relief strategy should take cognizanceof the livestock too while planning for livestock. There is a need to assess the impact of disasterson livestock.
Direct Impact of Disasters onLivestock
The important direct effects of naturaldisasters on livestock can be summed upas follows:
Generally, the safety of people is theprior concern during disasters, whichresults in neglect of the safety of theiranimals. At times, the animals runaway in panic.
Death of animals due to collapse of cattle sheds are common during earthquakes, tsunamis andlandslides. Many injuries are also due to such collapses.
It is reported that during an earthquake or cyclone, animals try to free themselves of the neckropes or metal chains. Sometimes, death occurs in this struggle due to ‘asphyxiation’. Othercauses are:
i) Drowning and washing away of animals in floods.
ii) Animals and birds are reported to be blown away during cyclones and high winds.
iii) Animals get stranded on isolated elevated places.
iv) Attacks by poisonous insects, snakes, rodents and leaches. Long-term starvation deathsare also common.
Indirect Impact of Disasters on Livestock
The conditions arising out of the effect ofdisasters also have indirect effects on thelivestock. These include:
i) Water borne infections leading toailments like diarrhoea.
ii) Moisture causing respiratory disorders.
iii) Parasitic infections caused by roundworms or tapeworms.
iv) Loss of weight amongst animals.
v) Loss of production of milk.
Source: Rains are killing our Rescue/dailymail.co.uk
Graphic 4: Livestock being Rescued
51
vi) Insufficient production of eggs in case of poultry.
vii) Interrupted supply of fodder.
Thus, it needs to be seen that fodder is stored adequately in warehouses for the livestock. Sheltershave to be erected for them as per their needs.
1.5.10 STRESS MANAGEMENT
Disaster-induced stress and trauma are ‘normal’reactions to ‘abnormal’ situations. Reactions ofpanic and stress of the survivors are different atevery stage. Helping survivors to cope with thetrauma thus needs adequate knowledge of factsand sufficient training in skills and attitudes. Disastersurvivors normally experience a range ofpsychological and physiological reactions.Survivors’ reactions may become more intense asthe extent of disruption to their lives increases.Their reaction would depend on the nature of theirstrength, which further depends upon several factorssuch as:
Prior experience with a similar event.
Intensity of disruption.
Emotional strength of the individual.
Degree of pessimistic feelings which sets the stage for panic.
Duration of time elapsed since the occurrence of the disaster event.
The critical factors that need to be kept in view are:
An evaluation of the training process to ascertain how many trained persons have actuallyapplied their skills to the field in order to provide mental health support.
Need for medication for the intensely depressed and the suicidal ones.
Monitoring of symptoms such as acute grief reactions some days after the disaster (anxiety andpanic, depression and suicidal attempts, acute psychotic reactions and alcoholism).
Stress Management Programme should take cognizance of:
Efforts that should be taken to minimize stress that may set in after a few days of the event.Shock and denial are normal responses to disasters and other kinds of trauma, especially,shortly after the event.
Post-Traumatic Stress Disorder (PTSD), is a disabling psychiatric disorder and needs to begiven due attention. As the initial shock subsides, reactions vary from one person to another.
Thoughts and behaviour patterns are affected by the trauma. The sufferer might have repeatedand vivid memories of the event. These flashbacks may occur randomly, and may lead to
Source: Stress Management Workshops/arogyadharma.org
52
physical reactions such as rapid heartbeat or sweating. The victim may find it difficult toconcentrate or make decisions. Sleep and eating patterns may also be disrupted.
Recurring emotional reactions are common. Anniversaries of the event, as well as reminders ofthe event such as aftershocks from earthquakes or the sounds of sirens, can trigger upsettingmemories of the traumatic experience. These ‘triggers’ may be accompanied by fears that thestressful event might occur again.
Interpersonal relationships that often become strained. Greater conflict, such as more frequentarguments with family members and co-workers is common. On the other hand, the victimsmight become withdrawn and isolated and avoid their usual routine activities.
Physical symptoms that may accompany the extreme form of stress. For example, headaches,nausea and chest pain may result, and these may require medical attention. Pre-existing medicalconditions may worsen due to stress.
It is important to realize that there is no one ‘standard’ pattern of reaction to the extreme stressconditions caused by traumatic experiences. Some people respond immediately to the event; whilesome have adverse effects for a long period of time, while others recover rather quickly. Thereactions could even change over time.
Things to Do
Give the victims time to heal. Allow the victims to mourn over the losses they have experienced.Try to be patient with changes in their emotional make-up.
Ask for support from people who care about the victims and who will listen and empathize withtheir situation.
Communicate with victims’ family or close friends, or keep a diary to jot down their experiences.
Find out about local support groups (NGOs, Self-help Groups, and Community-BasedOrganizations) that are often available for those who have suffered physically or mentally fromnatural disasters.
Make the victims interact with groups led by appropriately trained and experienced professionals.Group discussion can help people realize that they are not alone and that other individuals inthe same circumstances often have similar reactions and emotions.
Engage in healthy conversations to enhance victims’ ability to cope with excessive stress. Helpthem understand the importance of healthy meals and well-balanced diet devoid of alcohol anddrugs.
Establish or reestablish routines such as eating meals at regular intervals and following anexercise regimen. Make them take time off from the demands of daily life by pursuing hobbiesor other creative activities. The buzz of activity of a domestic chore will help in the reconstructionprocess, which will hasten the return to normal routines.
Help in filling out compensation forms and make visits to the application centres – some of theseplaces are very taxing, as they may be very crowded with just a few overworked staff members.
53
Listen patiently to what the other person has to say, even though you may believe him or herto be off the mark or illogical. Indicate simple acceptance, not necessarily agreement, bynodding or adding an occasional “alright” or “I see”
Empathize with and listen to, as well as share the experiences of the other persons, as if theyare your own. Provide support by patting on the shoulders or by holding their hand as they cry.Be sensitive to community norms about the code of conduct vis-à-vis the opposite gender,weaker sections and the elderly.
Taking Care of the Children
Allow children to cling to you more often than usual. Physicalaffection is very comforting to children who haveexperienced trauma.
Provide a playful atmosphere to help relieve tension. Youngerchildren in particular may find it easier to share their ideasand feelings about the event through non-verbal activitiessuch as drawing, painting, acting and dancing.
Encourage older children to speak with small children andshare their thoughts and feelings.
Keep a regular schedule for activities such as eating, playingand going to bed to help restore a sense of security andnormalcy.
Don’t move a child if care can be arranged locally and try to keep the child with his/her owncommunity people. Also, do not try to change the child’s name.
Make use of interviewers or other people whospeak the child’s language and understand his/her culture. Also record all information aboutthe child.
Facilitate the establishment of day care centresand ‘mamta gruhas’ in order to assimilate anartificial family with link mothers. (A Womancompassionate enough to be called a mothershould be made the guardian of 5-6 children,thus turning it into a family-like arrangement onthe lines of SOS Villages).
Managing Survivors
To assist rescue workers in dealing with the effects of disaster-related stress, you as disastermanagers should take recourse to the following approaches:
Source: Disaster, India/flickrhivemind.htm
Source: Disaster, India/flickr hivemind.htm
54
Brief Personnel: Explain to rescue personnel, before the rescue operation begins, what theycan expect to see, and what they can expect in terms of emotional responses in themselves andothers.
Emphasize on Teamwork: Sharing the workload and emotional load with team members canhelp defuse pent-up emotions.
Rotate Personnel: Encourage rescuers to rest and regroup, and to avoid becoming overtired.
Encourage Breaks: Encourage rescuers to take breaks away from the incident area, to getrelief from the stress factors associated with disaster.
Provide for Proper Nutrition: Provide adequate food for rescue volunteers. Encourage themto stop and eat properly, drink water or other electrolyte-replenishing fluids, and avoid drinkswith caffeine or refined sugar.
Rotate Teams: Team members should talk with each other about their experiences. This isvery important for their psychological health. Disaster Management Team (DMT) membersshould talk with their buddies.
Phase Out Workers Gradually: Do not remove rescuers from their duties abruptly. Allowrescuers to gradually stand down from the incident by working from high – to medium - to low-stress areas of the incident. Abrupt removal causes additional stress.
