Jammu & Kashmir

Disaster Management Plan

2022-23
 CHAPTER 1: INTRODUCTION

Background

The National Disaster Management Act, 2005 (DM Act 2005) lays down institutional
and coordination mechanism for effective Disaster Management (DM) at the National, State,
District and local levels. As mandated by DM Act 2005, the Government of India (GoI)
created a multi-tiered institutional system consisting of the National Disaster Management
Authority (NDMA) headed by the Hon’ble Prime Minister, the State Disaster Management
Authorities (JKDMAs) headed by the respective Hon’ble Chief Ministers in case of states
and UTs with legislative assembly & Hon’ble Lieutenant Governor in case of Union
Territory of Delhi and the District Disaster Management Authorities (DDMAs) headed by the
District Collectors and co-chaired by Chairpersons of the local bodies. These bodies have
been set up to facilitate a paradigm shift from the hitherto relief-centric approach to a more
proactive, holistic and integrated approach of strengthening disaster preparedness, mitigation,
and emergency response. The institutional arrangements have been set up consistent with the
paradigm shift from the relief-centric approach of the past to a proactive, holistic and
integrated approach for Disaster Risk Reduction (DRR) by way of strengthening disaster,
mitigation, preparedness and response.

The DM Act 2005 defines disaster as;

“Disaster means a catastrophe, mishap, calamity or grave occurrence in any area,
arising from natural or manmade causes, or by accident or negligence which results in
substantial loss of life or human suffering or damage to, and destruction of, property, or
damage to, or degradation of, environment, and is of such a nature or magnitude as to be
beyond the coping capacity of the community of the affected area."
The losses and impacts that characterize disasters usually have much to do with the
exposure, vulnerability and coping capacity of people and places as they do with the severity
of the hazard event. Therefore, there is no such thing as a natural disaster, but disasters often
follow natural hazards.
Need for the Plan
As per Section 23 (1) of The Disaster Management Act, 2005, “There shall be a State
Plan1 for disaster management for every State to be called State Disaster Management Plan”.
Apart from these statutory requirements, the hazard profile and disaster history of the state

1 “State Plan” means the plan for disaster management for the whole of the State prepared under section 23.
demands for a comprehensive state disaster management plan to be in place for coordinated
and streamlined management of disaster in the state.
Disaster Risk Reduction Post-2015

Post 2015, there has been a significant shift from the approach of Managing Disasters
to Managing Risk. The three landmark global agreements viz. – the Sendai Framework for
Disaster Risk Reduction 2015-30 (SFDRR), Sustainable Development Goals (SDG) and the
Paris Agreement (CoP 21) set the stage for future global action on Disaster Risk Reduction
(DRR), sustainable development and climate change.

Sendai Framework of Actions for Disaster Risk Reduction 2015-2030

The Sendai Framework for Disaster Risk Reduction 2015-2030 (SFDRR) was
adopted at the Third United Nations World Conference on Disaster Risk Reduction held in
Sendai, Japan in March 2015. The SFDRR is document which outlines four priorities for
action to achieve 7 targets, which in turn would lead to one outcome that is substantial
reduction of disaster risk and losses in lives, livelihoods, health, economy of persons,
businesses, communities and countries. India is a signatory to the Sendai Framework for a
15-year, voluntary, non-binding agreement which recognizes that the State has the primary
role to reduce disaster risk, but that responsibility should be shared with other stakeholders
including local government, the private sector and other stakeholders.
The Four priorities of actions are:-
1. Understanding Disaster Risk
2. Strengthening Disaster Risk Governance to Manage Disaster Risk
3. Investing in Disaster Risk Reduction for Resilience
4. Enhancing Disaster Preparedness for Effective Response and to ‘Build Back Better’
in Recovery, Rehabilitation and Reconstruction
The seven global targets are:-

A. Substantially reduce global disaster mortality by 2030, aiming to lower the average
per 100,000 global mortality rate in the decade 2020-2030 compared to the period
2005-2015
B. Substantially reduce the number of affected people globally by 2030, aiming to lower
the average global figure per 100,000 in the decade 2020-2030 compared to the period
2005-2015
 C. Reduce direct disaster economic loss in relation to global gross domestic product
(GDP) by 2030
D. Substantially reduce disaster damage to critical infrastructure and disruption of basic
services, among them health and educational facilities, including through developing
their resilience by 2030
E. Substantially increase the number of countries with national and local disaster risk
reduction strategies by 2020
F. Substantially enhance international cooperation to developing countries through
adequate and sustainable support to complement their national actions for
implementation of this Framework by 2030
G. Substantially increase the availability of and access to multi-hazard early warning
systems and disaster risk information and assessments to the people by 2030
Sustainable Developmental Goals

The Sustainable Development Goals (SDGs), also known as the Global Goals, were
adopted by all United Nations Member States in September 2015 as a universal call to action
to end poverty, protect the planet and ensure that all people enjoy peace and prosperity by
2030.The 17 SDGs are integrated—that is, they recognize that action in one area will affect
outcomes in others, and that development must balance social, economic and environmental
sustainability. They recognize that ending poverty and other deprivations must go hand-in-
hand with strategies that improve health and education, reduce inequality, and spur economic
growth – all while tackling climate change and working to preserve our oceans and forests. In
order to make the 2030 Agenda a reality, broad ownership of the SDGs must translate into a
strong commitment by all stakeholders to implement the global goals.

Paris Agreement on Climate Change Action and Disaster Risk Reduction (CoP 21)

The CoP 21 or the Paris Climate Conference held in December, 2015 led to a new
international climate agreement, applicable to all countries, aiming at “holding the increase in
the global average temperature to well below 2°C above pre-industrial levels and pursuing
efforts to limit the temperature increase to 1.5°C above pre -industrial levels, recognizing that
this would significantly reduce the risks and impacts of climate change”. The Paris
Agreement recognized the need loss and damage associated with the effects of climate
change. The agreement identified areas of cooperation central to DRR and called for
investments to address the underlying risk drivers associated with rising greenhouse gas
(GHG) emission levels and to inspire innovation and low-carbon growth

Prime Minister’s 10 Point Agenda towards Disaster Risk Reduction

The Prime Minister, Shri Narendra Modi, listed a Ten -Point Agenda in his inaugural
speech at the Asian Ministerial Conference on Disaster Risk Reduction 2016, held in New
Delhi during November 2016 (AMCDRR), which has also been incorporated in the SDMP.
The ten key elements consist of the following:
1. All development sectors to imbibe principles of Disaster Risk Management
2. Work towards risk coverage for all-starting from poor households to small and
medium enterprises to multi-national corporations to nation states.
3. Encourage greater involvement and leadership of women in disaster risk management
4. Invest in risk mapping globally related to hazards such as earthquakes based on
widely accepted standards and parameters.
5. Leverage technology to enhance the efficiency of disaster risk management efforts.
6. Develop a network of universities to work on disaster issues.
7. Utilize the opportunities provided by social media and mobile technologies.
8. Build on local capacity and initiative. Response agencies need to interact with the
communities and make them familiar with the essential drill of disaster response.
9. Ensuring that disaster learning is well documented.
10. Bring about greater cohesion in international response to disasters.
The description of the Ten Point of Agenda for Disaster Risk Reduction is as below:
S No. Agenda Point
1 All development sectors must imbibe the principles of disaster risk management
Explanation
Development and Disasters are two sides of a coin. While a planned development
can reduce the risks of disasters, the absence of proper planning can aggravate them.
It is, therefore, essential to imbibe disaster risk reduction approach in all
development schemes. Development should focus on reducing disaster risks and not
create them.
2 Risk coverage must include all, starting from poor households to SMEs to
multi-national corporations to nation states
Explanation
 Disasters result in loss of lives and damages to properties and assets. Those who
survive face the challenges of their rehabilitation. This applies to all from poor
households to SMEs to multi-nationals.
It is necessary to think big and innovatively to widen the risk insurance cover. Some
bold steps have been taken to ensure financial inclusion and risk insurance for the
poorest.
Government has some schemes having risk coverage in consideration which include
Jan Dhan Yojana, Suraksha Bima Yojana, Fasal Bima Yojana (crop insurance) etc.
There is a need for:
▪ Development of disaster insurance mechanisms for home-owners in disaster
prone area
▪ Development of parametric insurance for weather and climate related
disasters
▪ Develop insurance products to cover major infrastructure projects
3 Women’s leadership and greater involvement should be central to disaster risk
management
Explanation
It is necessary to encourage greater involvement and leadership of women in disaster
risk management to support special needs of women affected by disasters. Women
are generally seen as vulnerable to disasters. But women can play an important role
in disaster risk reduction at the household, society, community and beyond. We need
large number of women volunteers, engineers, masons and building artisans to
participate in post-disaster reconstruction and promote women self-help groups
which can assist in livelihood recovery. There is a need to include women in NDRF
and SDRF, and to train elected women representatives at the local level under
development.
4 Invest in risk mapping globally to improve global understanding of Nature and
disaster risks
Explanation
Disasters know no boundary. Many natural hazards impact across countries, so there
is a need for better understanding of such risks at global level. With a shared
understanding of the nature and severity of disaster risks globally, their impacts can
be mitigated with better planning and preparedness. This requires undertaking multi-
 hazard risk assessments and developing maps for all major hazards in a standardized
format to facilitate disaster risk reduction.
5 Leverage technology to enhance the efficiency of disaster risk management
efforts
Explanation
Efforts must be made to leverage technology to enhance the efficiency of our disaster
risk management efforts. This requires use of technology in resource planning, e.g.,
India Disaster Resources Network (IDRN), creation of e-platform to map expertise
and resources on highly specialized aspects of disaster response and to increase the
efficacy of early warning systems for all major hazards through the application of
technology.
6 Develop a network of universities to work on disaster-related issues
Explanation
It will be helpful to develop a network of universities and academic institutions to
work on disaster-related aspects. As part of this network, different universities could
specialize in multi-disciplinary research on disaster issues most relevant to them.
7 Utilise the opportunities provided by social media and mobile technologies for
disaster risk reduction
Explanation
Utilize the opportunities provided by social media and mobile technologies to
develop a social media strategy for Disaster Risk Management in the country. Social
media is transforming disaster response. It is helping response agencies in quickly
organizing themselves and enabling citizens to connect more easily with authorities.
8 Build on local capacity and initiative to enhance disaster risk reduction
Explanation
Disaster management must build on local capabilities and initiatives. The task of
disaster risk management, particularly in rapidly growing economies, is so huge that
formal institutions of the state can at best be instrumental in creating the enabling
conditions. Specific actions have to be designed and implemented locally. Such
efforts reduce risk and create opportunities for local development and sustainable
livelihoods. Localization of disaster risk reduction will also ensure that good use is
made of the traditional best practices and indigenous knowledge.
9 Make use of every opportunity to learn from disasters and, to achieve that,
 there must be studies on the lessons after every disaster
Explanation
Ensure that the opportunity to learn from a disaster is not wasted. After every
disaster there is a need to undertake research studies to understand the best practices
and learn lessons to improve the policy and disaster governance.
10 Bring about greater cohesion in international response to disasters
Explanation
Disasters’ impacts are huge and so are the needs to be prepared for and respond
strategically. Across the globe, countries face disasters similar in nature and
sometimes across the countries. It requires coordinated and unified response by
affected countries. Pre-disaster planning and preparedness can result in effective and
timely response, hence it is important to bring about greater cohesion in international
response to disasters. International forums and protocols should be used in
addressing disaster risks for effective and coordinated response.
Source: NDMA
Vision

Making disaster resilient Jammu & Kashmir by enhancing the capacity of all
stakeholders to respond to disasters in a planned way to minimize loss of lives, livelihoods
and economic loss in different forms including critical infrastructure, basic services including
health and educational facilities along with social, cultural & environmental loss.

Objectives of the Plan

i) To assess various hazard, vulnerability, capacity and risk associated with the state.
ii) To lay down various measures and guidelines for prevention and mitigation.
iii) To lay down preparedness measures for all stakeholders.
iv) To build the capacity of all stakeholders in the state to cope with the disasters and
promote community-based disaster management.
v) To provide clarity on roles and responsibilities for all stakeholders concerned with
various phases of disaster management.
vi) To ensure co-ordination and promote productive partnership with all other agencies
related to disaster management.
vii) To mainstream disaster management concerns into the developmental planning
process.
viii) Ensuring DRM is socially inclusive, gender sensitive and empowering.
 ix) Strengthen efforts to mainstream DRR into water management and reduce the likely
impacts of water-related hazards.
x) To develop efficient, streamlined and rapid disaster response and relief mechanism in
the state.
xi) Prevent disasters and achieve substantial reduction of disaster risk and losses in lives,
livelihoods, health, and assets (economic, physical, social, cultural and
environmental).
xii) Invest in disaster risk reduction for resilience through structural, non-structural and
financial measures, as well as comprehensive capacity development.
xiii) To commence recovery programme as an opportunity to build back better in case of a
future disaster by incorporating community in the programme.
xiv) Promote the implementation of integrated and inclusive economic, structural, legal,
and social, health, cultural, educational, environmental, technological, political and
institutional measures to prevent and reduce hazard exposure and vulnerabilities to
disaster.
xv) Strengthen disaster risk modeling, assessment, mapping, monitoring and multi-hazard
early warning systems.
xvi) Effective use of science, technology and traditional knowledge in all aspects of DRM.
Plan Activation
The disaster response structure will be activated on the receipt of disaster warning/on
the occurrence of the disaster. The occurrence of disaster may be reported by the concern
monitoring authority to the State Executive Committee (SEC) JKDMA by the fastest means.
The State Executive Committee (SEC) JKDMA will activate all departments for emergency
response including the State EOC, District EOCs and State Disaster Response Force (SDRF).
Also, they will issue instructions to include the following details:

• Exact quantum of resources (in terms of manpower, equipment’s and essential items
from key departments/stakeholders) that is required.
• The type of assistance to be provided.
• The time limit within which assistance is needed.
• Details of other Task/Response Forces through which coordination should take place.

The State EOC and other control rooms at the State level as well as district control
rooms should be activated with full strength. The State Government may publish a
notification in the official gazette declaring such areas to be disaster-affected area under DM
Act 2005 (Section 22 (2) (a-q)) Functions of the State Executive Committee.
Once the situation is totally controlled and normalcy is restored, the SEC declares End
of Emergency Response and issues instructions to withdraw the staff deployed in emergency
duties.

Plan Implementation
The DM Act 2005 makes provisions for the implementation of the disaster
management plans. Section 23 (4) states that The State Plan shall include,— (a) the
vulnerability of different parts of the State to different forms of disasters; (b) the measures to
be adopted for prevention and mitigation of disasters; (c) the manner in which the mitigation
measures shall be integrated with the development plans and projects; (d) the capacity-
building and preparedness measures to be taken; (e) the roles and responsibilities of each
Department of the Government of the State in relation to the measures specified in clauses
(b), (c) and (d) above; (f) the roles and responsibilities of different Departments of the
Government of the State in responding to any threatening disaster situation or disaster. The
Section 18 (2) of DM Act 2005 mandates that every Department of the Government must
prepare a departmental Disaster Management Plan in accordance with the SDMP.
 CHAPTER 2: PROFILE

Jammu and Kashmir - An Overview

The UT of Jammu and Kashmir covers the northern most extremity of India and lies
between latitudes 32º.15’ to 37º.05’ North and longitudes 72º.35’ to 83º.20’ East2. The UT
occupies a strategic position in India with borders touching Pakistan in the west, UT of
Ladakh in the north & east and the States of Punjab and Himachal Pradesh in the south. The
UT has a geographical area of 42,241 sq. kms.
As per the Census 2011, the UT has a total population of 1,22,67,013, comprising of
64,83,906 males and 57,83,107 females. The UT is divided into 20 Districts, comprising of
49 Sub-divisions, 207 Tehsils, 520 Nayabats, 1632 Patwar Halqa3. There are 6860 revenue
villages in the State.
The economy is mostly agriculture-based where majority of people are directly or
indirectly dependent on it. The people’s prosperity or otherwise depends on the success or
failure of the agriculture sector.