Experienced rescue workers find these steps helpful in controlling their own stress levels, but in somecases it may be necessary to seek help from mental health professionals.
DID YOU KNOW?
Psycho-Social Support and Mental Health Services (PSSMHS) in the Post-Disaster Phaseis the main responsibility of the Ministry of Health and Family Welfare at the centre;other line ministries like Ministry of Defence, Ministry of Railways, Ministry of Labourshall also prepare their response plans based on these Guidelines. The efforts from theministries should be used as complementary to main efforts of the nodal ministry in amajor disaster. Effective and rapid PSSMHS response helps to reduce the stress andtrauma of the affected community and facilitates speedy recovery by bringing them backto their pre-disaster level. The response plans for the PSSMHS shall be prepared basedon the National Guidelines, National Health Policy, National Mental Health Programmeand District Mental Health Programme.
EXERCISE 8
1. DIVIDE YOURSELVES INTO TWO GROUPS, ONE WOULD BE THECOUNSELLING GROUP AND THE OTHER THE VICTIM GROUP. ENACT ADISASTER SCENE, WHERE VICTIMS HAVE COME TO THE COUNSELLORSFOR HELP. THINK OF ALL COUNSELLING AND LISTENING TIPS AND PUTTHEM ON PAPER.
55
2. REVERSE GROUPS NOW, THOSE EARLIER IN THE VICTIM GROUP BECOMECOUNSELLORS AND VICE VERSA. REPEAT THE EXERCSE AS IN POINT 1AGAIN.
1.5.11 LOGISTICS MANAGEMENT
All activities and tasks that we havelearnt till now fall under the broadumbrella of logistics management. Itis a must to maintain logistics for everydisaster relief task. Logisticsmanagement entails:
An effective management oftactical resources. The ability toselect the right resources for thetask to be done is essential toproperly accomplish the job.
Delivery of appropriateresources, in a good condition,in the quantities required, and atthe place within the required timeinterval.
Ascertainment of minimum standards of storage, packaging, transportation, safety etc., for reliefand speedy management of supplies.
Focus on ensuring that the affected community and local authorities in managing the relief campswork in tandem.
Provision of relief aid to the disaster survivors at disaster response operation centres.
Focus on the design of logistics systems, and the coordination required by the various agenciesand actors involved in carrying out a logistics operation.
Integrated and coordinated performance from widely scattered groups of skilled specialists.
Relocation of disaster-affected people, transfer of casualties, and the movement of relief workersin a professional manner.
Documentation of the cargo materials. Record-keeping of all incoming and outgoing materialsto support the decision making for the emergency managers.
Assessment of needs based on Population’s Needs, Operational Needs, Local InfrastructureCapacity, and Local Availability of Resources.
It is important to determine not only the needs of the affected population, but also the needs of theorganizations that perform the relief tasks. Some of the basic questions that this assessment shouldset out to answer are:
Source: Google Images
56
What is needed?
How much is needed?
When is it needed? (urgent, not urgent)
Where is it needed?
1.6 DISASTER RESPONSE FOR SPECIFIC DISASTERS
Now, we shift our focus on various disasters and the response that follows. But, first we have tobe clear about the damage that takes place as a result of different disasters, as your response woulddepend on the nature and extent of damage.
1.6.1 Earthquakes
Damage to Non-engineered Structures (Structures which do not follow any laid down scientificconstruction procedures)
Earthen Structures
The performance of earthen structures, especially the double storied ones, is very poor consistingof wide cracks in walls, separation of walls at the corners and complete collapse of walls, roofs andfloors leading to death and injury to the residents.
Masonry Structures
The structures consisting of walls made from fired bricks,random-rubble or fieldstone or a combination thereofface the following type of damages:
The masonry structure is weak in ‘tension’ as wellas ‘shear’. So when it is shaken horizontally, manytypes of cracks occur such as vertical bending(cracks near vertical edges), horizontal bending(cracks below roof or floor and above plinth), aswell as diagonal cracks starting from corner of theopenings.
In case of flexible roofs and floors, the perpendicular walls tend to fully separate from eachother.
Parapets and chimneys projecting above the roof subjected to amplified motion easily fall bybending and overturning.
Random rubble masonry or stonewalls particularly built with lime or clay mud mortar is veryweak in compression also. Strength further reduces if walls get wet during rains. On seismicshaking, they shatter completely.
Random rubble and half-dressed stonewalls also suffer from the problem of splitting from themiddle into two wythes, which collapse separately inward and outward, causing total collapseof the structure.
Source: Bhuj Earthquake/Google Images
57
Sometimes buildings have unduly long rooms, their long walls do not get adequate lateralsupport from the cross walls. Such walls are very dangerous, and collapse due to bending andoverturning.
Location and relative size of the windows and door openings to the size of the walls are seento have a pronounced effect on the strength of the wall. Corner windows or those close tothe edge of the wall, and too many or large openings are found dangerous.
Stone Structures
Commonly seen construction defects in stone buildings arelack of bonding between building units, unfilled vertical jointsbetween the units and vertical plane of weakness due toadoption of toothed joints between perpendicular walls;and absence of through or bond stones in field stonemasonry and half-dressed stone construction, as well asunstable configuration of stones in such construction.
Wooden Structures
The earthquake performance of wooden buildings hasgenerally been good, particularly that of the wooden frame.However, the most dangerous aspect of wooden buildingshas been their poor fire resistance, and therefore a highdanger of catching fire during earthquakes, due to short-circuiting.
Response would include rescuing the victims from thedebris that would be more severe in case of masonry structure collapse. It needs to be seen thatthere are chances of fire in case of wooden structures; as well as in some cases masonry structures.In case of fire, steps need to be taken to evacuate victims to safer places and provisioning immediatemedical help for burn victims. Ambulances need to be positioned at the disaster site to monitor theoutbreak of fire; and provide quick first-aid to the disaster victims. Other structures that sufferdamage in disaster aftermath include roads, railway tracks and river banks. We have focussed onhouses and buildings, as structures such as residential apartments, hospitals, schools, colleges,warehouses suffer the maximum damage and report the maximum casualties in disaster aftermath.
1.6.2 Cyclones
The following types of damage are most visible in cyclone aftermath:
Roof: Building failure occurring due to the cyclone is generally confined to the roof. TheGable ended roofs are more liable to damage than hip roofs. Large overhangs also suffer moredamage and can be easily blown away.
Source: Stone Houses/Google Images
Source: Konecta Wooden Ho use/1st4loghomes.com
58
AC Roof Sheeting: Damages to AC sheet roof occurs in the form of breakage of sheets,failure of sheets at anchorage points or enlargement of holes and deformation of bolts holdingthe sheets.
Thatched Roofs: A thatched roof being very light is easily blown away during a storm.Typically, damage is seen in the form of blowing away of the thatch along the ridge, crown hipand eaves of the house.
Tiled Roofs: Mangalore tiled roofs withstand the storm better than the country-tiled roofs.Failure of tiled roofs is common along the ridges, eave and roof intersections. Loss of tiles inthe roofs results in the mud walls getting soaked and collapsing in the event of a cyclone.
RCC Roofs: Damages are seen in Reinforced Concrete Cement (RCC) roofed houses in theform of leaks and heavy corrosion.
Masonry: Failure of masonry walls of buildings, parapets and compound walls, includingcracks in walls at corners, collapse at foundation level is due to cyclonic storms. Houses withthick mud walls are damaged the most, leading to cracks all over.
Source: Hazards Alerts for Tornadoes/disasterwarming.com
The response would depend on the extent of damage to the houses and other infrastructure. Thereis a need for quick medical aid for victims of collapsed buildings and immediate provisioning ofrepairs and shelter accommodation.
1.6.3 Floods
The high incidents of flood damage to buildings are due to:
Foundation scouring and settlement; and subsequent wall collapse under hydro-dynamic loads.
Wall collapse, either due to inadequate bearing capacity caused by saturation under heavy rainor due to inundation, leading to collapse of roof.
Floating of roof due to inundation, leading also to wall damage.
The extent of damage to houses depends upon the nature of construction and extent offloods that they are exposed to. Damage includes:
59
Overturning of bamboo and wooden structures due to uplift caused by heavy force of water.