Figure 2.1 District Map of Jammu and Kashmir

2
J&K history by Khaleel Publications.
3
http://jkrevenue.nic.in
Topography

Jammu and Kashmir is home to several valleys such as the Kashmir Valley, Tawi
Valley, Chenab Valley, Poonch Valley, Sind Valley and Lidder Valley. The Kashmir valley
is 100 km (62 mi.) wide and 15,520.3 sq.km. (5,992.4 sq.mi.) in area. The Himalayas divide
the Kashmir valley from the Tibetan plateau while the Pir Panjal range, which encloses the
valley from the west and the south, separates it from the Great Plains of northern
India. Along the northeastern flank of the Valley runs the main range of the Himalayas. This
valley has an average height of 1,850 metres (6,070 ft) above sea-level, but the surrounding
Pir Panjal range has an average elevation of 10,000 feet (3,000 m). The Jhelum River is the
major Himalayan River which flows through the Kashmir
valley. The Tawi, Ravi and Chenab are the other important rivers flowing through the region.
Agriculture

Agriculture constitutes an important sector of the state economy as around 70 percent

of the population of J&K derives greater part of their income directly or indirectly from this
sector. Economy of J&K continues to be predominantly agrarian as 49 percent of the total
working force with 42 percent as cultivators and 7 percent as agriculture labourers depend
directly on agriculture for their livelihood.
The contribution of Agriculture sector towards Gross State Domestic Product (GSDP)
has remained constant which is indication of onset of declining trend of the sector. The
production of three major crops paddy, maize and wheat in J&K state is more than 90% of
the total food grain production of all crops. The rest is shared by other cereals and pulses.
Irrigation

Irrigation is an essential input of agriculture and is practiced in all parts of the world
where rainfall does not provide enough ground moisture. A major constraint to the
development of agriculture in Jammu and Kashmir is the fact that only 50 percent of the
ultimate irrigation potential of the state has been harnessed. The ultimate irrigation potential
in Jammu and Kashmir has been assessed at 1358 thousand hectare, which includes 250
thousand hectare to be developed through major and medium irrigation and 1108 thousand
hectare through minor irrigation.
Horticulture

Jammu and Kashmir is well known for its horticulture produce both in India and
abroad. The state offers good scope for cultivation of horticultural crops, covering a variety
of temperate fruits like apple, pear, peach, plum, apricot, almond, cherry and subtropical
fruits like mango, guava, citrus litchi, phalsa and Ber etc, besides medicinal and aromatic
plants, floriculture, mushroom, plantation crops and vegetables. Apart from this, well known
spices like saffron and black zeera are also cultivated in some pockets of the state. Its
importance is visualized by its contribution to the state's economy which is estimated to be 7-
8 per cent. Almost 45 percent economic returns in agriculture sector are accounted for by
horticulture produce. 7 lakh families comprising of 33 lakh people are involved in
horticulture trade.
Floriculture

Floriculture sector has been identified as the most focused segment of horticulture.
There is much more income to farmers from flower cultivation due to growing demand for
flowers in domestic and foreign markets. To promote this segment floriculture nurseries have
been developed where ornamental and medicinal plants are produced, besides the seed
multiplication programmes of flower seeds. Floriculture department helps in produce of more
than 5-6 lakh seedlings of different kinds of flowers/ornamental pants not only to meet its
own requirements but also sells the seedlings to the flower lovers against cash payment and
earns revenue of about 8 lakh on an average, per annum on this account.
Forests

The state has 20230 sq.km. under forest area constituting about 19.95 percent of total
geographical area of 101387 sq.km. on this side of actual line of control. Out of this, area
under reserved forest is 2551 sq.km. which accounts for 12.61 percent of total forest area,
protected forest forms 87.21 percent with an area of 17643 sq.km. and the remaining 36
sq.km. (0.18 per cent) are classified4. Looking at division-wise distribution of forest cover
8128 sq.km. are in Kashmir valley, 12066 sq.km. in Jammu division and 36 sq.km. in Ladakh
region constituting 50.97 per cent, 45.89 percent and 0.06 percent respectively of the
geographical area. Per capita forest area accounts for 0.17 percenthectare as compared to 0.07
hectare at the national level.
Species-wise forest area reveals 90.68 percent under coniferous with 5.32 percent
Deodar, 9.02 percent Chir, 9.73 percent Kail, 16.81 percent Fir and 49.80 percent others. 9.32
percent forest cover is claimed by non-coniferous non-commercial reserves.

4
JK Economic Survey 2017-18
Industry

In order to achieve a self-sustaining economy with continued higher levels of

investment, rapid rate of increase on income and employment there is no option but to go for
industrialization. The new State Industrial Policy 2016 aims to attract substantial investment
in industry for production of goods and services and employment generation through optimal
utilization of the available resources including human resources. Concurrently the policy also
gives attention to the traditional cottage industries namely handicrafts and handlooms to
ensure economic upliftment of the artisans, weavers and traders in this sector in which age
old traditions and craftsmanship is available in the State.
The vision of the policy is to achieve sustainable, equitable, environment friendly and
balance industrial growth leading to creation of employment opportunities for the local
skilled and educated youth, income generation and overall economic development of the
state.
Power

The estimated hydro power potential of the State is 20,000 Megawatts (MWs), of
which 16475 MWs have been identified. Out of the identified potential, only 3263.46 MWs
or 20 percent have been exploited so far, consisting of 1211.96 MWs in State Sector from 20
power projects and 2009 MWs under Central Sector and 42.5 MW in private sector.

Transport

Roads: The state is connected to the rest of the country through just one highway
(NH1A), 400km stretch (approx.) maintained by Border Roads Organization (BRO) of India.
As Railway network of the State is in infancy stage, this has rendered the State totally
dependent on road connectivity which provides links to the remote areas of the State. The
Jammu-Srinagar National Highway (NH1A) is considered to be the most expensive road for
maintenance in the world.
At the end of March 2010, road length maintained by all the departments in the State
was 41873 km, of which 25578 kms were surfaced and remaining 16,295 km un-surfaced.
The road density (road length per 100 sq. km of area) of the State thus works out to be 41.30
km against the National Average of 104.6 km. With this road density, J&K is among the
States with lowest road density in the country, thus hampering opening up of the economy
and adversely affecting delivery of public service to the people. Moreover, there are huge
inter-districts variations in the rural road density.
Railways: Because of the difficult terrain Railway network has not developed as in
other parts of the Country. At present Jammu is the Rail head of the J&K and the line has
been extended upto District Katra. The work on Katra-Qazigund rail line is under progress
and intra rail link between Qazigund to Baramulla is complete. However, the railway link of
119 km from Baramulla to Qazigund has been thrown open and 148 km railway line is under
construction.
Aviation: There are two major airports in the UT of J&K providing aerial transport
among two regions of the J&K and rest of the country. Out of the two Srinagar airport has
been upgraded as international airport named as Sheikh-ul-Alam airport, while the facilities
at Jammu airport are among being upgraded.
Tourism

J&K is a premier as well as established tourist destination in the country. Kashmir

valley in the lap of Himalayas has many internationally acclaimed tourist destinations. The
lush green tourist resorts of Gulmarg, Pahalgam, Yousmarg, Kokernag and golden meadows
of Sonamarg have remained an attraction for the centuries. Hospitality and Tourism are in
fact part of the valley’s tradition, culture, and now more importantly, economy. Jammu
region is attracting a large number of pilgrim tourists and the important destination has been
the Mata Vaishno Devi Shrine. The other places are Shiv Khori, Sukhrala Mata and Shahdra
Sharief. Newly identified and emerging destinations in Jammu are Bhaderwah, Rajouri and
Poonch.
The tourist arrivals during the last 6 years are given hereunder:-
Tourists arrival (ending Oct 2017)
Kashmir Valley Jammu Ladakh Total
Year Amarnath Domestic / (Mata Vaishno Domestic
Ji Foreign Devi Ji) / Foreign
2012 621000 1308765 10394000 1787750 12502515
2013 353969 1171130 9287871 137650 10950620
2014 372909 1167618 7803193 181301 9525021
2015 352771 927815 7776604 146501 8434402
2016 220490 1211230 6823540 179142 8434402
2017(end Oct) 260003 1050480 5739632 259170 7309285
Socio-demographic Contexts and Vulnerability

The total area (42,241 sq. km) of the UT is demarcated into 20 Districts having 207
Tehsils (out of which 10 are entirely rural). There are 320 Rural Development Blocks, which
are further delimited into 4128 Panchayats, 86 towns and 6551 villages (Census 2011) (Table
2.1).
Table 2.1 Administrative Structure for Jammu and Kashmir

Administrative District 2
Total Number of District 20
Jammu Province 10
Kashmir Province 10
Total Tehsil 207
Total Nayabats 520
C.D Blocks 320
Panchayats 4128
Total Villages 6860
As per the Census 2011, the UT has a total population of 1,22,67,013. The Census
operation of 2011 has shown an increase of 24,79,009 population over the census conducted
in 2001, indicating an average addition of around two lakh people every year. The Population
of Jammu and Kashmir stands at about 12 million, making it one of the most populated UTs
in India (Census 2011). The UT of Jammu and Kashmir has experienced population growth
during 2001 – 2011. Kulgam, Shopian, Budgam, Poonch, Anantnag and Pulwama are the
districts that have undergone an increase in population density. Population of these high
density districts are susceptible to hazard as they fall under the high risk zone (Figure 2.2).
 Figure 2.2 Population Density of Jammu and Kashmir 2011

Apart from the social consequences of terrorism and militancy, the UT is facing many
issues which are preventing it from prospering as a state with sound human development
indicators. For instance, the percentage of population below poverty line 2017 – 18 was
10.35. According to Directorate of Economics and Statistics of Jammu and Kashmir for the
year 2017 – 2018, 10-12 % of population was under BPL (Figure 2.3). Srinagar has the least
percentage of population under BPL while Bandipora, Kupwara, Poonch Reasi, Ramban and
Kishtwar have the highest percentage of population living under BPL. The BPL distribution
implies that there is a greater probability that population in these districts are socially
vulnerable to disasters.
 Figure 2.3 Percentages of People Living below the Poverty Line

The literacy rate in the UT is about 67.16 % (Census 2011). Literacy Rate in 1961
was only 12.95% which has increased over a period of 50 years to 67.16 % in 2011.
However, the corresponding figure as per previous census held in 2001 was 55.52 %. The
national literacy rate stands at 74.04% as per census 2011. The literacy rate is one of the
lowest (67.16) in the country, with men having a literacy rate of 76.75 %, while female
literacy is a meager 49.12 %. Between 2001 and 2008 there has been an improvement in the
literacy rate in Kupwara, Baramulla, Rajouri, Kathua, Kulgam and Doda districts (Figure
2.4). Though a few districts showed improvement in literacy rate, district of Shopian and
Kishtwar has undergone decrease in literacy rate. Lack of qualified teachers and inadequate
school facilities are possible factors explaining this decline.
 Figure 2.4 Literacy Rate

Some of the crucial statistics that hint at social vulnerabilities (though not exclusive)
are described below. Sex Ratio in Jammu and Kashmir is 883 i.e. for each 1000 male, which
is below national average of 940 as per the 2011 census (Figure 2.5). Children (aged 0-6)
population is 18% of the total population. The child sex ratio was 941 in 2001 have decreased
considerably to 859 in the 2011 census.
 Figure 2.5 District wise Sex Ratio of Jammu and Kashmir

The maternal mortality rate is also quite high in the UT when compared to the
national average. The maternal mortality rate varies across districts every year and is quite
consistently high in the district of Baramulla, Kupwara, and Anantnag which is also
coincidently are districts with higher potential of natural hazards (Figure 2.6). In a similar
vein, the infant mortality rate in the districts requires considerable attention, if we are aiming
at developing strong disaster resilience (Figure 2.7).
 Figure 2.6 Maternal Mortality at District Level

The Infant Mortality Rate for the year 2020 is 32, while at national level, it is 30. The
proportion of births attended by skilled health personnel during the year 2007-08 was 58.6,
while at national level it was 52.3.

Figure 2.8 shows the Still Birth in the year 2009. It proves a point that institutional delivery
of maternal and neonatal health care needs to be strengthened.
 Figure 2.7 Infant Mortality at District Level

Figure 2.8 Still Births at District Level

Ethnic communities in Jammu and Kashmir are also vulnerable groups. The state
represents a mixed culture with ethnic composition of Kashmiris, Dongras, Rajputs,
Bakarwals and Gujjars. Bakarwals and Gujjars are the nomadic tribes who are predominant in
the state (Figure 2.9). They migrate seasonally and lease out land on crop sharing basis to
their neighbours. Majority of the communities in the remote regions of Jammu and Kashmir
and project affected populations are socially and economically backward (Figure 2.10). The
land use pattern and socio-economic standard of the above-mentioned ethnic communities in
the remote villages are remarkably different. The villages close to the road side have better
access to drinking water, telecommunication, roads, etc. On most occasions their source of
income are trade, tea stalls, restaurants, government jobs and casual labour. On the other
hand, the interior villages depend on agriculture for their livelihood. There is greater
dependency on natural resources and irrigation sources are mostly spring irrigation and nallah
irrigation supported by indigenous irrigation canals. These communities are also deprived of
basic facilities and amenities such as communications, drinking water, electricity, primary
health facilities etc. The quality of educational facilities is poor in these remote villages.
Schools are mostly of the primary and middle standard levels, which are poorly equipped and
inadequately staffed. Malnutrition, lack of sanitation facilities, poorly equipped health
facilities are the most prevalent issues among these backward communities.

As per the 2011 Census, majority of the SC and ST population are settled in Jammu
Division (Table 2.2).
Table 2.2 Scheduled Caste and Scheduled Tribe Population in Jammu and Kashmir (2011)

Administrative Scheduled Castes Population Scheduled Tribes Population

Division Person (2011) Person (2011)
JAMMU 917,724 810,800
KASHMIR 6,761 464,306
Figure 2.9 Distribution of Scheduled Tribe Population in Jammu and Kashmir

Figure 2.10 Distribution of Scheduled Caste Population in

Jammu and Kashmir
 The percentage of Rural and Urban population is given in Figure 2.11 and Figure 2.12
respectively. Most of the districts are characterized by a concentrated rural population and
economy.

Figure 2.11 Percentage of Rural Population in Jammu and

Kashmir
Figure 2.12 Percentage of Urban Population in Jammu and
Kashmir
 HAZARDS, RISK AND VULNERABILITY

The UT of Jammu and Kashmir is very distinct from the rest of the country with
respect to topography, climate, economy, social setting and strategic location. J&K is a multi-
hazard prone region with natural disasters like earthquakes, floods , landslides, avalanches,
high velocity winds, snow storms, besides manmade disasters including road accidents etc.
occurring in various parts of the state.
Table 2.3 gives the statistical information related to the number of deaths due to
natural hazards in the UT.
Table 2.3 Details of Human lives lost due to Natural Hazards during last five years.
S.No. Cause of Death No. of Deaths.
2016-17 2017-18 2018-19 2019-20 2020-21 Total
1. Avalanches 5 11 29 32 1 52
2. Cyclones 0 0 0 1 1 2
3. Cloud Burst 6 17 8 12 8 25
4. Flood 7 2 12 10 8 36
5. Hailstorm 0 0 2 0 0 1
6. Landslides 7 29 44 29 10 82
7. Others (notified 7 5 16 23 4 40
by States)
Total 32 64 111 107 32 238
Source: Compiled from the statistics received from Financial Commissioner Revenue, J&K
Some of the major hazards that happen or have the potential to occur can be
classified as geological hazards, hydro-meteorological hazards, industrial hazards and
biological hazards (Figure 2.13).
 Figure 2.13 Major Hazards that affect the UT of Jammu and Kashmir

Hazard Risk

Geological Hydro-
Industrial Biological Others
meteorological

Earthquake Cloudburst Fire Outbreak Epidemics Dam Failures

Landslide Snow Gas & Chemical Pest Attack Forest Fires
Avalanches Leakages Building
Hailstorms
Collapse
Cold waves
Drought Crowd Stampede
Floods Terrorist Attack
Windstorm

Lightning

Earthquakes
The UT of Jammu and Kashmir is the western most extension of the Himalayan
mountain range in India. It is classified in Seismic Zone IV and V, with intensity MSK of
VIII to IX or more. Table 2.4 provides a rough sketch of the earthquakes that have struck the
UT.
Table 2.4 History of Earthquakes in the State of Jammu and Kashmir
Year of Incidence Number of Incidents Impact
6th June, 1828 Mw 6.0
1863 Mw 7.0
30th May, 1884 Mw 7.3
30th May, 1885 Mw 7.0
1904 1 Mw 4.6
4th April, 1905 Mw 8.0
 1933 1 Mw 4.6
1937 1 Mw 4.5
22nd June, 1945 Mw 6.5
1946 1 Mw 4.5
2nd September, 1963 Mw 5.3
1964 1 Mw 4.9
1965 1 Mw 5.2
1966 1 Mw 5.1
20th February, 1967 Mw 5.5
1968 1 Mw 4.6
1969 1 Mw 4.9
1970 6 Mw 4.8 - 4.9
1971 7 Mw 4.8 - 5
3rd September, 1972 Mw 6.2
16th January, 1973 Mw 6.5
1974 3 Mw 4.5 – 4.8
1975 4 Mw 4.7
1976 4 Mw 4.5 - 5.2
1977 9 Mw 4.6 -5.2
1978 9 Mw 4.5 – 4.8
1979 4 Mw 4.5 – 4.8
23rd August, 1980 Mw 5.4
1981 2 Mw 4.5 – 4.6
1992 1 Mw 5.4
2003 4 Mw 4.7
8th October, 2005 Mw 7.6
2008 1 Mw 6.4
2013 1 Mw 5.8
2014 1 Mw 4.9
26th October, 2015 Mw 7.5
Source: Compiled from District Disaster Management Plans
North Kashmir and South Kashmir districts lie in Zone V. Poonch, Reasi, Udhampur,
Jammu, Kathua, and Tribal Territory districts lie in Zone IV. A major portion of districts in
Jammu and Kashmir falls under seismic V zone. Regions in the following districts such as
Anantnag, Budgam, Bandipora, Baramulla, Ganderbal, Kishtwar, Kulgam, Kupwara,
Pulwama, Ramban, Shopian and Srinagar districts occupy seismic V area and the remaining
under seismic IV zone (Figure 2.14). Since the earthquake database in India is still
incomplete, especially with regards to earthquakes prior to the historical period (before 1800
A.D.), these zones offer a rough guide of the earthquake hazard in any particular region and
need to be regularly updated.

Figure 2.14 Earthquake Hazard Map of Jammu and Kashmir

A major earthquake struck the India-Pakistan border on the morning of 8 October

2005. It had a magnitude of Mw 7.6 and was felt strongly in much of Pakistan, northern India
and eastern Afghanistan. The earthquake resulted in more than 80,000 deaths in northern
Pakistan and adjoining parts of Jammu & Kashmir, India and is by far one of the deadliest in
the sub- continent. As per official records of the Ministry of Home Affairs, 385 male and 334
female populations died in the earthquake that struck the state, contributing to 62.1% share to
total deaths due to the natural hazards in the country in the year 2005. The tremors that struck
the UT in the following December recorded a magnitude of Mw 6.8 and had resulted in
damage to lot of houses and buildings.
Landslides
Besides earthquakes, landslides are geological hazards that are common and peculiar
to the region. In Jammu and Kashmir, the mass movement varies in magnitude from soil
creep to landslides. Solifluction is another type of mass movement that is common on the
higher snow covered ranges of the state. Flash floods particularly in narrow river gorges are
the cause of some of the major landslides in Jammu and Kashmir. These flash floods trigger
landslides in the region eventually jeopardizing the stability of the hill as a whole. The
vulnerability of geologically young unstable and fragile rocks of the state has increased many
times in the recent past due to various unscientific developmental activities. Deforestation,
unscientific road construction and terracing, encroachment on steep hill slopes are
anthropogenic activities which have increased the frequency and intensity of landslides.
Table 2.5 describes the extent of life casualties due to landslides in the state for the last few
years. The table shows that almost every year, parts of the state were affected by one or more
major landslide resulting in floods, loss of life and damage to houses, roads, and means of
communication, agricultural land.
Table 2.5 Number of Deaths due to Landslides in Jammu and Kashmir
S.No. Cause of No. of Deaths.
Death 2016- 2017- 2018- 2019- 2020- Total
17 18 19 20 21
1. Landslides 7 29 44 29 10 82
Figure 2.15 shows the district wise landslide zonation of Jammu and Kashmir.
 Map depicts that parts of Bandipora, Anantnag, Kishtwar, Pulwama and Shopian
districts are very high hazard risk areas. Whereas parts of Kupwara, Baramulla, Budgam,
Shopian, Anantnag, Kulgam, Srinagar and Ganderbal are very low hazard areas.

Figure 2.15 Landslide Hazard Map of Jammu and Kashmir

Snow Avalanches, Snow Storm and Snow Fall
Avalanches, river like flow of snow or ice descending from mountain tops are
common in the high ranges of Jammu and Kashmir specifically the higher reaches of
Kashmir and Gurez valleys. Some of the major roadways are highly vulnerable to avalanches
in the state. It is very difficult to predict avalanches as they are rarely observed closely and
normally occur during a short time period of one or two minutes. During winter, the valley of
Kashmir receives the snow fall and rainfall from the winds arising from Mediterranean Sea.
The degree of coolness is determined by the altitude of the zone. Table 2.6 describes the loss
of life in numbers due to avalanches in the state for the last few years.
Table 2.6 Number of Deaths due to Avalanches in Jammu and Kashmir
S.No. Cause of No. of Deaths.
Death 2016- 2017- 2018- 2019- 2020- Total
17 18 19 20 21
1. Avalanches 5 11 29 32 1 52
 Our preliminary analysis shows that Udhampur, Ramban, Doda, Kishtwar, Reasi,
Bandipora, Ganderbal, Srinagar, Budgam, Shopian, Kulgam are high impact avalanche prone
districts in Jammu and Kashmir.
Windstorm
Windstorms are high velocity winds that sweep with a wind speed o f more than 55
km per hour. The windstorm occurrence in the state is mostly during spring and summer and
often leads negative impact to lives and property. One of the major reasons for the
catastrophe is due to the lack of early warning procedures and preparedness measures. Non
availability of technical expert to aware the people to construct wind proof roof tops as well
as the deficiency in building code standard also put the lives and property of people under
risk.
Flash Floods
Flash floods, short lived extreme events, which usually occur under slowly moving or
stationary thunderstorms, lasting less than 24 hours are common hazard events in the state.
As a result of the high velocity of the current, which can wash away all obstacles in its way,
this phenomenon has resulted in enormous loss of life and property in various parts of the
region. Floods also occur in the summer when heavy rain is followed by a bright sun, which
melts the snow. If an embankment is breached or topped, a district which is dry a few hours
back could turn into a lake after a few hours.
S.No. Cause of No. of Deaths.
Death 2016- 2017- 2018- 2019- 2020- Total
17 18 19 20 21
1. Flood 7 2 12 10 8 36
Floods
Specific consideration in the light of extra ordinary flood of September, 2014.
1. The exceptionally heavy rainfall during 4th-6th September, 2014 was the main cause
of heavy flooding in Jhelum, Chenab and Tawi basins of J&K. From the detailed
analysis of the rainfall, it has been found that the rainfall in Jhelum basin during 3rd to
7th September, 2014 was about 320% more than the monthly normal of August and
about 600% more than the monthly normal of September. Similarly, in case of
Chenab Basin the average rainfall of 3rd to 7th September, 2014 was about 300% more
than the monthly normal of August and about 500% more than the monthly normal
 September in Tawi basin the rainfall of 3rd – 7th September, 2014was about 21% more
than the monthly normal of August and 200% more than the monthly normal of
September.
2. Srinagar Valley is a bowl shaped valley where the elevation varies from about 1600
metres to 5300 meters on three sides of the valley. However, there is a flat plain of
Kashmir Valley at EL.1600m which does not allow rapid drainage of rain waters
contributed by higher reaches. During the 4th -6th September, 2014 a lot of runoff was
contributed from the higher catchment in to the valley. Due to lack of steep slopes the
runoff caused severe drainage congestion and inundation in Srinagar and adjoining
areas.
3. From the hydrological simulations it has been estimated that the flood peak in Jhelum
river at Sangam located about 50Km upstream of Srinagar was of the order of 2500
cumec (88277 cusec). The flood peak at Srinagar was of the order of 3200 cumec
(113000 cusec). From the historical records available with Govt. of J&K, it has been
found that floods more than 2500 cumec (88277 cusec) has been observed during the
years 1950,1957,1959,and 1966 with respective flood peaks as 2617, 2549, 3398, and
2872 cumec. These historical records show that entire Srinagar Valley has been
subjected to severe floods during that time also.
4. The flood peak of about 2500 cumec (88000 cusec) at Sangam and 3200 cumec
(113000 cusec) at Srinagar sustained for about 6 hours resulting in inundation of large
low lying areas and heavy damage in the Jhelum basin especially in Srinagar area due
to over overtopping and subsequent breaching of flood embankments. It has been
found from the hydrodynamic study that the banks of river Jhelum in almost entire
reach between Sangam and Srinagar were over topped due to the occurrence of above
flood peaks.
5. The safe carrying capacity of river Jhelum between Sangam and Srinagar is about 900
cumec (31700 cusec). The flood of September, 2014 was about 3 times more of the
capacity of river Jhelum. This resulted in water spread beyond the Jhelum river banks
and existing flood spill channels and consequent flooding in the entire adjoining
areas.
6. Earlier, low lying areas along the course of river Jhelum were functioning as natural
flood detention basins during floods and were absorbing flood water spilling over the
banks of river Jhelum. Subsequently, the same flood water used to get released
slowly. However, during the last three to four decades, maximum urbanization has
 taken place in these low lying areas due to which there is no space for water to get
stored during flood seasons. The situation in Jhelum Basin has got further aggravated
due to the siltation and the encroachments/development of various water ways like
rivers, lakes, marshy land etc, resulting in limited carrying capacity of Jhelum water
bodies.
7. The flood peak in Chenab basin at Akhnoor was of the order of 23500 cumec
(832700 cusec) which is about 76% more than the historical flood of 13300 cumec
(469600 cusec) recorded on 10th September, 1992 and caused flooding in adjoining
areas.
8. The flood peak in Tawi River at Sidari (Jammu) during September, 2014 was of the
order of 11000 cumec (388400 cusec), which exceeded the highest recorded flood of
9124 cumec (322175 cusec) occurred on 7th July, 2005. This flood peak was resulted
due to the very high density of rainfall of the order of more than 33mm/hour between
1 am and 3 am of 6th September, 2014 which caused flooding in adjoining areas.
September 2014 episode of extreme flooding and climate change
Jammu and Kashmir UT has a very peculiar geography and climate. Most of the
valley regions of the UT are fed by rivers like Jhelum, Indus and Chenab. Low-lying areas of
the Kashmir Valley, especially Srinagar, along with parts of Jammu, are prone to floods that
occur due to heavy rainfall in upper catchment areas. Recent heavy rains, in September 2014,
caused devastating floods that claimed at least 280 lives, and stranded hundreds of thousands
of residents.
This recent flood in the state is unprecedented in nature, where the most part of the
Southern District has received very high rainfall. Weekly total rainfall for most of the stations
for the period Sept 2 to Sept 8, 2014 was more than 200 mm. This is very high for a terrain
like Jammu and Kashmir. Figure 1 gives spatial distribution of weekly rainfall for select India
Meteorological Department stations.
Figure 2.16 Weekly sum of rainfall for the period Sept 2 to Sept 8, 2014 of IMD stations

(Data source: IMD Automatic Weather Stations data for Jammu and Kashmir)
Analysis of long term daily rainfall of the region, using 25 km IMD gridded data, for
the period 1951 to 2013, suggests that heavy rainfall like that September 2014 has been
unprecedented in the past record. Analysis of daily annual maximum rainfall suggests that
most of the Southern District of Kashmir valley has around 5 year return period for annual
maximum daily rainfall exceeding 64.5 mm (Figure 2). Climate model analysis, using
MIROC 4h data (which has a spatial resolution of 50km by 50km), for the period 2006-2035
under RCP 4.5 scenario suggests that the return period of annual daily rainfall exceeding 64.5
mm threshold will further decrease for most regions of the UT (Figure 3). This implies that,
according to climate models, in future there is increased possibility that more frequent events
of extreme daily rainfall will be witnessed.
Figure 2.17 Return period of annual maximum daily rainfall exceeding 64.5 mm (in years)
Figure 2.18 Future return period of rainfall exceeding 64.5 m for future of period 2006- 2035,
under RCP 4.5 scenario

Similar analysis for 100mm and 150 mm of rainfall suggests that the return period of
daily extremes exceeding this threshold, particularly in Southern Districts, is very low
compared to the other regions of the state (Figure 4 a and b). Comparison of long term data in
the region (Figure 2 to 4) and recent rainfall event in the UT (Figure 1) indicate that the
recent event was the rarest of rare and even the long term rainfall record analysis does not
show such high variability (Figure 4b).
Considering recent extreme rainfall episodes as an anomaly, return period analysis
suggests that most of the Southern Districts of the valley may experience frequent extreme
episodes. Although a detailed exercise is required to model the future more accurately
together with scenario based uncertainties, this analysis provides an indication that the UT
authorities should plan for extreme rainfall of the region, particularly for the Southern
Districts, which are the most populated and also close to the drainage network.
 Figure 2.19 Return period of daily rainfall for threshold 100 and 150 mm per day
(white region within polygon indicates that there is much higher than 100 years of return
period for value exceeding given threshold based on analysis of historical data for the period
1951-2013.

Urban Flood
Urban flood is not an unknown event in India. The uneven distribution of rainfall
coupled with mindless urbanisation, encroaching upon and filling up of natural drainage
channels and urban lakes to use the high value urban land for buildings are the cause of urban
flood. the Kashmir valley is dotted with wet lands which plays a very important role in
controlling flood in the region. Apart from natural ponds and lakes, the valley also houses
other types of wet lands like rivers, streams, riverine wetlands, manmade ponds and tanks.
Dal Lake, Anchar Lake, Manasbal and Wullar Lake are some of the larger wet lands in the
area facing a major threat due to urbanisation.
Dal Lake, one of the largest natural lakes, covered an area of 75Sq.km in 1200 A.D.
the lake area almost reduced to one –third in the eighties and has further reduced to one-sixth
of its original size in the recent past. The lake has also lost almost 12 meter of depth. Just like
Dal, encroachments have also happened on the banks of one of the most prominent rivers in
the UT, the Jhelum that passes through Srinagar the Summer Capital of the UT. The water
bodies in Jammu are also under threat. The city was once famous for its traditional ponds and
tanks which have been erased to houses, commercial complexes and parks in the city. These
factors demonstrates how rapid urbanization in and around the city make flood events
inevitable in the urban areas.
Cloudburst
Cloudburst is a disastrous weather condition caused by the downpour, over a small
geographical area for a relatively short period. A cloudburst is construed by the meteorologist
when there is an intense rainfall at a rate of 100 mm per hour. At the event of cloudburst, 20
mm of rain may fall in a few minutes. The heavy down power often leads to landslides,
flashflood and pose threat to life and property. Topography of the state plays a crucial role in
the formation of cloudburst. The hilly terrain of the state favors the formation of
cumulonimbus cloud. This leads to the shedding of larger droplets of water at a higher rate,
resulting in higher impact on the ground.
S.No. Cause of No. of Deaths.
Death 2016- 2017- 2018- 2019- 2020- Total
17 18 19 20 21
1. Cloud Burst 6 17 8 12 8 25
Our preliminary analysis shows that the high impact areas in Jammu and Kashmir due
to cloudburst are Budgam, Udhampur, Ramban, Doda, Reasi, Bandipora, Kulgam, Rajouri,
and Srinagar districts.
Drought
The south-west monsoon plays a significant role in determining the sustenance of
agriculture depended population in the UT of Jammu & Kashmir. More than 75 % of the
populations in Jammu & Kashmir are directly or indirectly depended on agriculture for
livelihood. The deficiency in monsoon rain quite often results in drought, affecting the
livelihood of the rural population. The UT is prone to deficient rainfall once in three years,
putting lives of the majority of population at stake. Table 2.11 provides the recorded history
of drought in the state of Jammu and Kashmir. Shopian, Pulwama, Bandipora, Srinagar,
Udhampur, Ramban, Kathua, Kishtwar, Ganderbal and Doda are highly affected where as
Samba and Rajouri are relatively less affected.
 Hailstorm
Hailstorm creates great devastation to the standing crops in the state. Every year
thousand acres of crops are being affected due to the hailstorm resulting in the loss of crop
yield. The government of Jammu and Kashmir has imparted crop insurance schemes to
support the agrarian population who has been affected by natural disasters such as hailstorm,
drought, lightning etc. The insurance schemes are meant to support Rabi crops such as wheat,
mustard and potato. Udhampur, Ramban, Doda, Kishtwar, Bandipora, Srinagar, Baramulla,
Kupwara, Anantnag, Pulwama, Budgam, Jammu, Kathua, Rajouri , Poonch districts in
Jammu and Kashmir are the areas under risk due to hailstorm.
S.No. Cause of No. of Deaths.
Death 2016- 2017- 2018- 2019- 2020- Total
17 18 19 20 21
1. Hailstorm 0 0 2 0 0 1
Other Heat and Cold Weather Events
The population of the UT is also exposed to extreme hot and cold weather events.
Table 2.8 and Table 2.9 describe the impact on life of people due to hot and cold weathers
respectively.
Table 2.8 Number of Deaths due to Heat in Jammu and Kashmir

Year 2011 2010 2007 2005 2004

Male 1 6 1 2 1
Female 0 0 0 0 1
Total 1 6 1 2 2
% share w.r to total deaths 0.3 1.0 0.4 0.2 1.3

Source: Compiled from the statistics released by Ministry of Home Affairs, Govt. of India
Table 2.9 Number of Deaths due to Cold in Jammu and Kashmir

Year 2011 2010 2009 2008 2007

Male 3 6 4 9 7
Female 0 2 1 0 0
Total 3 8 5 9 7
% share w.r 1.0 1.4 2.2 2.9 2.5
to total
deaths
Source: Compiled from the statistics released by Ministry of Home Affairs, Govt. of India
Lightning
The population is also exposed and vulnerable to lightning and is indicated in Table
2.10 below.
Table 2.10 Number of Deaths due to Lightning in Jammu and Kashmir