Mud wall yielding due to prolonged exposure to water.
Efflorescence of brick walls – covering of the walls with salt due to prolonged water logging.
Damage to finishing materials or floor or walls due to silt deposition.
Permanent dampness of lower floors and walls making them uninhabitable, leading to decay ofwooden and other facilities.
Cracks on walls and floors due to partial settlement of sub-soil.
Damage to other infrastructure, such as Roads and Railways, Water Supply, Drainage, Sewerage,Telecommunication Network, Electricity Network.
Response in case of cyclones, tsunamis and floods would focus on quick search for survivors,immediate evacuation of victims, and medical aid/help for them. Besides, repair of houses etc., whichis a long-drawn procedure that runs well into the disaster recovery stage.
1.6.4 Droughts
Graphic 5: A Drought-affected Region
Droughts are slow onset disasters, which may not require immediate response like SAR. However,it is required that the problems of dry taps, lack of rains, failure of crops and loss of livelihoods beaddressed earnestly. Provisions need to be made to open a basket of choices to farmers in the formof:
Insurance Cover
Alternative Cropping
Mixed/Multiple Farming
Diversification of Livelihoods towards Non-farming
Creation of Job Opportunities other than in Agricultural Areas
60
DID YOU KNOW?
In the past few years, NDRF has proved its efficacy with its commendable performanceduring various disasters including drowning cases, building collapses, landslides,devastating floods and cyclones. NDRF has saved innumerable human lives and retrievedhundreds of dead bodies of disaster victims in their response operations in the country.Some of the major response operations of NDRF are as below:
Extensive rescue operations were conducted by the SAR team of BSF – NDRFBattalion, Guwahati on 24 February 2008 after a bus coming from Shilapathar fellinto a pond from Movmara bridge near village Kapalkata, Sonapur, District Kamrup(Metro). Over 15 rescuers were pressed into service, who gained access to the busmarooned in water and extricated 10 dead bodies.
A 4-storey building, Shakunt Hotel opposite Kalupur Railway Station, Ahmedabadcollapsed on 03 February 2008 at about 8:45 hours. Four teams (about 140 personnel)along with SAR equipment and dog squads were pressed into rescue and reliefoperations immediately, and they were able to save 10 people who were buried underthe collapsed structure. They also recovered 16 dead bodies from the debris.
On May 25, 2009, Cyclone Aila hit West Bengal coast with a fury unprecedented.NDRF promptly responded to the devastating situation and 600 personnel of NDRFwith 84 boats and other rescue equipment started rescue and relief operations incyclone affected areas of district 24 Parganas, North and South of West Bengal.
In Jan., 2010, a five-storied under-construction residential building collapsed atBellary in Karnataka and 50 people were trapped under the huge debris. 3 rescueteams (102 personnel) of NDRF Battalion Pune were airlifted to Bellary. A round theclock operation for nine days took place, and the last person was rescued on the 9th
day.
Total 438 NDRF personnel, along with CSSR and flood rescue equipment, reachedthe affected districts during Laila Cyclone, and saved 1268 precious human lives inMay, 2010.
1.7 HOW DOES DISASTER RESPONSE ACTUALIZE?
Dealing with disaster damage is a mammoth task. How do we then respond to the colossal damageis a pertinent question.
Techniques and Methods of Response
All functions pertaining to relief should be performed according to the provisions of the CalamityRelief Norms. Generally, relief and response tasks relate to pre-, during and post-disaster situations.Disaster Management Teams (DMTs) are generally formed to meet the disaster situations. Thesecould be:
61
Early Warning Team
Graphic 6: Dissemination of Warning using Loudspeakers
The members of this team are responsible for providing the latest warning information to villagers,so that they get ample time to face the hazard. Emergency contact telephone numbers are collectedwell in advance of the hazard season and tools such as radio, television etc., are to be kept inworking condition prior to the hazard period. During the occurrence of the hazard, the team wouldbe responsible to inform every household of the latest situation. They would also keep a track ofthe situation and listen to de-warning messages to decide on the timing to call off the emergencystate.
Evacuation, Search and Rescue Team
Source: Floods in India National Disaster Commons/wikimedia.org
62
STEPS IN EVACUATION
STEP ACTION Determine the need Determine whether there is a need for total or partial
evacuation. Identify a relocation area Select an area that is free of hazards and easily
accessible. Communicate Communicate to everyone involved about the need to
evacuate and update them on the locations of shelters. Pre-designate routes Designate routes from the area to be evacuated to the
area of relocation. Consider alternatives. Verify routes periodically Make sure that the evacuation is proceeding
smoothly, and that during evacuation, no bottlenecks are created along the evacuation route.
Report the evacuation Be sure to inform governmental emergency management personnel about the evacuation to avoid unnecessary duplication of efforts and risks.
Members of this team are mainly responsible to evacuate and carry out search and rescue operationduring the time of an emergency. The members of this team should be young men and women ofthe village, ex-servicemen, swimmers, etc. Rescue kits necessary to carry out activities of this teamshould ideally be made from local indigenous materials. Team members should be trained with thehelp of Civil Defence, Police, Fire Services, etc.
Pre-Disaster
Have a detailed map of the community to get familiar with the geographical area.
Identify necessary SAR tools/equipment from local resources.
Regularly maintain the equipment.
Organize SAR sub-teams for rotation of personnel.
Carry out regular training programmes during the non-disaster phase.
During-Disaster
Organize a meeting of members of SAR Team.
Contact the local disaster committee members.
Identify vulnerable areas in which help is required, and decide on the action plan for carryingout search and rescue operations.
Mobilize required equipment.
Assist the evacuation team in moving people to safer shelters.
63
Coordinate with team to provide injured persons the required medical attention.
Post-Disaster
Report the number of missing/dead/injured during search and rescue operations.
Conduct a head count of the community members.
Clear debris and fallen trees/rubble to reach trapped persons.
Communicate with first aid team for primary health care.
Coordinate with evacuation team to shift rescued persons to open spaces/tents/shelters.
DID YOU KNOW?
Lifting should always be done in a way that protects the rescuer’s back from strain orother injury. To lift safely:
Bend your knees and squat
Keep the load close to your body
Keep your back straight
Push up with your legs
Personal equipment for Rescuer
Helmet
Torch
Life-line
Gum-Boots
Life-Jackets
Whistle
Team Equipment for Rescuer
Rope-3-inch (7 cms) diameter of 200 ft (61.5 mtrs)
Lashing lines-1.5 inches (3.8cms) circumference of 40 ft (12.32 mtrs) length
6 Sash-cord-inch (2.54cms)
Pulley blocks with different sheaves
Ladder (Wood/Bamboo)
Improvized floating aids
Small cutting tools
64
First Aid Box
Germicide Soap
Crow Bar
Hammer
Stretcher
Blankets
DID YOU KNOW?
There are different ways of preparing floating equipment:
Empty Tins and Jerricanes
Collect 20 litre capacity empty tins.
Seal the openings of the empty tins.
Collect two equal size 4 feet (120 cm) bamboo pieces.
Place both the tins with a gap of 1.5 feet (45 cms.) from each other or equal to thewidth of the chest of the rescuer.
Tie the empty tins with the bamboo poles at two places with coconut fibre ropes bysquare lashing, and tighten as far as possible to prepare the floating aid. This canhelp to float a person in the water. The rescuer can use the device for water rescuealso. Empty and air tight 15 litre Capacity Jerricanes could also be used as floatingaids.
Empty Glass Bottles
Collect 8 empty bottles of 750 ml capacity.
Seal the openings of the bottles with polythene or waterproof materials to make themairtight.
Tie each bottle at two places at the bottom edge and at the neck edge by using clovehitch and thumb knots in a series to prepare the floating aid. This can help to floata person in the water.
Dry Coconuts
Collect dry coconuts.
Continue adding the number of coconuts until these can carry the weight of therescuer. Tie the dried coconuts with coir fibres to prepare the swimming aid. This canhelp to float a person in water.
65
Bamboo Bundles
Collect bamboo pieces of 1.5 feet to 2 feet length (45 cms–60 cms).