Year 2011 2010 2009 2007 2003

Male 2 1 1 3 2
Female 0 0 0 0 0
Total 2 1 1 3 2
% share w.r
to total 0.6 0.2 0.4 1.1 1.1
deaths
Source: Compiled from the statistics released by Ministry of Home Affairs, Govt. of India
Biological Hazards
Biological hazards with respect to Jammu and Kashmir could be understood in terms
of epidemics among humans, livestock and pest and disease with respect to agriculture.
Within a time span of January 2012 to June 2013, the following cases were reported in
Kashmir division alone: Acute diarrheal disease (18,2392), Malaria (176), Bacillary
Dysentery (27,746), Enteric Feer (25,700), Viral Hepatitis (4177).
The prevalence of livestock disease has been recorded in the state of Jammu and
Kashmir. Outbreaks normally occur during the post monsoon season. The prominent diseases
reported are Black Quarter (BQ), Haemorrhagic Septicemia (HS), SG-POX and Foot and
Mouth Disease (FMD). Severe outbreaks were observed in Udhampur, Doda and Kathua
districts. Pest related problems are another biological hazard prevalent in the state. Pest attack
not only decreases the productivity of the fruits but also the quality of the fruits which in turn
affect the livelihood of the people who depend on agriculture. The need to provide effective
and ecological sound insect and disease management is very essential.
Forest Fires
The UT of Jammu and Kashmir is well endowed with forest resources that play a
significant role in protecting the ecosystem of the region. Forest occupies about 20,230 sq km
 of area in the UT. They serves as a catchment for river basin which enhances the soil stability
thus prevent soil erosion. Every year in Jammu and Kashmir, there is a high probability of
forest fire in the months of May and June. Though forests are prone to fire during the dry
season, human activities such as military action, timber smuggling etc holds a huge
responsibility for the onset of the fire. Forest cover in the districts of Kishtwar, Ramban,
Reasi, Udhampur, Kathua, Samba, Doda, Kupwara and Srinagar are areas that are prone to
forest fire.
Industrial Hazards
There has not been any report of industrial hazards in the state. Industrial hazard
principally consist of four hazards such as fire, explosion, toxic release and environmental
damage. However, the state needs to be cautious of the industrial wastes that are disposed,
which could have severe impact on the ecology and health of the citizens in the state.
According to National Inventory of Hazardous Wastes Generating Industries and Hazardous
Waste Management in India (2009), the following places have been identified as generating
hazardous waste.
Table 2.11 Type and Quantity of hazardous waste being generated in Jammu and Kashmir

Location Type & quantity of hazardous waste being generated MTA

( million tons per annum)
Land Recyclabl Incinerable
Disposable e Waste Waste Total Waste
Waste
Jammu Province
Ind. Complex Bari 7546 3522 18 11086
Brahmana
Ind. Estate Gangyal 303 1079 22 1404
& Digiana
Other areas of Jammu 119 52 0 171
Ind. Growth centre 28 440 68 536
Samba
Birpur/other areas 3 0 2 5
Of Samba
Ind. Estate Kathua 1839 1759 6 3604
Iid centre Udhampur 0 0 25 25
Kashmir Province
Kashmir 108 15 0 123
Source: National Inventory of Hazardous Wastes Generating Industries & Hazardous Waste
Management in India February 2009
Fire
The UT of Jammu and Kashmir is also prone to building Fires. As per a survey
following are some major fire incidents in the last decade:
• January, 2007 (39 shops and 09 commercial buildings in the Maiden-e- Keran,
Kupwara)
• November,2007 (43 residential houses and 03 shops in Pattan, Baramulla)
• May, 2008(260 Juggies, 08 shops and 1 school in Gandhi Nagar, Jammu)
• August, 2008 (37 shops, 1 residential house and 1 vehicle in Poonch)
• May, 2009 (57 shops and 01 residential houses in Katra)
• November, 2009 (45 shops in M.R Gunj, Srinagar)
• Feburary,2010 (31 residential houses, 11 kitchens, 59 shops in Pattan, Baramulla)
• July, 2010 (20 residential houses, and 46 shops in Chokibal, Kupwara)
• December,2010 (43 residential houses and 01 mosque in Keterpora, Tulail)
• March, 2011 (26 residential houses in BadeeAjab, Tulail)
• October, 2011 (43 residential houses in Khatrota Bandipora)
• June,2012 (Ziyaratee- Pir Dastegeer Sahib Khanyar)
• November, 2012 (37 residential houses in Frislan, Pahalgam)
• January, 2013 (19 shops, 01 hotel,01 commercial building, TRC building, SRTC
Office, 5 tes stalls, 01ATM.)
• Jully,2013 (Civil Secretariat Srinagar)
• August,2013 (35 shops, 01 commercial buildings, 36 vehicles in Kashtwar)
• May, 2014 (Neelum Hotel Bus Stand jammu, 04 killed)
• November, 2014 (Uri Hydroelectric power Project).

Mines
The UT has a total of 72 mines. These mines are diverse, rich in minerals such as
limestone, gypsum, quartzite, marble, lignite, granite and borax. Some of the mining
locations within Srinagar province as recorded by the Geology and Mining are Anantnag,
Pulwama, Bandipora, Ganderbal, Kupwara and Uri. Most of the mining sites are also
confined to remote hilly regions and their proximity to seismic activities and landslides are
also very high. Safety of the labors in the mines and communities living in the different fault
zones of the mining sites should be the top priority. Also, the practice of sand mining and
Quarrying should be checked and must be regulated.
Tourism / Crowd Management / Stampede
The state of Jammu and Kashmir is vulnerable to crowd related disasters. Pilgrimage
tourism that is promoted widely to the Amarnath Cave, Vaishno Devi temple, Hazratbal
shrine and monasteries in Ladakh all need to take appropriate crowd management measures.
Most often, the situation becomes chaotic due to large movement of people that could result
in stampede, damage to limbs, injury and loss of life.
Drowning
The UT of Jammu and Kashmir is very much prone to disaster resulting from
drowning related incidents. For instance, it was reported in 2012, that in the roads of Doda
and Kishtwar, by the River Chenab, more than 500 people navigating the route lost their
lives. It was also reported in April 2014, that in the last four years at least 51 persons died
due to drowning in different districts of Kashmir region alone. This necessitates that the state
have immense capacities to provide warning as well as human resources in terms of divers,
rescue teams and related equipments.
Railway Safety
The Kashmir Railway, officially termed the Jammu Udhampur Srinagar Baramulla
Railway link, routes crosses major earthquake zones and is subjected to extreme
temperatures of cold and heat. Due to the in hospitable terrain, the railway links is also
susceptible to landslide. As the UT plans to expand its railway network within the UT as well
as to rest of the country, one needs to judiciously plan appropriate disaster mitigation and
response plans pertaining to rail accidents including technical failure, fire and sabotage.
Road Accident
The UT due to its terrain is prone to road accidents. According to the report released
by the Traffic Police J&K in 2020, 4860 accidents took place as a result of which 728
persons were killed and 5894 received injuries. Appropriate incident command system to
deal with road accidents has to be developed taking into account the nature of the roads,
terrain and frequency of accidents happening in the roads of the UT.
 CHAPTER 4: DISASTER RISK GOVERNANCE AT THE CENTRE AND UT
LEVEL

Disaster risk governance is the system of institutions, mechanisms, policy and legal
frameworks and other arrangements to guide, coordinate and oversee disaster risk reduction
and related areas of policy. Disaster governance goes beyond governmental settings, powers,
processes and tools by encouraging collective actions through the engagement of all
stakeholders operating at all scales from village to country.

The legal framework in the country and in Jammu & Kashmir provides direction to
government all other stakeholders for Disaster Risk Management (DRM). The role,
composition and key decision making bodies for disaster management at national, State/UT,
district and below level are described below. The extent of involvement of central agencies
will depend on the type, scale, and administrative spread of the disaster. If the situation
requires, the state/UT government shall request central government to provide necessary
support. Disaster management structure is in place right from the national to local level. This
institutional mechanism plays a crucial role in all activities from policy making to
implementation across the entire disaster management cycle.
National Level
Agencies Composition Roles & Responsibilities

• Lays down policies, plans and

guidelines for disaster
National management
Disaster • Prime Minister (Chairperson) • Coordinates their enforcement
Management • Members (not exceeding nine, and implementation
Authority nominated by the Chairperson) • Lays down guidelines for Disaster
(NDMA) Management to be followed by
the different Central Ministries
and departments and the State
Government.
National
Executive • Union Home Secretary • Executive committee of the
Committee (Chairperson) NDMA

46
 (NEC) • Secretaries to the GOI in the • Assists the NDMA in the
Ministries / Departments of discharge of its functions and also
Agriculture, Atomic Energy, ensure compliance of the
Defence, Drinking Water and directions issued by the Central
sanitation, Environment, Forests Government
and Climate Change Finance • Coordinates the response in the
(Expenditure), Health and Family event of any threatening disaster
Welfare, Power, Rural situation or disaster.
Development, Science and • Monitors the implementation of
Technology, Space, guidelines issued by NDMA
Telecommunications, Urban • Act as the coordinating and
Development, Water Resources, monitoring body for disaster
River Development and Ganga management
Rejuvenation, The Chief of the
Integrated Defence Staff of the
Chiefs of Staff Committee, ex
officio as members.
• Secretaries in the Ministry of
External Affairs, Earth Sciences,
Human Resource Development,
Mines, Shipping, Road Transport
and Highways and Secretary,
NDMA are special invitees to the
meetings of the NEC.
• Union Home Minister; Vice
Chairman, NDMA; Members • Develops and builds capacity
National including Secretaries of various through training, research,
Institute of nodal Ministries and Departments documentation
Disaster of Government of India and State • Develops national level
Management Governments and heads of national information base
(NIDM) levels scientific, research and • Functions within the broad
technical organizations, besides policies and guidelines laid down
eminent scholars, scientists and by the NDMA

47
 practitioners. • Develop educational materials for
disaster management
• Undertake, organize and facilitate
conferences, lectures, seminars.

• Provides specialized response and

emergency search & rescue to a
threatening disaster situation
• The general superintendence,
direction and control of this force
• Specially trained force headed by a is vested in and exercised by the
Director General Structured like NDMA
National para military forces for rapid • Command and supervision of the
Disaster deployment after the disaster for force is vested in the Director
Response rescue. General of Civil Defence and
Force National Disaster Response Force
(NDRF) • Comprises 16 battalions and 4
battalions are equipped and
trained to respond to situations
arising out of CBRN emergencies
• Imparts basic training to all the
stakeholders identified by the
state governments in their
respective locations.

Agencies Sr.
Disaster Nodal Department
providing No.

Early Accident – Air (Civil

1 Min. of Civil Aviation (MOCA)
Warning Aviation)
Information 2 Accident – Rail Min. of Railways (MOR)

48
 Min. of Road Transport & Highways
3 Accident – Road
(MRTH)
Min. of Defence (MOD)-Border Road
4 Avalanche
organization (BRO)
Min. of Health and Family Welfare
5 Biological Emergencies
(MHFW)
Min. of Agriculture and Farmers Welfare
6 Cold Wave
(MAFW)
7 Cyclone/Tornado Min. of Earth Sciences (MOES)
Min. of Agriculture and Farmers Welfare
8 Drought
(MAFW)
9 Earthquake Min. of Earth Science (MOES)

10 Flood Min. of Jal Sakti

Min. of Housing and Urban Affairs
11 Floods-Urban
(MHUA)
Min. of Environment, Forests and Climate
12 Forest Fire
Change (MEFCC)
Min. of Agriculture and Farmers Welfare
13 Frost
(MAFW)
Min. of Agriculture and Farmers Welfare
14 Hailstorm
(MAFW)
Min. of Environment, Forests and Climate
15 Industrial and Chemical
Change (MEFCC)

16 Landslides Min. of Mines (MOM)

17 Nuclear and Radiological Dept. of Atomic Energy (DAE)

Min. of Defence (MOD) – Indian Coast
18 Oil Spills
Guard
Min. of Agriculture & Farmers Welfare
19 Pest Attack
(MAFW)
20 Tsunami Min. of Earth Sciences

49
 UT Level
The DM structure in the UT is as per the National Disaster Management Act, 2005.
Hon’ble Lieutenant Governor Government of India

• Ministry of Home Affairs

• NDMA
• Ministry of Defense
• IMD • Ministry of IT &
• CWC Crisis Management Group Communications
• INCOIS (Chief Secretary) • Ministry of Agriculture
• ISR • Ministry of Environment &
Forests& Climate Change
• Ministry of Health & Family
Welfare
• Ministry of Railways
• Ministry of Earth Science
• Ministry of Water Resources
• Ministry of Atomic Energy
• Ministry of Civil Aviation
• All India Radio
• Doordarshan

Govt. of J&K Line Revenue Dept JKDMA

Departments

FCR Municipal Commissioner

NGOs, CBOs
International Agencies
State EOC ERCs
Public & Private Sector
Undertakings

Deputy Commissioners
(DEOC)
District Level Officer

District DM
SDM
District Heads of Line
Sub Division Level Officer
Committee Departments
Chief Officer (Municipality)

Figure 4.1: Institutional Mechanism at UT Level

50
 The State Disaster Management Authority and the Office of the Financial
Commissioner Revenue Department are the major institutions in the UT that deal with all the
phases of disaster management. All the major line departments of the UT Government the
Deputy Commissioners, other technical institutions, community at large, local self-
governments, NGOs, CBOs, etc. are the stakeholders of the JKDMA.

The role of the stakeholders has been prepared with an objective of making the
concerned organizations understand their duties and responsibilities regarding disaster
management at all levels, and accomplishing them.

Agencies Roles & Responsibilities

• On the recommendation of Deputy Commissioners, State Authority
may declare disaster.

• Promotes an integrated and coordinated system of disaster

management including prevention or mitigation of disaster by the UT,
local authorities, stakeholders and communities.
• Collect/cause to be collected data on all aspects of disasters and
JK State disaster management and analyze it and further cause and conduct
Disaster research and study relating to the potential effects of events that may
Management result in disasters.
Authority • Acts as a repository of information concerning disasters and disaster
(JKDMA) management
• Lays down the policies and plans for disaster management in the
State.
• Promotes or causes to promote awareness and preparedness, advices
and trains the community and stakeholders
• Co-ordinating Rehabilitation and Reconstruction activities by
different government departments.
• Primary responsibility of co-ordinating an effective emergency
response and relief on the occurrence of a disaster.
Financial
Commissioner • Prepare, review and update State level emergency plans and
Revenue guidelines and ensure that the district level plans are prepared, revised
and updated

51
 • Develop an appropriate relief implementation strategy for the State in
consultation with the Authority, considering the unique circumstances
of each district and deficiency in institutional capacity and resources
of the State.

• Provide directions to the Deputy Commissioners and the local

authority having jurisdiction over the affected area to provide
emergency relief in accordance with disaster management plans to
minimize the effects of disaster.

• Develop a strategic policy framework for disaster management for the

State.

• Ensure that the disaster operations in the state are consistent with the
State Disaster Management Authority and in line with the policy
framework for disaster management for the state.

State Crisis • Identify resources in and outside the State that may be used for
Group (SCG) disaster operations.

• Provide reports and make recommendations about matters relating to

disaster management and disaster operations.

• Develop a thorough approach to disaster management - Prevention /

Preparation / Response and Recovery.

• Establish District and Local Crisis Group

• To serve as the apex institute in the State for Disaster Management

Capacity Building.
• To provide disaster management related training to all the

State Institute stakeholders.

• To act as a resource centre and clearing house of information on
of Disaster
Management disaster management by documentation of field experiences including

(SIDM) case studies, lessons learnt and best practices.

• To undertake quality research projects on Disaster Management and
mitigation covering both natural and human induced disasters.
• To facilitate partnership with reputed national and international
organizations, universities, institutions, bodies and individuals

52
 specialized in Disaster Management.
• To run and award degree/diploma/certificate courses on Disaster
Management on its own or with the affiliation to any other institute/
universities, local/ national/ international.
Fire & • Provides crucial immediate response during any disaster
Emergency
• Provides regular training to the fire staff and all in using and
Services
maintaining the equipment and containing fire in the state.
(F&ES)

• 2 battalions of SDRF have been created for the rescue of the disasters
in the Jammu & Kashmir.

• The SDRF teams are deployed at various locations based on the

State Disaster
severity of the disaster.
Response Force
(SDRF) • Provides specialized response and emergency search & rescue to a
threatening disaster situation

• Imparts basic training to all the stakeholders identified by the state

governments in their respective locations.
• Help JKDMA, FCR and Deputy Commissioners in disaster
management activities.

• Ensure training of its officers and employees and maintenance of

resources to be readily available for use in the event of a disaster.

Local • Ensure that all construction projects under it conform to the standards
Authorities and specifications lay down.

• Each department of the Government in a district shall prepare a

disaster management plan for the district. Carry out relief,
rehabilitation and reconstruction activities in the affected area within
its jurisdiction.

Table 4.2: Institutional Mechanism at UT Level

53
Agencies competent for issuing Disaster Specific Early Warnings:

Early warnings will be published/ issued by the respective agencies during different
disaster which are as follows:

Disaster Agencies
Earthquakes IMD
Floods IMD, Flood & Irrigation Dept.
Drought Agriculture Dept.
Epidemics Health & Family Welfare Dept.
Industrial & Chemical Accidents Labour & Employment Dept.,
Fire Director, State Fire Prevention Services
District Level

All the districts in the UT have District Emergency Operation Centre (DEOC) headed
by the Deputy Commissioner. Further, every DEOCs act as the planning, coordinating and
implementing body for disaster management at the district and below level and take all
necessary measures for the purposes of disaster management in accordance with the
guidelines laid down by the NDMA and JKDMA.

Agencies Roles & Responsibilities

• Facilitate and, coordinate with, local Government bodies to ensure
that pre and post - disaster management activities in the district are
carried out.

• Assist community training, awareness programmes and the

installation of emergency facilities with the support of local
Deputy administration, non-governmental organizations, and the private
Commissioner sector.

• Take appropriate actions to smoothen the response and relief activities

to minimize the effect of disaster.

• Recommend State Authority / UT Government for declaration of

disaster.

54
 • Ensure that disaster management and disaster operations in the district
are consistent with the State.

• Develop effective disaster management for the district, including a

district disaster management plan and regularly review and assess the
disaster management arrangements in the disaster district.

• Provide reports and make recommendations to the State group about

matters relating to disaster management and disaster operations in the
district.

• Regularly review and assess the disaster management of Local

Groups in the district.

• Ensure that any relevant decisions made by the State group are
incorporated in its disaster management arrangements, and the
disaster management arrangements of Local Groups in the district.

• To ensure the community is aware of ways of mitigating the adverse

effects of an event, and preparing for, responding to and recovering
District Crisis
from a disaster.
Group (DCG)
• Coordinate the provision of State resources and services provided to
support Local Groups in the district.

• Identify resources that may be used for disaster operations in the

district.

• To make plans for the allocation of resources that may be used for
disaster operations within the district and the coordination of their
use.

• Establish and review communications systems in the group, and also

with Local Groups in the district for use when a disaster happens.

• Ensure information about an event of a disaster in the district is

promptly given to the State group and each Local Group in the
district;

• To assist the district administration in the preparation of a district

disaster management plan.

55
 • Ensure that disaster management and disaster operations in the area
are consistent with the State and in line with the policy framework for
disaster management for the state.

• Develop effective disaster management, and regularly review and

assess the disaster management activities.

• Help the local administration for its area to prepare a local disaster
management plan.

• Identify, and provide advice to the relevant district group about,

support services required by the local group to facilitate disaster
management and disaster operations in the area.

• Ensure the community is aware of ways of mitigating the adverse

Local Crisis effects of an event, and preparing for, responding to and recovering
Group (LCG) from a disaster.

• Manage disaster operations in the area under procedures decided by

the state group.

• Provide reports and make recommendations to the relevant district

group about matters relating to disaster operations.

• Identify, and co-ordinate the use of resources that may be used for
disaster operations in the area.

• Establish and review communications systems in the group with the

relevant district group and other local groups when a disaster happens.

• Ensure information about a disaster in the area is promptly given to

the relevant district group.

Other Stakeholders in Disaster Management

Agencies Roles & Responsibilities
• The private sector should ensure their active participation in the pre-
disaster activities in alignment with the plan developed by the
Private Sector JKDMA or the Deputy Commissioners.

• They should also adhere to the relevant building codes and other
specifications, as may be stipulated by relevant local authorities.

56
 • Local community groups, “Aapda Mitra” and voluntary agencies
including NGOs should actively assist in prevention and mitigation
Community
activities under the overall direction and supervision of the JKDMA
Groups and
or the Collector.
Voluntary
• They should actively participate in all training activities as may be
agencies
organised and should familiarize themselves with their role in disaster
management.
• It is a duty of every citizen to assist the administration or such other

Citizen person entrusted with or engaged in disaster management whenever

his aid is demanded generally for the purpose of disaster management.

Other than these, there are various agencies, organizations, departments and
authorities that constitute a core network for implementing various disaster management
related functions and activities. It also includes academic, scientific and technical
organizations, media, community, etc. which play important role in various facets of disaster
management.

State Govt. &

its Dept

Academic&
Technical Media
Institutions

Self Help Other Armed

Groups Stakeholders Forces

Religious Airport
Organisations Authority of
/ Groups India

Indian
Railways

57
58
 CHAPTER 5: MAINSTREAMING DISASTER RISK REDUCTION

Disaster risk affects the health, safety and security of the people for which they are
vulnerable. Disasters risk drivers such as inadequate development planning, poverty,
unchecked urban expansion, environmental degradation and weak risk governance have led
to increased risk which in turn pose a threat to the community. The disaster risk continues to
increase as the growing exposure of people and assets to hazards outpaces risk reduction
capacities. Disaster Risk Reduction (DRR) and Climate Change Adaptation (CCA) efforts
share the immediate common aim of building resilience of people, economies and natural
resources towards the impacts of extreme weather and climate change.
Mainstreaming DRR is a process of integrating DRR and CCA at all levels of
decision-making including state, district and village government & community levels and
creating direct linkages with international and regional commitments like SFDRR, SDG,
Paris Agreement (COP 21), and PM 10 Point Agenda etc. With escalating disaster risks, there
is a growing consensus that the key to sustained risk reduction lies in ‘mainstreaming’ the
reduction of risks into development. This could be done by incorporating the key principles
of DRR and CCA.
The mainstreaming needs to be integrated in all phases of planning, programming,
budgeting, implementation, monitoring etc. into development goals, governance
arrangements, policies and practice. Mainstreaming requires the analysis of how potential
hazard events could affect the performance of policies, programs and projects, and on the
other hand, it needs to look at the impact of the same policies, programs, and projects on
vulnerability to hazards.
As per the provisions of NDM Act, 2005, all government departments local
authorities, must prepare their own DM Plans. The plans will be prepared after considering
the types of disaster hazards that may occurs and their possible effects, the property at risk,
provision for prevention and mitigation strategies, promote capacity building and
contingency plans etc.
Disasters and development are closely linked. Disasters can both destroy development
initiatives and create development opportunities. Development schemes can both increase
and decrease vulnerability. It has four separate but interrelated dimensions:
i. Disasters set back development programming, destroying years of development
initiatives.

59
 ii. Rebuilding after a disaster provides significant opportunities to initiate development
programmes.
iii. Development programmes can increase an area’s susceptibility to disasters.
iv. Development programmes can be designed to decrease the susceptibility to disasters
and their negative consequences.
Thus, it is desirable that development initiatives and DRR are dealt with concurrently
in a seamless manner, into all the relevant policies, planning and implementation. All
development initiatives must factor in the likelihood of greater risk and decrease in climate
change induced vulnerabilities.
The second and third priorities of the Sendai Framework namely risk governance and
investing in disaster risk reduction for resilience, recognize the importance of DRR within
and across all sectors of development. Sectors of focus include Agriculture, Building and
Construction, Education, Energy, Environment, Finance, Health, Planning,
Telecommunications, Tourism, Transportation, Urban and rural development, Water and
Sanitation. Mainstreaming DRR and CCA into development planning has been a priority
concern for the State Government. It should ensure that development plans and programs do
not create new forms of vulnerabilities.
Planning based on Hazard, Exposure, Vulnerability and capacity assessment

JKDMA has done a risk assessment for integrating disaster risk management into
development planning. Each line department, Municipal Corporation, Deputy Commissioners
and District Development Commissioners of the UT is required to use it for initiating all the
projects depending on the vulnerability of the project area.
In addition, line departments and even some private industries do seek the advice of JKDMA
on vulnerability of the region before finalizing projects that require major investment.
Based on the same, each line department and other relevant UT agencies should carry
out and ensure the following:

1. Ensure that the DRR policies and practices must be based on improved understanding
of disaster and climate risk in all its dimensions and communities made aware of
various aspects of disaster and climate risk so that they are able to proactively take
preventive measures.
2. Ensure adequate and appropriate legislative arrangements for disaster risk
management, including the mainstreaming of DRR and CCA into development.
3. Plan land use of the UT in view of hazard, risk and vulnerability of the project.

60
4. Ensure all the development schemes of the UT are undertaken in view of hazard, risk,
vulnerability and micro-zonation and climate risk attached with it and facilitated with
the provision for adequate funds.
5. Undertake revision of land-use regulations and building codes and introduction of
judicial and other measures to ensure enforcement.
6. Integrate various risk financing instruments within an overall DRR strategy, enabling
policies and supporting legal framework.
7. Provide engineering inputs to improve infrastructures including dams and reservoirs,
building design, construction, etc.
8. Ensure financing and budgeting for investment in resilience.
9. Investing in capacity building, organization, and mobilization of community members
(especially of women) at local level, to access resources, to take leadership in the
community and to engage with local authorities.
10. Strengthen inter agency coordination and integration involved in development
initiatives at state and district level.
11. Ensuring social inclusiveness in disaster risk management.

61
Source: https://www.researchgate.net/figure/key-elements-of-mainstreaming-cca-Drr-in-
Development-planning_fig3_311608070

62
 Roles and Responsibilities to Departments

Activity Responsibility
1. To ascertain whether project involve any creation/ modification • Line Depts.
of structural/ engineering assets - Irrigation & Flood
2. To ascertain the possible risks, likelihood and impact from - PDD
disasters and climate change due to the location of project sites - Jal Shakti Dept.
3. To ascertain whether probable risks both structural and non- - Health
structural measures have been prioritized and the prevention and
- Roads & Buildings
mitigation measures being contemplated.
- Education
4. To ascertain whether the design and engineering of the structure
- Others
has taken into consideration the National Building Code 2016, the
• Dept. approving the
appropriate BIS Codes, BMTPC Hazard Atlas 2019 other
project
applicable sources as per the type of the project and the NDMA
guidelines. o Administratively

5. To ascertain whether the cost of disaster prevention/ mitigation o Financially

measures been included in the overall project cost o Technically

6. To ascertain whether the process of risk assessment has been • Urban Development
done based on available information and secondary evidence Authorities

• Concerned Dept.

• JKDMA

• Local Bodies
Table 6.2: Checklist for EFC Form
Detailed Project Report (DPR) Format
To ensure the implementation of key areas, a checklist for DPR format and the
responsible departments are as shown below:
Activity Responsibility
1. Impact Assessment of project (damage that can be caused to • Line Depts. preparing the
the project by natural & Man-made hazards, design of the project
project that could accentuate the vulnerability of the area to - Irrigation & Flood
hazards and / or lead to rise in damage / loss of lives, property, - PDD
livelihood and surrounding environment) and ensure creation - Jal Shakti

63
 of new risk. - Health
- Roads & Buildings
2. Disaster & Climate Risk assessment of project Evaluation of - Education
site with regards to parameters such as probable maximum - Others
seismicity, probable maximum storm surge, probable
maximum wind speed, probable maximum precipitation,
probable maximum flood discharge and level, soil liquefaction • Dept. approving the
proneness under probable earthquake intensities project
o Administratively
3. Compliance of o Financially
o Land Use Management o Technically
o Building Code
o Building Use Regulation
o Directives and Legislation
o Maintenance Requirement

4. Details about the location of the project, proneness of the

project area to various hazards and analysis of impact on safety
of the project
• R & B Dept.
5. Impact of the project on the environment and the surrounding
population with respect to the type of the project and adoption
of prevention and mitigation measures to prevent and mitigate
the impact.

• JKDMA

• Local Bodies
Table 6.3: Checklist for DPR Format
Relevant Government Schemes and Projects
Many government schemes targeted at different vulnerable groups could be used in
pre-disaster phase as a tool for minimizing their vulnerability and empowering them to better
respond to any disaster. Some of the schemes/ subsidies could also be used in post-disaster

64
phase to rebuild their lost infrastructure, housing, to avail basic amenities/ facilities like
education, health, to restore livelihood, etc. by availing the entitlement of these schemes.
These schemes include Agri-Implements Subsidiary, Animal Husbandry Aid Scheme,
Rastriya Madhyamik Shiksha Abhiyan (RMSA), Annapurna Scheme, Janani Shishu Suraksha
Karyakram (JSSK), Rashtriya Swasthya Bima Yojana (RSBY), Pradhan Mantri Awas Yojna,
Indira Gandhi National Disability Pension Scheme, Assistance to Disabled Widows for
House Construction, etc.
To ensure that the entitlement of these schemes reach the targeted population, it is
necessary that population is aware of such schemes/ projects and their entitlement.
Inter department coordination is very crucial for this entitlement to reach the affected
population especially in a post-disaster scenario.
Budget Allocation
It should be ensured that the expenditure on risk reduction is sufficient and there are
adequate financial arrangements to manage the residual risks. While there are certain
budgeting allocations to partially address requirements of relief through NDRF/SDRF each
department must make adequate provision for DRR.
Mainstreaming is the internalisation of risk awareness and incorporation of risk
reduction measures into the main or the overall policies and programmes within and outside
government. The SDMP provides broad perspective on mainstreaming DRR and CCA. Each
department and agency must review current programmes to include DRR and CCA to the
extent possible cost effectively within their main budget and ensure comprehensive appraisal
of all new initiatives (policies, plans, programmes, projects, etc.) based on the perspectives
provided in the SDMP.

65
 CHAPTER 6: DISASTER PREPAREDNESS & CAPACITY BUILDING:
STRENGTHENING INSTITUTIONAL CAPACITY FOR RESILIENCE

All institutions relevant to a state’s resilience must have the capabilities they need to
discharge their roles. It is critical to involve all stakeholders right from the pre-disaster phase
and to work together in a risk-informed and integrated approach. For this, all stakeholders
should be aware and informed of the existing and imminent risks, incorporate disaster risk
reduction as part of their policy and routine functioning and should allocate resources and
develop capacities to increase the level of commitment to disaster risk reduction for
resilience.

Preparedness Measures
Preparedness for any probable disaster is an essential and proactive step to deal with
any emergency. It is a peacetime phase and provides opportunity to develop and build
capacity of the system and society.

Each stakeholder needs to develop and enhance his/her skills and resources so as to be
able to perform the respective role and responsibility at the onset of the disaster. The key
stakeholders at state level and the respective preparedness measures to be undertaken are
discussed below.

UT Government

The UT Government shall:

1. Ensure that appropriate policies and guidelines are developed

2. Ensure that the State Administration and local authorities take into consideration the
guidelines laid down by JKDMA while planning its activities

3. Ensure that State Government, JKDMA, Heads of Government Departments, FCR,

District Magistrates and local authorities take necessary steps to be prepared for all
probable disasters.

4. Facilitate timely procurement related to disaster management of materials, equipment and

services in connection with the disaster management and ensure their quality

5. Ensure preparation, implementation and timely updation of disaster management plans by

respective state departments, local authorities, communities and stakeholders.

66
Departments of the UT Government

a. Revenue Department
1. Revenue Department is the nodal department for controlling, monitoring and directing
measures for organizing rescue, relief and rehabilitation. All other concerned line
departments shall extend full cooperation in all matters pertaining to the management
of the disaster whenever it occurs.
2. The department will develop socially inclusive relief norms and packages.
3. Arrange with service provider companies for multiple warning messages to
community, officials, etc as per need.
4. Develop and promote insurance, disaster bonds, tax rebate, etc. against the disaster.
5. Arrange for relevant resources in coordination with districts officials for disaster
management.
b. Agriculture Production and Farmers Welfare Department

1. Identify areas prone to various hazards i.e. droughts, heavy rain, floods, cyclones /
heavy wind, pest attack, etc. and monitor them during vulnerable seasons and
promote risk sharing and risk transfer mechanisms

2. Strengthening institutional and technical capacities and Mainstreaming Disaster Risk

Reduction (DRR), Climate Change Adaptation (CCA), and Sustainable Land
Management (SLM) within agriculture related policies, strategies and plans.

3. Spread awareness amongst farmers regarding various crop diseases, water

conservation and Management, prescribed use of fertilisers and pesticides, crop
insurance, crop diversification, adaption of improved technology, alternate cropping
pattern in disaster prone areas, proper seed and fodder management, etc. to build
resilience of agriculture communities to disaster impacts.

4. Ensure a proper mechanism for communicating early warning to farmers regarding

rainfall, flood, droughts, cyclone, etc.

5. Formulate a trained team for assessing damage to crops, soil and other agricultural
damage

6. Enhance preparedness measures to improve effectiveness of emergency response

and recovery actions in agriculture

67
 7. Ensure that the relief is extended to the farmers and agriculture labourer in case of
disaster.

8. Ensure integration and mainstreaming of gender priorities in all activities of the

plan of action to enhance overall long term resilience.

c. Animal/Sheep Husbandry Department

1. Ensure proper mechanism for disease surveillance among animals

2. Prepare a database of veterinary hospitals, clinics and agencies working for welfare
of animals

3. Identify source for procurement of fodder for livestock in scarcity hit areas.

4. Identify safe locations for cattle camps

5. Ensure proper administration of de-worming and vaccinations for cattle, sheep,

goats, pigs and other relevant measures for disease management

6. To spread awareness among rural population regarding management of sick or

diseased animals

7. Ensure proper transportation facilities for sick or critically injured animals

8. Identify space for disposal of animal carcasses

9. Requirement of proper and clean shelter for milch animals like cows and buffalos

10. To take preventive measures to ensure animal to human disease transfer and vice
versa.

d. Civil Aviation Department

1. Ensure that sites for helipads are identified across the state as per the laid guidelines
2. Ensure that the helicopters are available in ready condition during any emergency
3. Ensure that the human resources and technical team is available to deal with any
emergency
e. Department of Ecology, Environment & Remote Sensing

1. Undertake studies and assist state government in understanding impacts of climate

change on the risk of natural hazards

68
 2. Establish linkages with national and international experts/ agencies on climate
research to address better hazard trends.
3. Establish environmental and economic benefits on use of renewable energy and
promote the same
4. Promote use of green technology, CNG usage, use of solar energy, etc.
5. To make citizens aware regarding ways to preserve ground water, saving energy and
reducing carbon footprint in day-to-day life
6. Increase and protect flora and fauna
7. Prepare a comprehensive policy on Climate Change for the state and guidelines to be
followed for the same
8. Ensure that the Air and Water pollution is contained as per the existing norms.
9. Use of Science and technology for better understanding the climate and weather
change.
10. Integrate climate change measures into national policies, strategies and planning.
11. Improve education, awareness-raising and human and institutional capacity on climate
change mitigation and adaptation.
12. Monitor climate change activities, help mitigate its consequences, and reduce the
uncertainties that surround projections.
13. To study the Earth’s climate system and support decision-making about climate
change adaptation, prediction and mitigation.
14. Promote use of Space-based technologies as they play a key role in climate
knowledge, science, monitoring and early warning.
f. Education Department

1. Advocate for inclusion of vulnerability and capacity assessment, disaster risk

reduction measures and corresponding budget in disaster preparedness & response at
school level
2. Develop a policy framework for school safety to be integrated into existing education
policy and processes,
3. Organise camps in school and colleges for awareness of do’s and don’ts of possible
hazards in the state, hygiene and other issues of public health
4. To include aspects of disaster risk management in the school and college curriculum
5. Engage students, parents and communities in school management/maintenance to
prevent future risks and in reinforce messages about disaster risk reduction.