Continue adding the numbers of bamboo pieces until sufficient amount that cancarry the weight of the rescuer is reached.
Tie the bamboo pieces with coir fibres to prepare the swimming aid. The swimmingaid can help to float a person in the water.
Metal Pitcher
Collect 2 metal pitchers.
Cover the openings with polythene or any waterproof material. Place the two pitcherswithin a gap of 1.5 feet (0.5 mtr) or according to the width of the rescuer.
Tie the two pitchers with two bamboo pieces of 4 feet (120 cms) length with coconutfibre ropes and tighten as strong as possible. It is also called “pot water wing”.
Motor Tubes
Collect good leak-proof motor tubes (Jeep, Truck, Car, Bus only).
Fill up with air.
EXERCISE 9
FORM TWO GROUPS AND TRY TO PREPARE FLOATING EQUIPMENT WITHMATERIAL AROUND THE ROOM. YOU MAY STEP OUTSIDE A LITTLE ANDTAKE A WALK AROUND THE PLACE YOU ARE IN TO FIND MATERIAL THATCAN BE USED FOR MAKING FLOATING EQUIPMENT. ALSO SUGGEST SOMEOTHER INNOVATIVE WAYS OF MAKING SUCH EQUIPMENT.
Relief Team
This team maintains the list of household members so that they can arrange or procure sufficientquantity of food materials for each category of victims. The team members are responsible for thedistribution of relief material. In the post-disaster period, they should make arrangements for gettingrelief materials from the block or panchayat office. They should also have the list of shops /wholesale dealers where food grains are available for use during emergency.
The Relief Team should perform the following tasks:
Pre-Disaster
Ensure that communication equipment is in working order.
Maintain an emergency contact directory of key agencies like India Meteorological Department(IMD), Office of the District Magistrate, Civic Public Works Department (CPWD) and Officeof Superintendent of Police (SP) Police.
66
Prepare a hazard map of the community demarcating the most vulnerable/safe areas andhouseholds.
Pay attention to local warning issued by departments.
Disseminate early warning using mega phone/mikes/siren, door to door.
Assemble at a central location and listen to Radio/TV news channels to determine the situation.
Verify the warning received on Radio/TV news channels with the nearest Emergency OperatingCentre.
Graphic 7: Community Kitchen at a Temporary Shelter
During-Disaster
Remain in the pre-identified community shelters and provide the evacuees with regular updates.
Take necessary precautionary actions based on the alertness levels.
In case supply runs short, move food stocks, fuels and medicines to community shelters.
Organize space to house evacuee families.
Guide the elderly, women, children and physically/mentally challenged to shelters.
Register the evacuees and give them identification slips/cards.
Post-Disaster
Get the de-warning message from the Emergency Operating Centre.
Disseminate precautionary information on post-disaster health hazards and remedies.
Provide the search and rescue team with the demographic and cultural profile of the community.
DID YOU KNOW?
A FEW RESCUE TECHNIQUES FOR YOU ARE:
Lifts and Drags
If a victim cannot get out of the debris on his or her own, size up the situation todetermine the most appropriate means of removal. The extrication method selected dependson the :
67
Number of rescuers available. Strength and ability of the rescuers. Condition of the victim, and General stability of the immediate environment.Unless there is a condition that threatens rescuer safety (e.g., the building is on fire, orcollapsing, or getting filled with water), do not use these types of victim removal equipment,especially, if you suspect a closed head, neck or spine injury. Victims with injuries to thehead or spine should be stabilized on a backboard before removal. Remember to use in-line stabilization.Different ways of carrying victims are:i) One-Person Arm CarryIf you are physically strong, you may be able to lift andcarry a victim by yourself. Reach around the victim’s backand under the knees, and lift. The victims may be able toassist by placing an arm around your shoulder.ii) One-Person Pack-Strap CarryTo accomplish this carry, stand with your back to the victim.Place the victim’s arms over your shoulders and grab thehands in front of your chest. Hoist the victim onto yourback by bending forward slightly, so his or her feet are justa few inches above the floor.iii) Two-Person LiftRescuer-1: Squat at the victim’s head and grasp the victimfrom behind around the mid-section. Reach under the armsand grasp the victim’s forearms.Rescuer-2: Squat between the victim’s knees, facing eithertoward or away from the victim. Grasp the outside of thevictim’s legs at the knees.Using safe lifting procedures, rise to a standing position,lifting the victim. The victim can then be carried to safety.iv) Chair CarryThis technique requires two rescuers: Place the victim in a straight-back chair (e.g., a wooden
kitchen chair). Rescuer-1: Facing the back of the chair, grasp the back
upright. Rescuer-2: With your back to the victim’s knees, reach
back and grasp the two front legs of the chair.
Tilt the chair back, lift, and walk out.
One Person ArmCarry
One Person Pack-strap Carry
Two Person Lift Two Person Lift
68
v) Blanket Carry: The blanket carryrequires at least four rescuers toprovide stability to the victim, withone person designated as the leadperson.
Lay a blanket next to the victim.
Tuck the blanket under the victim, androll the victim into the centre of theblanket.
Roll up the blanket edges toward thevictim, to form tube-like handles oneach side of the victim.
With two rescuers squatting on each side and grasping the “handle,” the lead personchecks the team for even weight distribution and correct lifting position.
The lead person calls out, “Ready to lift on the count of three: one, two, three, lift.”
The team lifts and stands in unison, keeping the victim level, and carries away thevictim feet first.
To lower the victim, the lead person calls out, “Ready to lower on the count of three:one, two, and three, lower.”
vi) Improvized Stretchers
A variety of materials can be used as improvized stretchers,which can be carried by two rescuers. For example, you can
make a stretcher from 2poles and a blanket.
vii) Drag
Drag the victim out of the confined area by graspingeither under the arms or by the feet and pulling acrossthe floor. Remember to use safe lifting procedures. Onerescuer can also use the blanket drag by wrapping the
victim in a blanket, squatting down and grasping an edge of the blanket, and draggingthe victim across the floor.
viii) Ropes, Knots and Techniques
In a number of rescue situations, you will have to use ropes and poles to lower, raiseor move casualties across an obstacle or a void. The illustrations on the following pagesshow some of the knots used. These knots should be repeatedly practised and should onlybe used if safety is ensured.
Four PersonBlanket Carry
69
ix) Double Sheet-Bend
This is required to join two ropes of different materials or when there is a great differencein the sizes of the ropes. It is formed somewhat like the Single Sheet-Bend, except thatafter having made the Half Hitch with the thinner rope, continue turning its short-endto make another round turn around the two thickness of the thicker drops.
x) Chair Knot
It is useful for rescue, and recovers the rope very easily. The chair knot is used torescue a sling in which a person may be lowered from heights.
Grasping the rope near its centre in the left hand palm downward, right hand palmupwards forms it. Turn the left palm upwards forming a loop (anti-clock wise) andturn; the right hand palm down forming a loop.
Pass the standing part through the loops of the opposite hand pulling them through,thus forming two loops with a knot in the centre, adjust the loop, and make a halfhitch on each loop.
The chair knot is useful to recover the casualty from under the debris or frombasement, where the rescuer has to crawl to the casualty and back again.
Take the running end of the rope in one hand, pull it across the upturned palm ofthe left hand, through the fingers of the left hand, forming a loop to required size,and pass the running end, which is; held in the right hand, up through the loop.Tighten the two ends.
It can also be converted into a running bow-line by simply passing the knot underthe standing part.
A running baseline can be put on a ring bold or object to drag an object, floatingdebris, animals or human body, standing from a remote place.
xi) Lashings
Lashing means to “tie something firmly to something else”. Lashing is mainly used tosecure two or more poles together. There are four common types of lashings.
1) Square Lashing
This is used for lashing together two poles that touch and cross at right angles.
Put a clove hitch around the leg and below the crosshead or ledger.
Marry the running end to the standing parts; tie up and around both the poles.
Repeat this circuit three to four times, drawing the rope as tightly as possible.
Then take three to four flapping turns around the whole lashing between the poles.
Tighten off with a clove hitch on the vertical pole above the horizontal.
70
2) Diagonal Lashing
This is used for lashing two poles where they cross at an angle and the poles arelikely to spring apart when put under load or strain.
Put a hitch around both the poles horizontally. Then take four vertical turns anddraw them tight.
Then take four horizontal runs and draw them tight. To finish, put four turns overthe lashing and between the poles.
Draw them tight and end with a clove hitch.
3) Figure of Eight Lashings
This is used for lashing three poles together to form a tripod’s before lashing, insertspacers between the poles.
Join the ends and working upwards continue lashing in the figure of eight fashionwith 6-8 turns.
Add two to three turns between each pole and round the lashing. Finish with a clovehitch above and on the opposite to the starting pole.
4) Round Lashing
This is used for lashing two poles together, when they are parallel to each other toform a sheer leg. This is also called sheer lashing.
Before starting, insert spacers between the poles.
Put a clove hitch around one pole and join the ends and continue with 6-8 closeturns around both; the poles, going upwards.
Add 2 or 3 turns around both the poles going upwards.
Add 2 or 3 turns around the lashing and between the poles. End with a clove hitchabove and on the opposite pole to the starting pole.
Different Variety of Knots
Bowline on a Bight Reef Knot Buntine Hitch
Bowline Clove Hitch
71
xii) Improvized Swimming and Floating Aids
Life jacket is a standard life saving equipment, which gives confidence to the rescuerthat he/she is safe. The life jacket is made out of waterproof canvas and is filled with;fine cotton, weighing about 4 kegs equivalent 8.82 (pounds). Normally, the life jacketis to be worn like a jacket, and has three tying ropes to secure the jacket. Standardmanufactured life jackets may not be available in rural areas or during an emergency,however, swimming and floating aids could be improvized from the locally availablematerials.
1) Raft
During flood or cyclone, availability of boats for rescue is likely to be difficult. Raftscould be improvized from locally available materials and used for rescue and reliefactivities. Collect 4 good quality empty barrels of 200 litres capacity (Empty KeroseneBarrels). Seal the empty barrels to make them watertight. Tie the empty watertight
Constrictor Rolling Hitch
Figure of Eight Mooring Hitch
Truckers Hitch Water Knot
Sheet Bend Tautline Hitch
72
barrels with a bamboo frame. Ensure the Raft is fixed properly with ropes and becomescompact. 8-10 persons with safety can be transported on one Raft.
2) Breast-Line (Life-Lines)
Water rescuers and lifeguards practice “Breast-Line-Throw” for life saving. Breast Line-Throw is life saving skill. This can help in saving the life of an individual who isdrowning in water. This method has the additional advantage that the person who isthrowing the line will be standing either in a boat or on the ground, steadily able torescue the individual who is drowning.
3) Rules of Breast-Line-Throwing
Breast- Line should be a minimum of 40 to 60 feet long (16 mtrs to 20 mtrs), of 1.5 inchrope (3.5 cms) thickness. Breast- Line should be thrown in the same fashion, as we doin case of a “Discus Throw or Fishing Net”, the only difference being, that while doinga Breast-Line-Throw, we do not take a full circle but throw the rope by swinging thehands.
EXERCISE 101. HOW WOULD YOU LIFT A VICTIM WHO HAS: BROKEN ALL HIS LIMBS AND SIMPLY CANNOT MOVE BROKEN HIS LOWER LIMBS BROKEN HIS ARM UNCONSCIOUS AND NOT BREATHING
2. LIST THE STYLES OF LIFTING AND CARRYING FOR EACH OF THE ABOVEMENTIONED VICTIM CATEGORY.
Carcass Disposal Team
The team is responsible for the clearing of carcasses after thedisaster. They are exposed to different types of carcass disposalmethods to check the spread of diseases by disposing of thecarcasses at the earliest and in the right manner as per the socialand cultural norms.
Shelter Management Team
Members of this team take care of theidentified shelter buildings in pre-during andpost-disaster scenarios. The team leader orany other member should have the keys tothe shelters so that prior to the disaster, theplace is cleaned up and necessary materialsstocked.
Source: agnicrop.nic.in
Graphic 8: Building Temporary Shelters
73
Care needs to be taken to stock necessary material such as:
Food, drinking water, medicines, bleaching powder, firewood, lantern, etc.
Livestock material.
Hygiene Material like Soaps, Cleansers, Surf, etc.
Safeguard equipment against fire.
DID YOU KNOW?Fire Safety Tips include: Install and Maintain Smoke Detectors: Smoke detectors warn you of fire, in time, to
let you escape. Don’t give match boxes to children: In the hands of a child, matches or lighters are
extremely dangerous. Store them up high where kids can’t reach them, preferably ina locked cabinet.
Cool a Burn: If someone gets burned, immediately place the wound in cool water for10 to 15 minutes to ease the pain.
Crawl Low Under Smoke: If you encounter smoke using your primary exit, use youralternate route instead.
Plan and Practice Your Escape: If fire breaks out in your shelter/home, you must getout fast. With your family, plan two ways out of every room. Fire escape routes mustnot include elevators.
Keep Cooking Areas Clear of Combustibles, and Don’t Leave Cooking Unattended:Keep the handles of your pots and vessels turned inward so children won’t knock orpull them over the edge of the stove. If grease catches fire, carefully slide a lid overthe pan to smother the flames, then turn off the burner.
Use Electricity Safely: If an appliance smokes or begins to smell unusual, unplug itimmediately and have it repaired. Check all your electrical cords, and replace anythat are cracked or frayed.
Stop, Drop and Roll: Everyone should know this rule: if your clothes catch fire,don’t run! Stop where you are, drop to the ground, and roll over and over to smotherthe flames. Cover your face with your hands to protect your face and lungs.
Practice Candle Safety: Never leave a lit candle or a burning gas/ ‘chullah’ unattendedin any room of the house.
Water and Sanitation Team
Members of this team ensure availability of safe drinking water and cleanlinessof the village, so that there is no danger of epidemics after the disaster. Theyhave to make arrangements for storing water for drinking, cooking and otherchores.
Pre-Disaster
Ensure supply of chlorine tablets to disinfect drinking water.Source: Dry Latrine Cleaner
sharda/photographerdirect.com
74
Ensure sufficient stock of lime powder to disinfect water bodies/drain networks.
Obtain contact details of personnel at local water board/authority.
Set minimum standards in advance for distribution of water in emergencies.
Identify sufficient number of raised platforms, deep tube wells.
Prepare utility as well as distribution network maps.
During-Disaster
Assess the supply of drinking water and take adequate steps to prevent contamination.
Ensure that safe drinking water and sanitation facilities are available at the shelter sites.
Post-Disaster
Conduct damage assessment of water and sanitation facilities and inform the damage assessmentteam.
Restore water and sanitation facilities.
Conduct immediate repairs of broken or burst pipes.
Coordinate with the Municipal Cooperation for procurement of water tankers.
Disinfect large water bodies with lime powder.
Ensure that water is available at relief camps/safe shelters.
Coordinate with first aid/search and rescue team for disposal of carcasses.
Maintain a list of dead who have been cremated.
DID YOU KNOW?
Training of these response teams has to be a continuous exercise, as the personnel,stakeholders, workers all have to be updated on the latest technology and equipment.
Good Practices in Training connote:
1) Provision of training in accessible format such as Braille, special computer software,audio versions, large print and use of sign language interpreters.
2) Production and use of communication tools through a booklet highlighting thespecific needs of the types of disabilities to be used as training and reference manualfor disaster/relief personnel.
3) People with speech and hearing disabilities to be trained to become volunteers, sothat they can help other persons with similar impairment.
4) Training of professional local builders and architects in Universal Design norms.
75
Some other important tasks can also help in overcoming the constraints in relief process.These are:
Fence the shelter compound or areas that are unsafe (open manholes, piles of rubble,etc.).
Ensure sufficient lighting, in shelter areas/camps, so that obstacles can be easily seenby those with low vision.
Install handrails for stairs, and ramps for buildings.
Identify family or neighbours of Persons with Disabilities and provide space to themin the same shelter.
Protection measures be put in place with assistance of families, community and localadministration.
An access audit for safe shelters, public building and relief distribution centre shouldbe conducted.
Modification of important buildings for easy access during disasters.