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 6. Ensure preparation of disaster management plans and first aid kits in all schools and
colleges
7. Maintain all the equipment like fire extinguishers, fire-fighting systems, etc. and keep
in up-to-date condition
8. Identify safe sites near the schools/ in the villages to set up temporary learning spaces
Updating and refilling of equipments like fire extinguishers
9. To include and ensure implementation of school safety programme in each school at
the primary level.
10. Identify safe schools and colleges which can be used as relief shelters for short
duration of time, aftermath of any disaster
g. Fire & Emergency Services Department

1. Carry out a systematic, critical appraisal of all potential Fire hazards involving
personnel, premises, services & operation method
2. Improve outreach of the fire services right up to the village level
3. Develop and implement fire hazards mitigation and response plan
4. Ensure proper operation, maintenance and functioning of all fire fighting vehicles,
equipment and personal protection equipments
5. Ensure adequate training of human resource to deal with disaster situation
6. Prepare a database of private fire fighting agencies and their resources
7. Keep vigil regarding MAH units and other hazardous installations in the state and
prepare for possible emergency situation
8. To take adequate steps for institutional reforms, modernisation and organisational
restructuring of fire and emergency services.
h. Department of Food, Civil Supplies and Consumer Affairs
1. Prepare for safety of stored food grains in god owns against inundation and water
logging, fire and other possible hazards
2. Ensure that food grains and cereals are available in stock for emergency purpose
3. Prepare for transportation of stored food grains to a pre-identified safer location
4. Enlist god owns and cold storage facilities, refrigerated transportation vehicles present
in the state along with their storage capacities and facilities available
5. Enlist private retailers and wholesale dealers of food items and packaged drinking
water

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 6. Enlist available kerosene depots, petrol pumps, CNG pumps, diesel depots, LPG
agencies, etc.
7. Availability of adequate/ready to eat meals and appropriate food supplies to the
disaster affected areas.
i. Forest Department

1. Formulate a team to catch wild animals in case they enter inhabited areas
2. Pollution Control Board should ensure that all industries are following proper
guidelines for hazardous waste management.
3. Ensure implementation of policies and programmes for conservation of the
ecosystem, natural resources, welfare of animals and prevention of air pollution etc.
4. To ensure preservation of biodiversity by spreading awareness
5. Ensure restoration of mangroves
6. Ensure effective wetland management, preservation, and restoration
j. Health & Medical Education Department

1. Organize frequent awareness camps for hygiene and other public health issue
2. Develop a comprehensive and workable plan for hospital preparedness and mass
casualty management
3. Establish paramedic cadre through training programmes and accredit / license them
4. Recognize and accredit trauma centers
5. Establish statewide medical emergency access number and make public awareness
6. Ensure authentic medical care database enlisting public and private facilities
available in the state. This includes details of human resources, logistics, medical
equipments, medicines, antidotes, personal protective equipments, disinfectant,
vaccines, diagnostic labs, blood banks, etc.
7. Standardize and license ambulance services for smooth operation
8. Ensure availability of adequate supply of life saving equipment and drugs, portable
supplies like portable oxygen cylinders, portable x-ray machines, triage tags, etc.
9. Formulate trained medical first responder, Quick Response Team, stationary and
mobile decontamination facilities, identification of poison centers, mobile hospital,
and antidotes plan.

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 10. An updated Disaster / emergency management plan at hospitals for chemical,
biological, epidemiological, toxicological, nuclear and radiological for or any public
health emergencies.
11. Prepare trained psychological and psychosocial care teams
12. Ensure proper and safe management of medical waste
13. Keep at disposal list of various hazardous chemicals present in the state and their
antidotes
14. Promote studies on vulnerabilities and capacity development for inclusion
15. Disaster data collection and management
16. Risk transfer arrangements including multi hazard insurance for life and property.
17. Ensure facemasks, hand gloves, ventilators, oxygen concentrators, biomedical
equipments, Personal Protective Equipments, diagnostic test kits and relevant
accessories etc and other relevant kits for biological hazards are available
18. To ensure proper training of human resources viz doctors, nurses, paramedics and
other relevant stakeholders
19. Use of high end technologies like data analytics should be used for better
understanding of problems of diseases and its effects and to take relevant mitigation
measures
k. Industries and Commerce Department
1. Create awareness for health & safety for workers and factory management

2. Conduct health & hygiene survey and inspection in various industrial sectors

3. Make a database of MAH, A, B and C types of units and hazardous installations in the
state and their safety officers

4. Ensure preparation of onsite emergency management plan by all industrial units and
off-site plan for MAH unites. Ensure updation of the same on regular basis.

5. Prepare a database of suppliers/ manufactures of antidotes for hazardous chemicals

6. Ensure availability of emergency human resources, vehicles, equipments and antidotes

to address the emergency.

7. Enlist nearby hospitals and medical care facilities in case of any chemical emergency.

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l. Information Technology Department
1. Display verified Information Education and Communication (IEC) materials for mass
dissemination and awareness among the public and all stakeholders for response and
relief

2. Prepare a database of popular media channels and media persons (both print and
electronic)

3. Ensure proper mechanism/ channels for addressing public so as to avoid and manage
rumours with help of various media

4. Prepare a plan for providing / broadcasting warnings, dos and don’ts to media and
ensure its dissemination to public before, during and after the disaster

5. Ethical guidelines for coverage of disaster is prepared and shared with media

6. Develop a media management plan for media briefings (depending on the severity of
the disaster) and designate nodal officer(s) for interacting with media.

m. Home Department
1. Ensure proper functioning of all equipment and vehicles
2. Develop a communication protocols for effective response
3. Prepare for quick deployment of SDRF, Civil Defence, Home Guards and volunteers
for providing safety to affected population and evacuated structures/ houses
4. Prepare plan for management of terrorist attack, bomb blast, stampede, etc.
5. Train police personnel and staff of PCR van in first aid and basic life support
6. Prepare communication plan for uninterrupted communication to all police posts and
various control room and emergency centres across the state
7. Availability of police/SDRF personnel 24*7 for any untoward emergency
8. Ensure law and order in times of emergency.

o. Transport Department
1. Ensure proper functioning of filling station, vehicles and equipment

2. Prepare for prompt deployment of vehicles at short notice for various purposes like
mass evacuation, transportation of response teams, relief items, health team to deal with
emergency and victims, etc.

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 3. Prepare mechanical team for prompt repair of equipment and vehicles

4. Train drivers, conductors, crew members, port officials in first aid and basic life saving
techniques

p. Public Works Department

1. Ensure availability and functioning of all equipments like cranes, earthmovers, JCBs
etc. Prepare a data base of availability of the same with private agencies also

2. Prepare for prompt clearance of debris post disaster

3. Prepare the demolishing squad for prompt demolition of unsafe buildings post disaster

4. Prepare for prompt clearing and repairing of damaged roads, culverts, bridges and
flyovers

5. Ensure prompt construction of new temporary roads for diverting traffic from the
affected area

6. Prepare for construction of temporary facilities like that of medical post, temporary
shelters, etc. at short notice.

7. Prepare for prompt establishment of helipad near the affected site for responding teams

8. Prepare for restoration of government buildings damaged during disaster

q. Science & Technology Department

1. Ensure proper mechanism to issue alert/ warning through SMS through service
providers

2. Prepare for providing safety and serviceability of critical communication towers

through respective service providers

3. Prepare for prompt establishment of alternate communication links like HF, VHF,
HAM, Satellite Phones, etc., in case of failure of primary communication channels
during disaster

4. Ensure restoration of emergency communication in disaster affected areas.

5. Emergency response teams with detailed technical plan to restore communication in

disaster affected areas.

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 6. Contingency plan including pre disaster contacts with suppliers government and
private for easy availability of resources at the time of emergency.

r. Social Welfare Department

1. Prepare and regularly update database of scheduled castes, developing castes, social
and economically backward classes, minorities communities, physically and mentally
challenged persons, orphans, destitute, beggars, old aged persons and ensure that they
are able to avail benefits under respective welfare schemes so as to reduce their
vulnerability to disasters

2. Address peoples’ underlying vulnerabilities, increase their capacities to cope with

the effects of natural hazards and facilitate empowerment processes.
s. J&K Youth Services & Sports Department
1. Organise training and awareness camps for youth for first aid, relief and camp
management, psycho social care, search and rescue for small incidents, fire fighting

2. Creation of database of trained volunteers in case of emergencies

3. Build awareness of Youth and mobilise them to play key roles on practical
community based actions for Disaster Risk Reduction and climate change
adaptation.
t. Tribal Affairs Department
1. Prepare a database of tribal groups in the state, their population and habitats

2. Ensure they are well covered under all government schemes targeted to them with
special focus on the five particularly Vulnerable Tribal Groups

3. Conduct a specific study on indigenous knowledge on various coping mechanisms

and early warning systems and build upon the same.
u. Social Welfare Department
1. Prepare for prompt action in aftermath of any disaster so as to prevent human
trafficking particularly that of women, girls and young children

2. Ensure women and children in vulnerable circumstances are well covered under

3. various government schemes targeted to them. Prepare a database of authentic NGOs

working for women and child empowerment/ rights

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 4. Update database of pregnant women/ women with disabilities.

5. Identification of separate shelter homes for the pregnant women / children and
person with disabilities with all necessary primary requirements

J&K State Disaster Management Authority (J&KJKDMA)

1. Assist the State Government in formulation of policy for relief, rehabilitation,

reconstruction and recovery.

2. Monitor preparation, updation and implementation of disaster management plans

3. Promote disaster management capacity building and training awareness and

preparedness among all stakeholders regarding potential disasters

4. Assist in development of methodologies for reduction of vulnerability of disasters

5. Publish various guidelines to be followed for various phases of disaster management

6. Inspect existing development plans made by various authorities and recommend

measures to be incorporated for disaster management

7. Develop database of key experts, consultants, organisations, agencies, etc working in

the field of disaster management.

8. Policy related to mechanisms for risks transfer including insurance

The State Relief Commissioner (COR)/Financial Commissioner Revenue

1. Prepare, review and update State level emergency plans and guidelines and ensure
that the district level plans are prepared, revised and updated

2. Develop an appropriate relief implementation strategy for the State in consultation

with the Authority, taking into account the unique circumstances of each district and
deficiency in institutional capacity and resources of the State.

3. Strengthen relief distribution and accounting system at state and district level through
identification of centralized system for receipt, storage and distribution of relief and
by ensuring rate contract, procurement and stockpile of relief material

4. Ensure that Disaster Management mock exercises are carried out regularly.

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 5. Ensure that communication system is in order and contingency plans provide for
maximum involvement of local agencies.

Deputy Commissioners/ Municipal Commissioners

1. Ensure an updated database of critical resources (equipments, life saving facilities,

trained personnel, etc.) and its availability in the District/ Corporation

2. Ensure that all critical life saving equipments are maintained and ready to use

3. Ensure that District/ Disaster Management Plans are prepared and are timely updated

4. Ensure that local authorities in the District/ Corporation are involved in developing
their own mitigation plans

5. Ensure that disaster management drills are carried out periodically

6. Ensure that District Emergency Operation Centre/ Control Room is fully functional
and communication systems is in order

7. Ensure that open and safe places for mass evacuation are identified

8. Ensure that safe buildings are identified for purpose of relief camps

9. Ensure that site for helipad is identified at key locations

10. Coordinate the activities of reconstruction and rehabilitation in the districts

Local Authority

1. Help JKDMA, COR and Deputy Commissioners in disaster management activities

2. Ensure training of its officers and employees and maintenance of resources so as to be

readily available for use in the event of a disaster

3. Ensure that all construction projects under it conform to the standards and laid down
specifications

4. Each department of the Government in a district shall prepare a disaster management

plan for the district. Carry out relief, rehabilitation and reconstruction activities in the
affected area within its jurisdiction

5. Prepare database of vulnerable community and most vulnerable groups at risk

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 6. Advice and issue direction wherever necessary for community disaster prevention,
mitigation and preparedness through local resources and participatory approach

7. Take appropriate actions to enhance community preparedness

8. Conduct Disaster Management drills periodically.

Indian Railways

1. Ensure proper security and safety measures at each railway station in the state

2. Ensure that Do’s and Don’ts about relevant hazards are properly displayed at each
railway station

3. Ensure proper mechanism for crowd control at each major railway station particularly
during festival seasons

4. Ensure that disaster management plan is in place for the railways

5. Ensure proper mechanism for transportation of mass community and proper handling
and distribution of relief material

Private Sector

1. The private sector should ensure their active participation in the pre-disaster activities
in alignment with the plan developed by the JKDMA / Deputy Commissioner.

2. They should also adhere to the relevant building codes and other safety guidelines
prescribed by relevant authorities.

3. Participate in capacity building vulnerability reduction programme and training

activities.

Community Groups and Voluntary agencies

1. Local community groups and voluntary agencies including NGOs should actively
assist in prevention and mitigation activities under the overall direction and
supervision of the JKDMA or the Deputy Commissioner.

2. They should actively participate in all training activities as may be organised and
should familiarise themselves with their role in disaster management.

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Citizen

It is a duty of every citizen to assist the Commissioner, the Deputy Commissioner or

such other person entrusted with or engaged in disaster management whenever his aid
is demanded generally for the purpose of disaster management. All citizens should
also ensure preparedness at family and individual level by being aware and proactive.

Capacity Building Measures

Various stakeholders should engage in building their respective coping capacities by
conducting regular trainings to upgrade their skills, by developing techno- legal
regime to better deal with different aspects of disaster management and by taking
other proactive measures for the same. Some of the suggestive measures are discussed
below.

Techno-legal Regime

1. Review and revise building by-laws

2. Review and revise town planning Act & Rules
3. Fire Prevention and Life safety Measures Act
4. Ensure strict implementation of Code and Rules
5. Monitoring of quality construction
6. Construction/Strengthening of SEOC/ DEOC.
Training

Training is one of the essential processes to build and enhance capacity to deal with
disasters. Training the community ensures skilled and trained first responders during
any emergency without panic. Secondly, training the officials and responders
ensures rapid and appropriate response from various stakeholders, thus minimising
the loss.

Training Responsibility
Training to civil defence personnel in various aspect of disaster Home Dept.
management Commandant General
Home Guards
Training to Home Guards personnel in various aspect of disaster Director Civil Defence
management including search and rescue JKDMA

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 SIDM

Training of NCC and NSS personnel in various aspect of Education Department

disaster management Director, NCC
SIDM
Training to educational and training institutions personnel in Education Department
various aspect of disaster management JKDMA
SIDM
Training to civil society, CBOs and corporate entities in various JKDMA
aspect of disaster management SIDM
NGOs
Training to fire and emergency service personal in various aspect UDD
of disaster management Municipal Corporation
JKDMA
SIDM
Training to police and traffic personal in various aspect of JKDMA
disaster management SIDM
Home Dept.
Police training Institute
Training to State Disaster Response Force (SDRF) Teams in NIDM/NDRF
various aspect of disaster management Home Dept.
Addl. DGP (Arms)
Addl. DGP (Training)
JKDMA/SIDM
Training to media in various aspect of disaster management NIDM
Information Dept.
Information Training
Centre
JKDMA/SIDM
Training to govt. officials in various aspect of disaster NIDM
management JKDMA/SIDM
Departmental Training

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 Institutes
Training to engineers, architects, structural engineers, builders Departmental Training
and masons in various aspect of disaster management Institutes under R & B and
Irrigation Dept.
NIDM
JKDMA/SIDM
Incorporation of DRM curriculum in all the government training All Department
institute JKDMA, SIDM
Training to all the newly appointed government officials on the GAD, IMPA, JKDMA,
various aspects of DRM SIDM
(Table 7.1 Training of various stakeholders)

Awareness

Awareness in the masses regarding dos and don’ts, vulnerable areas and emergency
numbers empower them to do the needful proactively as and when the situation arises.
Awareness of community also reduces the chances of chaos and panic.
JKDMA regularly undertakes media campaigns through radio, television and
newspapers. These include audio-visual campaigns through jingles, pamphlets, videos, etc.
The campaigns cover probable hazards and other safety measures as per seasonality of
hazards in the State like heat wave, cold wave, Diwali safety, etc.
Similarly, following measures can be taken by respective department towards
generating awareness:
1. Mass awareness through advertisement, hoarding, booklets, leaflets, banners through
print media etc.