Relocation of Persons with Disabilities closer to schools, markets or other frequentvenues to improve accessibility.
Put up proper signage to locate toilets, lifts, ramps, slopes, telephones and exits.
Provisions for physiotherapy to improve the ability of persons with physical impairmentto move (exercise, positioning, strengthening, etc).
Provision of occupational therapy to help a Person with Disability learn new waysto complete daily activities (dressing, eating, using implements, etc).
Identification of vocational training skills.
Preparation of training manuals for workers who will assist in repairing assistivedevices.
Promote networks of elderly to minimize psychological trauma subsequent to disasters.
Medical and First Aid Team
This specialized team is responsible for preparingand updating the list of the vulnerable populationlike old and ailing people, pregnant women andchildren. They also have to procure necessarymedicines before the hazard season and conduct aroutine check-up of the ailing people in the village.They have to collect health related information, andmake the community aware of the measures to betaken. Women and existing health practitioners ofthe village are the members of this team. This team
Source: Disaster Rescue/Google Images
76
should receive training from the local medical personnel and trained volunteers. The team membersmust know some of the first-aid techniques like use of bandages, methods to stop bleeding, andtreatment of wounds, fractures, precautions after snake bite, artificial respiration and resuscitation,and heart pumping to save precious lives during disasters.
DID YOU KNOW?
Resuscitation (Artificial Respiration) can be done by well-trained and aware communityworkers:
Check the victim’s chest movement and listen to the heartbeat. If you do not feel thevictim’s breath on your cheek, start artificial respiration immediately.
Keep the victim’s head back.
Place your mouth over the victim’s mouth.
Give two full breaths.
Check that victim’s chest rises.
Continue giving breath every five seconds, till the victim breathes normally or tillmedical help arrives.
If on artificial respiration, the chest of the victim does not rise, reposition the headand start the artificial respiration again.
To clear the air way, place the heel of one hand on the top heel of the other hand,just above the navel but below the breast bone. Press down on upper abdomen withsix to ten quick thrusts.
If this fails, open the patient’s mouth by grasp in lower jaw between the thumb andfingers and lift the chin. Grasp tongue to open air way. Insert index finger of theother hand deep into the mouth and use finger to remove the foreign body, if any.
Continue till the victim breathes or till help arrives.
Coordination Team
This team maintains the list of all household members, so that they can arrange or procure sufficientquantity of food materials for each category of people. The team members are also responsible forthe distribution of relief materials. In the post-disaster period they have to make arrangements forgetting relief materials from the block office. They too have distinct before, during and after disastertasks:
Pre-Disaster
Get familiarized with the need assessment formats.
Assess the estimated requirements for relief material.
Check with the Evacuation, Temporary Shelter Management and First-Aid Teams, to ascertainstockpiling of food grains, fodder and medicines.
Identify the stock materials like ropes, bamboos, tarpaulin etc., in the safe shelters.
77
During-Disaster
Coordinate with evacuation and Temporary Shelter Management Teams to distribute essentialrelief items to safe shelters.
Establish a distribution centre or community kitchen.
Post-Disaster
Conduct a need assessment in the locality.
Based on the preliminary needs assessment, communicate to the Disaster Management Committeeon the relief items required and the status of distribution.
Prioritize relief items and essential food items for men, women, physically disadvantaged andchildren.
Maintain a list of relief items distributed to each household.
Keep a record of relief stock available.
DID YOU KNOW?
After its constitution in 2005, NDRF with its swift and highly-skilled rescue operationshas emerged as most visible and vibrant force of the NDMA. NDRF personnel areinvariably trained in courses like Flood Rescue, Search and Rescue, Medical FirstResponders, Rope Rescue, Chemical, Biological, Radiological and Nuclear Emergencies,Dignified Disposal of Dead Bodies etc.
Trauma Counselling Team
The disaster relief system generally does nothave adequate provision for treatment ofmental health, which may precipitate suicidalcases after any major disaster. In such asituation, the counselling team is responsiblefor easing the victims of their trauma. Thisteam must involve the elderly people of thecommunity, doctors and psychiatrists. Theirpre-, during and post-disaster tasks are:
Pre-Disaster
Maintain a list of elderly members,children below 5 years, pregnant women, disabled etc., in the locality.
Keep first-aid kits ready and ensure that expired drugs are replaced with new ones.
Keep stretchers/wheel chairs or other local alternatives ready to carry injured people.
Undertake combined training along with Search and Rescue Team.
Coordinate with public dispensaries, health centres and municipal hospitals.
Source: Counselling Centre/mmpshahcollege.org
78
During-Disaster
Ensure the contents of all first-aid kits are in place.
Look after the medical and psychological needs of the evacuees.
Help in setting up medical camps.
Post-Disaster
Attend to the injured people.
Counsel traumatized people.
Help doctors and paramedics in providing trauma care to the injured.
Identify and isolate the cases of infectious diseases to prevent them from spreading.
Provide preventive medication if there is danger of cholera or dysentery.
Coordinate with the relief task force to ensure adequate medical supplies.
DID YOU KNOW?
In assessing your own situation and making decisions about search and rescue strategies,rescuer safety must be the primary concern. The two most frequent causes of rescuerdeaths are disorientation and secondary collapse. Certain safeguards could thus be:
Buddy System
Always work in pairs, with a third person acting as a runner.
Safety Equipment
Wear safety equipment and clothing appropriate to the task. In search and rescueoperations, the equipment can include:
Helmet.
Goggles.
Whistle for signalling other rescue workers.
Clothing appropriate for the weather (e.g., protection from cold or rain).
Rotate Teams
Have back-up teams available. Monitor the length of exposure of active teams. Be alertto the signs of fatigue. Establish regular search and rescue shifts or rotate personnel (asa team) as needed. Make teams drink fluids and eat regularly to maintain themselves.
Remember: Fatigue leads to injury. Never enter unfamiliar and experimental terrains.Follow recommended procedures for lifting and carrying.
79
Damage Assessment Team
After normalcy returns, the damage assessment team shouldcarry out an estimation of the damaged houses, livelihoodassets and crops etc. Usually, a government functionaryfrom the State Revenue Department carries out suchassessments assisted by the damage assessment team. Thisteam must comprise literate local volunteers who can helpthe functionaries engaged in this exercise in the pre- andpost-disaster phases.
Pre-Disaster
Obtain and keep a social map handy demarcating the most vulnerable/safe areas and households.
Prepare and keep handy a sufficient number of damage and need assessment forms for varioussectors.
During-Disaster
Coordinate with Search and Rescue, Evacuation and Temporary Shelter Management teams totake stock of the current situation.
Call emergency meeting of the group and assign duties.
Post-Disaster
Prepare a first-hand damage assessment report on the preliminary damage to lives, livestockand property.
Prepare further detailed reports on various specific sectors.
Assist disaster management committees in organizing rehabilitation activities.
DID YOU KNOW?
In an emergency kit, emergency items should include:
Torch with spare batteries.
Radio with spare batteries (check all batteries every 3 months).
A change of clothes for all family members.
First-Aid kit and essential medicines.
Blankets.
Pet supplies.
Face and dust masks.
Non-perishable food that can last up to 3 days at least.
Source: Our Relief Works are Ongoing/feww.workpress.com
80
Drinking water (at least 3 litres per person, per day for drinking).
Check and replace food and water every 6 to 9 months/monitor expiry dates of items.
Assemble everything you need for your Emergency Survival Kit and place it somewherethat is easy to get to in an emergency. Make sure everyone in your house knows whereyour Emergency Survival Items are kept. If you prefer to keep some of your EmergencySurvival Items in the house for everyday use, make sure you know where to find themquickly when an emergency occurs.
EXERCISE 11
BREAK YOURSELVES INTO DIFFERENT DISASTER RESPONSE TEAMS. EACHTEAM SHOULD LIST OUT THE TASKS IT INTENDS TO PERFORM ON A NOTEPAD. SHARE NOTES AMONGST EACH OTHER TO SEE IF THE TASKSIDENTIFIED ARE COMPREHENSIVE AND DO NOT OVERLAP .
1.8 OVERCOMING THE CONSTRAINTS IN RESPONSE
Relief distribution is not an easy task. In fact, thiscan be considered as the most difficult phase ofdisaster management cycle. It is here that lives haveto be saved and sustained. There are manyconstraints that may crop up. These could be:
1) Lack of volunteers for SAR.
2) Lack of training in SAR skills.
3) Financial and resource constraints
4) Delay in help for food and medicines, due tolack of communication, inaccessibility of affectedareas, and sheer apathy of governmental and aid agencies.
5) Insufficient use of traditional wisdom to cope with disasters.
6) Absence of doctors, nurses, health workers, hospitals and dispensaries.
7) Non-utility of relief material, when it flows without knowing the exact needs of the community.For example, most of the time, old and used clothes are transported to the affected area,without bothering about victims’ needs. These result in blockage of storage place and hinderthe transportation of some other important goods to the affected area.
Things to do
1) The intervals in which large amounts of external relief are needed are usually more limited thanmost observers believe. Relief has to be speeded up in response, as many resources flow fromdifferent locations and different parts of the country. Sometimes, a major management challengeis to find ways to limit increase and prioritize relief inputs.
Source: Earthquake Disaster in Iran/upi.com
81
2) Prevention of delivery of unnecessary items can itself contribute substantially to more effectivemanagement of relief and recovery.
3) Resource mobilization needs to take place immediately after the first warning of the disaster.It is essential to be prepared rather than go helter skelter looking for essentials during relief.
4) Relief logistics often need to be organized quickly under severe constraints. These include thepre-existing logistics infrastructure in the affected area, political factors, the damage caused bythe disaster, and sometimes the security environment in operating areas.
5) The overall effectiveness of relief logistics often depends on the level of prior planning in boththe transport and communications infrastructure, and how far relief requirements have beenconsidered in the planning and logistic management phases.
6) Besides, the governmental relief fund money, resources need to be mobilized by encouragingthe processes of micro-credits, insurance, community emergency funds, grain banks and seedbanks.
7) Many well-intentioned volunteers have been injured or killed during rescue operations simplybecause they did not pay attention to their own physical and mental limitations. As a DisasterManagement rescuer, you must know your limits and monitor your condition. Take time to eat,drink fluids, rest, and recuperate, so you can return with a clear mind and refreshed energy.
8) Traditional wisdom comes in handy if there is awareness on it.
9) The ‘disability dimension’ is missing in existing disaster management training and capacity buildingprogrammes, and there are few attempts to design special programmes meant to meet disabilityrequirements. Many persons with disabilities do not know how to manage their needs duringa disaster. Implementing agencies of disaster management programmes do not understand howto deal with disability needs, as there is little knowledge of disability issues. This must receivedue attention.
10) Another very important feature, which can arrest some of the constraints in relief process istraining, not just of relief workers and volunteers, but also of people with special needs.
DID YOU KNOW?
To be effective, the training regime for disaster response will have to take care of thefollowing broad categories of courses:
i) Basic course for first responders of all NDRF Battalions.
ii) Additional Nuclear Biological and Chemical (NBC) Module for basic training offirst responders of NBC Battalions of NDRF.
iii) Orientation course for first responders of state disaster response units of the states.
iv) Basic course for medical personnel & para-medics of NDRF Battalions.
v) Advanced courses in response methodologies for different disaster situations, namely,Collapsed Structure Search and Rescue (CSSR); Medical First Response (MFR);
82
flood, cyclone & water rescue; landslides, avalanches and mountain rescue; andNBC emergencies.
vi) Training of trainers’ courses (for regular and master trainers separately) in specializedresponse methodologies for different disaster situations, for the faculties of NDRFinstitutions.
vii) Training of trainers’ course in disaster response in general, for the traininginstitutions of state governments / central police forces / other concerned centralgovernment organizations.
viii) Training courses in search and rescue for dogs and dog handlers.
ix) Equipment Maintenance Course.
x) Joint Staff Courses for senior and middle-level officers of NDRF and states.
xi) Modules of day-to-day training for personnel of NDRF battalions.
In future, the key to efficient disaster response will depend primarily on effectiveness oftraining and re-training of Specialized Disaster Response Forces. With this vision, adetailed “Training Regime for Disaster Response” has been prepared by NDMA/NDRFidentifying the specific disaster response training courses and devising a unified, structuredand uniform course module as well as syllabus for these training courses. The propositionbehind a unified, structured, uniform course module and syllabus is that first the entireNDRF battalions will successfully attain these courses, and subsequently the StateDisaster Response Force (SDRF) and other stakeholders will be trained on the samelines. The need for uniformly structured course module emerged out of the fact that ifall the NDRF battalions and other ‘first responders’ undergo the same training exercise,the coordination between different stakeholders would be expedient and well-planned atthe time of any major disaster where different NDRF battalions, SDRF battalions andother stakeholders will be working together.
83
1.9 DO’S AND DON’TS
Source: Google Images/Seeker401.wordpress.com
FLOODS
DO’s DON’TS
Tune to your local radio for warnings and advice.
Move vehicles, equipment, garbage, chemicals, old persons, children, pregnant women etc., to higher and safe places.
Disconnect all electrical appliances. Turn off electricity and gas before
you leave the house. Collect your survival kit or basic
essentials before leaving your house.
Don’t allow children to play in, or near flood waters.
Never wander around in a flooded area. Don’t drive into water of unknown depth
and current. Don’t eat food, which is affected by
floodwater.
84
Source: Cyclone Devastation/Google Images
CYCLONES
DO’s DON’TS Stay indoors and take shelter in the
strongest part of your house. Listen to the radio and follow
instructions. Find some kind of shelter if you are
caught in the open. Disconnect all electrical appliances
and turn off gas. Wear sturdy shoes and clothing for
protection. Collect your emergency survival kit
before evacuation.
Beware of fallen power lines, damaged bridges and structures. Don't go near them.
Pay attention to all warnings and don’t go near the sea.
If you have to evacuate, don’t return until advised.
85
Source: Disaster Relief/anandcharity.com
EARTHQUAKES
DO’s DON’TS
Keep away from old, tall or detached buildings, electricity wires, slopes and walls, which are liable to collapse.
Stop the vehicle away from buildings, walls, slopes, electricity wires and cables.
Leave your badly damaged house immediately.
Collect your emergency kit or water containers, food items and ordinary and special medicines (especially for persons with heart complaints, diabetes etc).
Don’t panic to rush to the doors or exits; never use the lift.
Keep away from broken windows, mirrors, chimneys and furniture.
Avoid places where there are loose electric wires, and do not touch any metal object in contact with them.
Don’t re-enter badly damaged buildings and don’t go near damaged structures.
86
Source: agricrop.nic.in/d...
DROUGHTS
DO’s DON’TS
Consume food as per your basic requirement.
Ration food and water as per the needs of family members.
Take temporary shelter where water is available.
Save water and also stock it. Seek alternate cropping/dryland farming. Contact nearest Agriculture Office.
Don’t work in extreme heat anywhere. Don’t waste water anywhere. Don’t leave children or cattle alone
outdoors. Don’t depend on only agriculture-
based occupations.
87
REFERENCES
Blake, R.R, H. Shepherd and J.S Mouton, 1964, Managing Inter-Group Conflict in Industry, GulfPublishing, Houston.Building Materials and Technology Promotion Council (BMTPC), 1999-2000, Ministry of Urban andPoverty Alleviation, Government of India.Carter, W. Nick, 1991, Disaster Management: A Disaster Manager’s Handbook, AsianDevelopment Bank, Manila.Dhameja, Alka, 2001, “Droughts and Foods: A Case for Dying Wisdom” in Pardeep Sahni et al.(Eds.), Disaster Mitigation: Experiences and Reflections, Prentice-Hall of India, New Delhi.Dhameja, Alka, 2003, “Disaster Risk Reduction through Disaster-Resistant Construction Techniques”in Pardeep Sahni and Madhavi Malalgoda Aryabandhu (Eds.), Disaster Risk Reduction in SouthAsia, Prentice-Hall of India, New Delhi.Dhameja, Alka, 2006, “Rehabilitation and Reconstruction” (Unit 15) in Masters Programme in PublicAdministration, MPA-018, Disaster Management, Faculty of Public Administration, School of SocialSciences (SOSS), Indira Gandhi National Open University (IGNOU).Dhameja, Alka, 2011, “Building Earthquake Resilient Communities” in Demond Shondell Miller andJason David Rivera, Community Disaster Recovery and Resiliency, CRC Press, New York.Dixit, Manoj, 2006, “The Philosophy of Coping with Disasters” (Unit 13) and “Dealing with Victims’Psychology” (Unit 14) in MPA-007, Rehabilitation, Reconstruction and Recovery, Post-GraduateDiploma in Disaster Management (PGDDM), Faculty of Public Administration, SOSS, IGNOU.Goel, S.L., 2006, “Disaster Preparedness with Relevance to Housing, Infrastructure and Livestock”(Unit 5), and “Community Based Disaster Preparedness Plan” (Unit 6) in MPA-004, DisasterPreparedness, PGDDM, Faculty of Public Administration, SOSS, IGNOU.Gupta, Harsh K, 2003, Disaster Management, University Press, Hyderabad.High Powered Committee Report, 2001, “Building a Culture of Prevention”, Government of India(GoI) Ministry of Agriculture, New Delhi.Housing Urban Development Corporation (HUDCO), 2000, Guidelines for BuildingReconstructionin Cyclone Affected Areas in Orissa, GoI.Khan, Amir Ali, 2003, “Rehabilitation: Social and Economic Aspects” (Unit 26), “Disaster ResistantHouses and Reconstruction” (Unit 29) and “Retrofitting, Repairing and Strengthening of Houses” (Unit30) in Certificate Programme in Disaster Management (CDM-2), Disaster Management: Methodsand Techniques, SOSS, IGNOU.Kohli, Rajiv and Amir Ali Khan, 2003, “Drinking Water” (Unit 23), “Food and Nutrition” (Unit 24),and “Hygiene and Sanitation” (Unit 25) in CDM-2, Faculty of Public Administration, SOSS, IGNOU.Mathur, G.C, 1986, Housing in Disaster Prone Areas, ESCAP, New Delhi.Medury, Uma, 2001, “Coping with Disasters: A Community-Based Approach” in Pardeep Sahni, AlkaDhameja and Uma Medury (Eds.), Disaster Mitigation: Experiences and Reflections, Prentice-HallIndia, New Delhi.Medury, Uma and Alka Dhameja, 2005, “Rehabilitation of Cyclone Affected People” in Amita Singh(Ed.), Administrative Reforms, Towards Sustainable Practices, Sage, New Delhi.Misra, D.C., 2003, “Community Health During Disasters” (Unit 21) and “Emergency Health Operations”(Unit 22) in CDM-2, Faculty of Public Administration, SOSS, IGNOU.
88
National Disaster Management Authority (NDMA), April 2006, Guidelines for NIDM’s Functioning,NDMA, Government of India (GoI),National Disaster Management Authority, December 2006, Report on Revamping of Civil Defencein the Country, NDMA, GoI.National Disaster Management Authority, May 2007, Guidelines on Management of Earthquakes,GoI.National Disaster Management Authority, May 2007, Guidelines on Chemical (Industrial) Disasters,GoI.National Disaster Management Authority, August 2007, Guidelines on Preparationof State DisasterManagement Plans, GoI.National Disaster Management Authority, November 2007, Guidelines on Medical Preparednessand Mass Casualty Management, GoI.National Disaster Management Authority, January 2008, Guidelines on Management of Floods,GoI.National Disaster Management Authority, April 2008, Report on Pandemic Preparedness BeyondHealth, GoI.National Disaster Management Authority, April 2008, Guidelines on Management of Cyclones, GoI.National Disaster Management Authority, August 2008, Guidelines on Management of BiologicalDisasters, GoI.National Disaster Management Authority,February 2009, Guidelines on Management of Nuclearand Radiological Emergencies (Unclassified Part I), GoINational Disaster Management Authority, March 2009, Report on Guidelines for Disaster ResponseTraining at the Centre & States – NDRF & SDRFs, GoI.National Disaster Management Authority, June 2009, Guidelines on Management of Landslidesand Snow Avalanches, GoI.National Disaster Management Authority, August.2009, Guidelines on Chemical (Terrorism) Disasters,GoI.National Disaster Management Authority, January.2010, Guidelines on Psycho-Social and MentalHealth Care, GoI.National Disaster Management Authority, July 2010, Guidelines on Incident Response System, GoI.National Disaster Management Authority, July 2010, Report on Strengthening of Safety and Securityfor Transportation of POL Tankers, GoI.National Disaster Management Authority , July 2010, Report on the Threat to Municipal WaterSupply and Water Reservoirs, GoI.National Disaster Management Authority, August 2010, Report on Mechanism to Detect, Preventand Respond to Radiological Emergencies in India, GoI.National Disaster Management Authority, August 2010, Report on Management of Dead in theAftermath of Disaster,GoI.National Disaster Management Authority, August 2010, Report on Minimum Standards of Relief on‘Food in Relief Camps’, ‘Sanitation and Hygiene in Disaster Relief ’, ‘Water Supply in ReliefCamps’, ‘Medical Cover in Relief Camps’, GoI.
88
89
National Disaster Management Authority, September 2010, Guidelines on Management of Tsunami,GoI.National Disaster Management Authority, September 2010, Guidelines on Management of Drought,GoI.National Disaster Management Authority, September 2010, Report on Role of NGOs in DisasterManagement, GoI.National Disaster Management Authority ,September 2010, Guidelines on Management of UrbanFlooding,GoI.Orissa State Disaster Mitigation Authority, 2010, ‘The Concept of Earthquake Resistant Designsfor Construction of Buildings’, Government of Orissa. Bhubaneshwar (BMTPC Material Reprinted).Regional Report on the 7th Annual Regional Meeting on Climate Justice for Realization of MDGs:Southern Pespectives and Voices, 2008, ‘Climate Change: The Phenomenon, Causes and Impacts’.One World South Asia, Mexico.Rupam, 2006, “Human Behaviour” (Unit 9), in MPA-005, Disaster Response, PGDDM, Faculty ofPublic Administration, SOSS, IGNOU.Saha, Subir, 2006, “Nature of Damage to Houses and Infrastructure Due to Disasters” (Unit 9) and“Disaster Resistant House Construction” (Unit 10) in MPA-007, PGDDM, Faculty of PublicAdministration, SOSS, IGNOU.Sahni, Pardeep and Alka Dhameja, 2004, “Role of Disaster Education and Training in DisasterManagement”, Background Material for Workshop on Disaster Management in Agriculture, NationalAcademy of Agricultural Sciences, New Delhi, February.Sharma, Anshu, 2006, “Reconstruction Rehabilitation as Means of Development” (Unit 1), “DamageAssessment” (Unit 2), MPA-007, PGDDM, Faculty of Public Administration, SOSS, IGNOU.Sharma, Vinod K. (Ed.), 1999, Disaster Management, Indian Institute of Public Administration, NewDelhi.Swaminathan, M.S, 2005, “Beyond Tsunami: An Agenda for Action” in TheHindu, Jan. 17.Teachers Handbook on Disaster Risk Reduction (DRR), 2005, Reducing Vulnerability of SchoolChildren to Earthquakes in Asia-Pacific Region, Sustainable Environment and Ecological DevelopmentSociety, Shimla, India.Training Manual, 2002-2009, “Building PRI Capacities for Disaster Preparedness”, United NationalDevelopment Programme, India.Training Module for Non-Governmental Organizations, Disaster Risk Management, (2002-2007).An Initiative under the GoI-UNDP Disaster Risk Management (DRM) Programme.Training of Trainers Manual, 2008, “Gender Mainstreaming in Disaster Risk Management”, GoI-UNDP Disaster Risk Management Programme, June.United Nations Development Programme,1991, Disaster Management Manual, December.United Nations Development Programme India, (2002-2009), “Good Practices in Community BasedDisaster Risk Management”, GOI- UNDP Disaster Risk Management Programme.Wikipedia, The Free Encyclopedia, Article Discussions.Photo References: Google Images, Yahoo Image Search Results, Rediffmail.com Images.