2. Organize awareness camps for children and make use of folk dance and music, plays,
painting competition, debate competition, etc. and to disseminate the information

3. Organize disaster management exhibition and use scientific tools like shake-table
demonstration, etc to disseminate awareness about various hazards and ways to deal
with them

4. Arrange for TV Spot, radio spot, audio-visual and documentary, etc. to reach out to
masses at large

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5. Media can play a vital role in public awareness and preparedness through educating
the public about disasters; warning of hazards; gathering and transmitting information
about affected areas; alerting government officials, helping relief organizations and
the public towards specific needs; and even in facilitating discussions about disaster
preparedness and response

Developing Technical and Computer Aided Databases

1. Update the disaster risk assessment based on new districts created and any change in
risk profile of population over the years

2. Develop GIS based information system for quick decision making at the time of
disaster

3. Develop comprehensive decision support system with real-time data access and
management

4. Create and disseminate database of contact details, resources, response agencies,

NGOs, trained personnel, most vulnerable groups, evacuation routes, available
shelters, relief centers, critical infrastructures, storage godowns, etc.

Knowledge Management

1. Document disasters, their impacts, lessons learnt and make it available in easily
accessible format in the public domain.

2. Undertake research studies and apply the outcomes in disaster management practices

3. Document field data, experience and indigenous technological knowledge from local
community

4. Share data/ information/ reports/ proceeding of consultation meeting/seminars etc.

5. Use information and communication technology at disaster management centres,

state, district, taluka, village EOCs

6. Each department should have in place departmental disaster management plan and
hazard wise SOPs

7. Each department should also conduct mock drill at regular interval and update the
plan based on gaps identified in the mock drill

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Capacity Development Themes:
The capacity development is applicable to all aspects of disaster management. The
State government and its institutions will take actions for capacity development of different
stakeholders. The capacity development themes for DRR and related responsibilities are
summarized in the below given table.
Table: Capacity Development for DRR Themes - State
S. No. Thematic Area Sub Thematic Area

• Adopting the best global technologies

Deploying
advanced • Identifying technology needs based on hazard risk and
1.
technology and vulnerability and experiences
equipment • Procurements of best and most appropriate equipment

• Maintaining the resource network

• Monitoring and maintaining the resource data

• Regular updating the resource data

• Developing fail-safe communications with advance technology

Disaster
• National and state level disaster information system
2. Information
• Improve data flows across Central Ministries/ Dept./ States and
System
other authorised users

• Integration of HRVCA data with disaster information systems

• Ensuring reliable and credible database on disaster losses

(direct and indirect) and post-disaster reconstruction

• Mainstream and integrate DRR and strengthen institutional

Disaster Risk mechanisms for DRR

3.
Governance • Promote participatory approaches, partnerships and networks

• Promote quality standards, certifications, and incentives

Disaster Risk • Promote, encourage and facilitate appropriate risk transfer

4.
Management instruments by collaborating with insurance companies and

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 Financial institutions.

• Design and implement social safety-net mechanisms, including

community-based systems

• Disaster resilience of health care systems by integrating

disaster risk management into primary, secondary and tertiary

health care

• Business resilience, and protection of livelihoods and

productive assets throughout the supply chains, ensure continuity

of services and integrate disaster risk management into business
models and practices.

• Trainings in DRR at different levels of local governance

DM and DRR
capacities at local • Improve awareness and preparedness of stakeholders at all
5. levels levels

• Preparing DM plans, regular updating, and mock drills

• Incorporate subjects of relevance to DRR in curriculum

• Introduced specialized programs, degrees, courses and

DRR– in diplomas

education, • Promote relevant research projects, programs within institutes

6. research and and through research grants

professional • Technical and professional programs relevant to various

disciplines specialized aspects of DRR

• Develop ToTs

• Research in diverse areas of DRR

• Deploy the state of art methods and technologies

7. Early Warning • Up-grade technical infrastructure and systems

• Improve EW dissemination and ensure the last mile

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 connectivity to the most remote parts

• Improve the alerts system to make it more relevant to

different regions and sections

• Enhance emergency response capabilities

• Strengthen EOCs, improve infrastructure, upgrade equipment,

adopt best available technologies

• Improve capabilities based on experience after each disaster

Emergency
event
Operation
8. • Deploy best of ICT
Centres -
• Conduct capacity audits of EOCs
Strengthening
• Set up State and District level EOCs with adequately trained

manpower

• Regular reviews and improvement of SOPs, protocols, etc.

• Mobile control rooms

Global • Recognise and address climate change risks in DRR

Anthropogenic
9. • Strengthen adaptations to GACC
Climate Change
Risks
• Incorporating DRR into development plans and programs

• Incorporating PM’s Ten Point Agenda for DRR into

Mainstreaming development plans

10.
DRR • Making DRR as an inherent part of all ministry, department,

state development plans

• Extending convergence to the domain of DRR

Non-Structural • Incorporating DRR into development plans and programs

11.
Measures for • Incorporating PM’s Ten Point Agenda for DRR into

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 DRR development plans

• Making DRR as an inherent part of all ministry, department,

state development plans

• Extending convergence to the domain of DRR

• Understanding post 2015 global frameworks and their

Post-2015
implementation for DRR
Global
• Understanding Sendai Framework and its integration into the
Frameworks –
implementation of DMP at different levels
coherence and
12. • Understanding DRR aspects of SDG and its implementation for
mutual
DRR
reinforcement
• Understanding COP21 (Paris Agreement on Climate Change)
across DRR
and the integration of climate-related concerns into various
themes
DMPs

• Institutional reforms, modernization, and changes in legal

framework

• Strengthening of Fire and Emergency Services

• Strengthening of the Fire and Emergency Service through

revamping, institutional reforms, and modernization

Preparedness and • Comprehensive revamping of Fire and Emergency Services with

Response institutional reforms and modernization
13.
• Adoption and adaptation of emerging global good practices

• Rigorous training and HRD of first responders

• Table-top exercises, simulations, and mock drills to improve

operational readiness of the plans

• Rescue equipment at all levels

• Systems to provide basic services in emergencies

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 • Preparedness and response plans at all levels

• Community-based DRR and DM

• Post-Disaster Needs Assessment (PDNA) systems and expertise

• Credible damage assessment mechanisms and expertise

• Planning capabilities to ensuring coherence of BBB with overall

Recovery and
14. development efforts and goals
Build Back Better
• Studies and research for incorporating resilience into BBB

models

• Studies on past disasters and recovery to draw useful lessons

• Training and skill development for masons and other artisans

• Promoting community-based DM considering specific needs,

regional diversities and multi-hazard vulnerabilities

Skill
• Training on CBDR and preparedness at local levels
Development
15. • Address gender issues, and special needs of children, disabled,
for Disaster
aged, etc. holistically in the DM context
Resilience
• Promote private sector and civil society involvement

• Promote PPPs

• Gender-based vulnerabilities

• Scheduled Castes and Scheduled Tribes

Social Inclusion
16. • Elderly
in DRR
• Children

• Persons with Disabilities

• Observation Networks,
Understanding
17. • Information Systems,
Risk
• Research

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 • Forecasting

• Zoning/ Mapping

• Monitoring

• Hazard Risk Vulnerability and Capacity Assessment (HVCA)

The National Institute Disaster Management (NIDM), in partnership with other

research institutions has capacity development as one of its major responsibilities, along with
training, research, documentation and development of a National level information base. The
NIDM will play an important role in developing and facilitating the implementation of a
National training schedule for Disaster Management. NDRF can also support capacity
development and training needs of SDRF, Civil Defense, community and volunteers in
preparedness and response. At the state level the major responsibility of the training in
disaster management lies with the JKDMA and SIDM. Also, the training would be conducted
in all other state level training institutions.

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 CHAPTER 7: DISASTER RESPONSE & RELIEF

Level of Disasters
L concept has been developed to define different levels of disasters in order to
facilitate the responses and assistances to states and districts.

Level Description Activities

L0 Normal time Prevention, preparation and capacity building
activities like trainings, preparation and updation
of plans, mock drills, procurements of
equipments, etc
L1 Can be managed at district level State and Centre remain ready to assist if need
arises
L2 Beyond the capacity of district Require active participation and mobilisation of
resources from State Government
L3 Resources of District and State Require Central Government for reinstating the
Government have been State and District machinery as well as for
overwhelmed rescue, relief, and other response and recovery
measures
Emergency Operations Centres
EOC is an offsite facility which functions from the State / District/ Tehsil
headquarters. It includes the space, facilities and protection necessary for communication,
collaboration, coordination and emergency information management. It is a combination of
various line departments of Government and other agencies whose services are generally
required during incident response.

There is a comprehensive network for effective disaster management which includes

emergency communication, operation and response management. It includes the State
Emergency Operation Centre (SEOC) at Hari-niwas, an upcoming SEOC at Ompora Budgam
Gupkar Gandhinagar with 20 District Emergency Operation Centers (DEOCs).

The existing State Emergency Control Centre (SEOC) is a parallel SEOC and a State-
of-the-art infrastructure comprising of main control room, conference room, exhibition area,
media briefing room, offices/meeting rooms for senior officers, rest rooms, etc is being
constructed at Ompora. The whole facility will be equipped with all the latest amenities
/facilities.

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Security of SEOC

State Emergency Operation Centre (SEOC) being the nerve centre during occurrence
of any disaster needs to be secured properly. Presence of important data, information,
technical support and human resource makes security of SEOC of utmost importance. Along
with this, frequent visits of Hon’ble Ministers and Senior Officials in SEOC makes it
necessary to secure the centre.

In order to avoid any untoward incident at this point of juncture vigilance by Poice is
must. Hence, when the SEOC is activated due to any imminent disaster services of police
should be activated for the safety and security of SEOC. Hence, Police shall take over
security operations of SEOC apart from services rendered by local security agencies for
SEOC.

Communication:

Our present SEOC comprises of State of art Conference Room with video
conferencing facilities, along with facilities of internet and connection to all desktops so that
easy communication can prevail. SEOC is a secure centralized location, with adequate
communications for planning, decision support and coordination during a disaster or
emergency. To ease the process of communication a permanent helpline number 1070 is
installed. For communication with other stakeholder’s number like 104 as health helpline
number, 100 for police are also provided.

On the spot information dissemination on the current natural disaster is also part of
SEOC. Briefing to press and media on the imminent disaster is also carried out. Warning
dissemination is an integral part of disaster management practices and SEOC is the key
organisation of Early warning dissemination. The Common Alerting Protocol(CAP) is used
for warning dissemination to common massed along with that DSS portal is also used for
early warning dissemination and alert generation to all the IRS functions to ease out the
process of Decision support system and disaster management.

Activation of EOC

The EOC is a nodal point for the overall coordination and control of response and
relief work. In case of an L1 Disaster the DEOC will be activated, in case of an L2 disaster
SEOC will be activated along with the DEOC. Working of EOC can further be understood by
following states:

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 i. Normalcy (Steady State)- When full activation of the EOC is not warranted
ii. Emergency / Disaster Alerts- When the EOC is brought into full or partial
activation to preemptively reduce the impact of impending incidents and respond to
the impact of the incident when it transpires
iii. Emergency/ Disaster- When an incident occurs with or without prior warning
requiring full activation of the EOC in response to the incident

Command & Control of EOCs

The EOC, its system and procedures are designed in such a way that information can
be promptly assessed and relayed to concerned parties. Immediate dissemination of
information contributes to quick response and effective decision-making during emergency.
Being the main coordination and control point for all disaster specific efforts, the EOC is the
place of decision-making, under a unified command.

The EOC in normal circumstances works under the supervision of Commissioner

secretary to Department of DMRR&R at the State level and under the District Deputy
Commissioner at the district level. It is the nerve centre to support, co-ordinate and monitor
the disaster management activities at the district level. In a disaster situation, the EOC will
come under the direct control of Chief Secretary or any other person designated by the Chief
Secretary as Chief of Operations.

Functions of EOC

1. Receive, monitor, and assess disaster information

2. Monitor, assess, and track response units and resource requests
3. Manage resource deployment for optimal usage
4. Make policy decisions and proclaim local emergencies as needed
5. Provide direction and management for EOC operations through set priorities and
establish strategies
6. Coordinate operations of all responding units, including law enforcement, fire,
medical, transport, shelter, food, water etc
7. Augment comprehensive emergency communication from EOC to any field operation
when needed or appropriate
8. Maintain EOC security and access control
9. Keep Senior, subordinate and relevant officials informed

91
 10. Keep local jurisdictions (Village/town/City, district and State) informed
11. Operate a message centre to log and post all key disaster information and keep media
informed about the current situation of the disaster.
12. Develop and disseminate public information warnings and instructions through media
and CAP.
Emergency Response Centres (ERCs)
In order to have speedy response in search, Rescue and relief, JKDMA shall establish
ERCs at strategic locations of the UT .The ERCs shall be equipped with trained manpower,
State-of-art vehicle and equipment’s to provide support to the District EOCs to fight the local
emergency, if any. ERC performs response related activities and increase the preparedness
through capacity building.

Activation

ERC shall get activated in case of:

• An event is or has the potential to becoming an L2 disaster or

• Specialist rescue operation is required or

• There are insufficient local emergency rescue resources

Command & Control

The ERCs work under the direct control of Commissioner secretary of department of
DMRR&R during response time and under representative, Municipal Corporation/ District
Administration during peace time. The ERC is the instrument to provide multi-hazard
emergency response to L2 events.

District Deputy Commissioners/ Municipal Commissioners request the assistance

from the ERC team as soon as it is established that district resources are insufficient to deal
with the emergency situation at hand.

They issue instructions regarding exact quantum of resources (in terms of manpower,
equipments and essential items from key departments/ stakeholders) that is required, type of
assistance to be provided the time limit within which assistance is needed, details of other
task/response forces through which coordination should take place.

92
Trigger Mechanism
Response process begins as soon as it becomes apparent that a disastrous event is
imminent and lasts until the disaster is declared to be over. Response is triggered on receiving
any early warning or at occurrence of disaster as the case may be. On receipt of alert/ early
warning or information about onset of disaster, District Deputy Commissioner or
Commissioner secretary to department of DMRR&R assumes the role of the Incident
Commander (IC) for L1 or L2 level disaster respectively, as the case may be.

Immediate access to the disaster site through various means of communications such
as mobiles, VSAT, wireless communication and hotline contact is also made. Depending on
level of disaster, the required and relevant Incident Response Teams (IRTs) shall be
activated. The UT Government may publish a notification in the official gazette, declaring
such area to be disaster-affected area.

The EOCs and ERCs shall be put on full alert and shall continue to operate as long as
the need for emergency relief and operations continues and the longer term plans for
rehabilitation are finalised.

Early warnings will be published/ issued by the respective agencies during different
disaster which is as follows:

Disaster Agencies
Earthquakes ISR, IMD
Floods IMD, Irrigation Dept.
Drought Agriculture Dept.
Epidemics Health & Family Welfare Dept.
Industrial & Chemical Accidents DISH, Labour & Employment Dept.,
Fire Fire & Emergency Services
Table 7.2: Agencies Competent for Issuing Disaster Specific Early Warning

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 In case of Early Warning

Early Warning Agency

Activate IRTs as per the
requirement and level of
disaster
SEOC DMR
R&R

Activate IRTs as per the

DEOC requirement and level of
DC
disaster

Figure 7.1: Trigger Mechanism in Case of Early Warning

Without Early Warning

PMO, Cabinet Secretary, Secretary-Home and

Defence, NDMA, MHA.

Activate IRTs as per

LG, Disaster Management DM the requirement and
Advisor, SEC SEOC RR& level of disaster
R
Activate IRTs as per
DEOC DC the requirement and
level of disaster
DDC chairman
TEOC Tehsildar

Respond and simultaneously

report

Figure 7.2: Trigger Mechanism without Early Warning

94
Incident Response System
Incident Response System (IRS) is one of the crucial tools for coordinated response.
The system envisages that the roles and duties are laid down in advance, the personnel
earmarked and trained in their respective roles and duties. It fixes accountability of the
earmarked personnel and also avoids duplication of efforts by clearly demarcating the area
specific task force teams.

It provides a participatory, well structured, fail safe, multi disciplinary, multi-

departmental and systematic approach to guide administrative mechanisms at all levels of the
government. It also provides scope for private sector, NGOs, CBOs, PRIs and communities
to work seamlessly in the response activities.

Flowchart of IRS is depicted in Figure 8.3. The detailed roles and responsibilities of
each section, branch and group are mentioned in Annexure 4.

95
 JKDMA

Figure 8.3: Incident Response System

96
Emergency Support Functions
Emergency Support Functions (ESF) are critical services which are performed in post
disaster scenario to minimise life loss and address various issues in a post disaster situation.
The key ESFs are listed in Table 8.3.

Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
Early To activate • Failsafe communication plan • Central • Deputy
Warning, warning is prepared with all early Water Commissi
Communic systems and warning agencies Commissio oner
ation & alert responding • Logistic section of the state n- Flood • District
Disseminat agencies, level IRT coordinates with all Emergenc
ion departments/ the agencies to provide • Indian y
offices and effective communication Meteorolog Operation
public at large support to the field level IRTs ical s centre
for necessary for response. Department • Aapda
actions in • Ensure all communication – Flood, Mitra and
safeguarding equipment, especially the Heat other
life, property satellite phones are in good wave& Youth and
and assets. To working condition 24x7 on all Cold wave Volunteer
provide safe days through regular testing Organisati
communication • Plans for communication • Health & ons
and last mile including telephone and Vsat, Family
connectivity ISAT is prepared for smooth Welfare • Telecom
coordination with the field Department Service
level IRTs Providers
• To disseminate early warning • Department
signals to the district of
administration, local information
authorities, and the public at Technolog
large in the areas likely to be y
affected by a disaster so as to

97
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
reduce loss of life and
property using incident logger
app of DSS and CAP.
• Dissemination of warnings
and information up to the last
mile through CAP.
• Establish protocols and
responsibilities for
coordination with central
agencies and various
providers
• Prepare, update and maintain
a District wise list of wireless
Operators who could be
contacted and deployed at the
site of emergency.
• Have binding agreements
with telecom service
providers to restore damaged
facilities and setup temporary
facilities on emergency basis
• Ensure Inter-Operability
among different telecom
service providers

Evacuatio To ensure • Quick assessment of • Revenue • District

n urgent, evacuation needs information Department Administr
organised and such as the number of people ation
safe escape of and animals to be evacuated • DMRR&R
people from an and mode of evacuation • Police

98
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
area of • Special attention to • Home
imminent or evacuation of persons with Department
ongoing threat disability, Senior Citizen ,Old • Transport
or risk to life age persons, Women, • Transport Dept
and property Pregnant Women, Children Department .
• Mobilize transport and • Aapda
resources for evacuation Mitra and
• Identify Shelter Homes,
Schools, Hostels, Colleges, NCC,
Dharmashalas, Multipurpose NSS and
halls and any other place as
sites for temporary relocation other
for affected people and Youth and
animals Volunteer
• Identify requirements of Organisati
resources for evacuation such ons
as helicopters, aircrafts, high
speed boats and ships, Trains
and Buses to be provided
• Request for central resources,
if needed
• Coordination with central
agencies to mobilise required
resources

• Earmark resources/ units /

battalions of NDRF /SDRF
for quick deployment
• Prepare handbook/manuals
and SOP for evacuation for

99
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
people and animals
Data To ensure sound • JKDMA works with the • JKDMA
Collection reporting planning section at state level • DMRR&R DM & Deputy
& mechanism to for making of Incident Action • Revenue Commissioner
Manageme meet the Plan (IAP) and dissemination Dept
nt information of information.
needs of both • Creation of a cell at the
Central and District level and place
State dedicated resources to collect/
governments update data on all essential
about the services (as per the template
disaster given in the IRS guidelines)
which will help during the
response phase for effective
reporting and compilation.
Fire To provide • Quick assessment of the • Fire &
fighting prompt and situation and deploy the team Emergency DM &
organized along with necessary Services Deputy
services for equipments • ERC s Commissioner
controlling and • Assess and make additional
managing of requirement of resources from • ULBs • Police
fire incidents to nearby districts, states • Fire
save life, Stations
property and
environment
Ensure strict compliance with • Director • DM &
To provide guidelines Health Deputy
Oil and expert and services. Commissi
Hazardous technical • Activation of the On-site & oner
Material support in case Off- site evacuation • Emergenc

100
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
Response of release of any of the persons to avoid any y
hazardous casualty Response
material Centres
• To keep in readiness the
Antidote for the relevant • Fire &
chemical / hazardous gases. Emergenc
y Services
• Health/U
HC
• Jal Shakti • Police
Department
• Provide disaster-affected areas • Revenue
with clean drinking water and Dept
to prevent the spread of water • Panchayat,
Drinking Supply of clean • Provide emergency water Rural
Water and drinking water supplies when there is scarcity Housing
Sanitation and to prevent of potable water and Rural
the spread of • Respond to the public health Developm
water borne needs to prevent and mitigate ent
diseases in the outbreak of epidemic, water Departme
disaster affected and food contamination as nt
areas. well as other public health-
related problems in the • Health &
aftermath of a disaster Family
Welfare
Dept

Search & To provide life • Various positions of IRTs • SDRF/ • Health

Rescue saving (State, District and Taluka) NDRF
assistance in are trained and activated for • Police • Aapda

101
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
aftermath of response • Fire & Mitra and
disaster • Ensure SDRF teams are Emergency other
trained, equipped and ready to Services Youth and
move at a short notice to the Volunteer
affected areas Organisati
• Strategic stationing of state-of ons
the-art equipment for search,
rescue and response with • Fire &
dedicated trained manpower Emergenc
• Activation of the MoU for y Services
emergency supply like • Home
blankets, tarpaulins, tents, Guards
boats, etc.
• Nodal officer selected for
coordination is in regular
touch with MHA /NDMA for
additional requirements
(including help from other
Central Ministries)
• Deploy Quick Response
Teams (QRT) and Quick
Medical Response Teams
(QMRT)
Medical To provide • Health& • Civil
Care emergency • Health and Family Welfare Family Hospital
medical and Dept. works with the logistic Welfare • UHC/PHC
mental health section of the state level IRT Dept /CHC
assistance to provide effective services • Red Cross
during a disaster (Medical Unit) to the field Society
event or health level IRTs for response. • 108

102
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
and medical • District wise repository of • AapdaMit
emergency hospitals (both Government ra and
and Private), availability of other
beds, Doctors, paramedics Youth and
and other trained staff Volunteer
available along with other Organisati
infrastructure details and ons
update it on a regular basis
• Include the hospital wise
information in the DM Plans
at local levels
• Tie-up with the companies for
easy availability of common
medicines during the
emergency situations
• Hygienic conditions are
prevalent at all times in
various facilities established
as well as hospitals to curb
the spread of diseases
• Establishment of sound
protocols for coordination
between state’s health Dept.
and the central agencies
• Ensure strict compliance with
minimum standards of relief
as decided by the state
Dignified To ensure • Adopt SOP in SDMP and • Police • Revenue
Manageme proper DDMP as per GoI guidelines • Health
nt of the identification and implement it properly • Local

103
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
Dead and record- • Establishing Dead Body Authoritie
keeping of the Management Group in the s
dead IRS at state and district levels • F&ES
• Deploy trained squads for • SDRF
detection and recovery of the
survivors and the dead as
early as possible
• The recovery team will use
basic personal protective kit
To facilitate in and follow adequate
appropriate precautions
cremation or • Follow the protocols for the
burial identification of the dead,
recording evidence, transport
Timely claim of and burial (i.e., disposal as
compensation per norms)
and belongings
of the dead to • If required, establish
minimise the temporary mortuaries with
physical, adequate facilities where it is
pyscho-social, possible
ethical, • In special cases, appropriate
religious and arrangements and relevant
cultural issues protocol must be followed for
faced by victims in certain types of
aggrieved disaster keeping in view the
families safety of survivors and
emergency workers
• Inform the affected
community by giving wide

104
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
publicity to the procedure for
the management of the dead
• Take urgent steps for release
of ex-gratia payment
• Ensure to the extent possible
ethical management of the
dead, along with respect for
religious and cultural
sensitivities
• Deal with the psychological
impacts and psycho-social
support
• Ensure due documentation
such as inventory record of
the dead, dead body
identification and all other
relevant information
Relief To provide • Establish a mobilisation • Revenue • Revenue
Logistics water, food, centre at the airport/railway Dept. • Police
and clothing, station for the movement of • Food, Civil
Supply medicines and relief supplies within the Supplies &
Chain other basic state. Consumer
Manageme supplies to the • Deploy special Affairs • Panchayat,
nt people at transportation for the Department Rural
affected areas movement of relief Housing
and relief supplies within the and Rural
centres state Developm
• Make arrangements to ent
receive and distribute Departme
relief and emergency nt

105
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
supplies received from
different parts of the • All line
state and country Dept.
• Coordinate
transportation (air, rail,
road, water) with state
and Central ministries/
departments/ agencies
• Arrange alternative means of
transportation to reach relief
supplies to the affected
locations

Transport To provide • Transport Department works Transport

ation transportation with the logistic section of the Department • Local
services and state level Transport
support for • IRT to provide effective Agencies/
efficient and services(Ground Support RTs
timely response Unit) to the field level IRTs • Railways
and recovery to for response • Civil
a disaster • Requirement of transport for Aviation
the transportation of relief • Municipal
material, responders are Corporatio
arranged ns/ ULBs
• Need of the transport of
various activated section of
the IRT as per Incident Action
Plan is fulfilled
• Indian Railway works with
the logistic section of the state

106
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
level IRT to provide effective
services(Ground Support
Unit)
• Coordinate with central govt.
for transportation of relief
materials
• Within and near Airports:
AAI works with the logistic
section of the state level IRT
to provide effective services
(Ground Support Unit) and
also provide Nodal Officer for
coordination of the relief
operations
• Restoration of Airport at the
earliest involving specialised
response force of the central
government
• Coordination with state and
district administration to
provide air support
• Cater to the needs of transport
to affected people, if required.
Temporar To address all • Ensure strict compliance with Revenue • DM &
y Shelter/ basic needs of minimum standards of relief Department Deputy
Camp the affected of state government Commissi
Manageme population and • Logistic section of the state oner
nt ensure safe, level IRT must coordinate • Panchayat,
accessible, and with Railways to provide Rural
secure shelter e effective services to the field Housing

107
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
nvironment for level IRTs for response and Rural
evacuees. • Alternate places for Developm
establishment of facilities as ent
mentioned in the IRS Departme
guidelines such as relief nt
camp, base, camp etc. are • Food &
identified in advance and Civil
included in the local DM Plan Supplies
• Stockpile tents, tarpaulins and • Health
temporary shelter material in • Police
regional warehouses/ stores/ • Water
EOCs/ ERCs Supply
• Depending upon the
requirement, coordinate with
the relevant Central Ministry
to make sure that the tents/
shelters reach the site on time.
• Deploy a dedicated team at
the local level to receive the
tents/ shelters
• Maintain logs (manual or
computerized) of all material
movements and details of
distribution to required
locations

Energy To ensure rapid • Electricity Board and Power PDD, • PDD

restoration of Distribution Companies work JKPDC
power to with the logistic section of the
affected areas state level IRT to provide

108
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
particularly to effective services to the field
critical facilities level IRTs for response
on the priority • Pre-disaster arrangements for
quick restoration of power
supply with alternate
mechanisms to critical
facilities usually within 6 to
12 hours of placement of
order
• Mobile power supply units or
other arrangements with
power generation companies
for quick deployment at the
site during emergency
Public To ensure safety • Maintain law and order Home • DM &
Safety & and security of during emergency situations; Department Deputy
Security affected • Ensure safety of Women & Commissi
population first Children oner
responders and • Protect property in evacuated • Police
their property areas; • Home
• Controlled access to Guards
damaged areas; • Panchayat,
• Establish and coordinate Rural
traffic control points as Housing
needed; and Rural
• To carry out the crowd Developm
control as needed; ent
• Participate in the local Departme
warning system; nt

• Assist in the evacuation of

109
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
prisoners from the jail by
providing perimeter security
Media To ensure • Information and Broadcasting Information • DM
Manageme precise and Department works with staff Department &Deputy
nt accurate as Information and media Commissi
incident briefing officer of the state level IRT oner
to public and to provide effective services
ensure proper • Ethical guidelines for • Police
rumour and coverage of disaster is
panic prepared and shared with all • District
management media agencies Informatio
• Plan is prepared for n Officer
providing/broadcasting
warnings, do's and don’ts etc.
to media and ensure its
dissemination
Disposal of Ensure safe • Activate the Animal Carcass
Animal disposal of Management Group in the
Carcasses animal IRS UD Local
carcasses • Equip and train the staff in Department Municipality
carcass removal/ disposal at ULBs / Local
pre-identified sites to ensure Sanitary
that no other health hazard is Inspector
created both for the staff as Panchayat &
well as the public RDD Gram
• Use of recommended safety Panchayat
kits and personal protection
by the staff deployed in
carcass disposal so that they
are not infected

110
 Primary Secondary
ESF Aim Responsibilities Dept./ Dept./
Agency Agency
• Take measures for dispersal
of financial relief as per
norms
Table 7.3 Emergency Support Functions

111
Disaster Reporting and Assessments
There are three kinds of assessment reports made at different timeframe. Each
assessment report has different format for collection of data and reporting of information.
These reports are designed to assess:

a) Life threatening situation

b) Need for emergency food, water, shelter and medical assistance
c) Need for restoration of critical facilities and services
The format for Damage and Need Assessment is mentioned in Annexure 10 of volume 3
Rapid Report

It is aimed at obtaining a broad picture of extent of damage. It should ideally be

undertaken within 4-8 hours of all clear. It helps in identifying the immediate actions
necessary to be made.

Preliminary Report

Preliminary report is made within first 7 days of all clear. Within these 7 days, interim
SITREP should be prepared and submitted at the end of 48 hours followed by SITREPS at
the end of each 24 hours period. The objective of this report is to obtain more detailed and
specific data regarding damage and needs. The 48 hours report should include wherever
possible preliminary cost estimates of damage.

Detailed Report

Detailed report is made within 21 days of all clear. This assessment is conducted
sector-wise and is aimed at finding the detailed damage and post disaster needs of each sector
so as to plan recovery and rehabilitation of the sector. The direct costs associated with
recovery and rehabilitation of each sector should be mentioned in details wherever possible.

Deactivation of the Process

After the process of damage and need assessment is over, the designated authority
shall issue the appropriate directives to deactivate the damage and need assessment process.

Minimum Standard of Relief

National Disaster Management Act, 2005 mandates the State government to lay down
detailed guidelines for providing standards of relief to persons affected by disaster in the
State.
 State government has laid down detailed guidelines for providing relief at the time of
disaster. The copy of the same is given as Annexure 5

Finalizing relief pay-outs and packages

Relief packages would include details relating to collection, allocation and disbursal
of funds to the affected people. Relief would be provided to all the affected families without
any discrimination of caste, creed, religion, community or sex whatsoever.

GOVERNMENT OF JK should also ensure that all Government Departments,

responding agencies and forces are striving to achieve the Minimum Standards for Disaster
Relief by GoI/ GoJK. These standards deals with various domain like water supply,
sanitation, hygiene promotion, food security and nutrition, shelter and medical cover.

Relief Kits

Indicative details of immediate relief kit, household kits and family ration kits are
mentioned in Annexure 6.

Post-relief Assessment

JKDMA, with assistance from Government Departments, District Administration and

local authorities shall document learning from the relief experience and incorporate the same
for relief or rehabilitation and reconstruction plans.

Once the situation is totally controlled and normalcy is restored, the LG/Chief
Secretary declares End of Emergency Response and issues instructions to withdraw the staff
deployed in emergency duties

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 CHAPTER 8: REHABILITATION AND RECONSTRUCTION FOR RESILIENT
RECOVERY

Introduction:
Rehabilitation and Reconstruction plays an important role in the disaster recovery
phase. The reconstruction and rehabilitation activities, which follow the disaster response
stage, aim at achieving long term recovery. On the expiry of a disaster declaration, the
JKDMA shall, where necessary, act as an agency for facilitating and coordinating
rehabilitation and reconstruction activities by departments of the Government.

Globally, the approach towards post-disaster reconstruction and rehabilitation has

shifted to building back stronger, faster and inclusive to achieve resilience. While disasters
result in considerable disruption of normal life, enormous suffering, loss of lives and
property, global efforts consider the recovery, rehabilitation and reconstruction phase as an
opportunity to “Build Back Better” (BBB) integrating disaster risk reduction into
development measures and making communities resilient to disasters

The proposed reconstruction and rehabilitation actions/measures in this plan are

keeping in view the worst -case scenarios in which the capacity of the State and District
administration would be overwhelmed and require assistance from the Central Government
for re-establishing normalcy in the disaster affected areas. This chapter provides a general
framework for the role of Government and its development partners in restoring after a
disaster, various essential and basic services. Much of this support will involve the
coordinated working of multiple agencies – government and non-government. All the
agencies are required to closely monitor response activities and to obtain valuable data
regarding the severity and intensity of the event, the affected geographical area and the
potential unmet critical needs of the affected population while evolving a comprehensive
recovery plan. The key activities in the phase are discussed as below.

Recovery Process
Effective post -disaster recovery usually has the following three broad aspects:

• Physical aspects of recovery, i.e. restoration and reconstruction of damaged

community infrastructure, critical infrastructure, private houses and cultural heritage
buildings

114
• Economic aspects of recovery, i.e. livelihoods, productive activities and market
services
• Social recovery, i.e. social and psychological aspects of personal, family and
community functioning and wellbeing.
Recovery is most successful when the wide-ranging needs of communities,
organizations, different vulnerable groups and individuals are addressed in the coordinated
manner that recovery frameworks enable. Disaster recovery process is rarely a set of orderly
actions. It will consist of several related activities such as the following:

Relief Memorandum [for seeking assistance from National Disaster Response

Fund(NDRF)]

While a preliminary rapid damage assessment is carried out during disaster phase, a
damage and loss assessment is conducted following the provisions and norms in the manual
of National Disaster Response Fund/ State Disaster Response Fund. The CoR / Revenue
Department of each is mandated to collect information on damage and losses after any
disaster and to provide the required disaster response thereafter.

The relevant government departments and local authorities shall initiate a detailed
assessment at their respective level for the damages occurred in their respective jurisdiction
in the affected regions.

For assessing the damage and need of the affected community, the damage and need
assessment team should take into account the composite representation of all the different
communities and vulnerable groups in the affected area. An ideal team would include expert
in the related field, government official and representatives from majority and minority
communities, Women, Scheduled Caste, Schedule Tribes, Panchayat member or nagarpalika
member, etc.

The format for development of Relief Memorandum is as per Annexure 9.

Post Disaster Needs Assessment

The primary objective of any Post Disaster Needs Assessment (PDNA) is to assess
the full extent of a disaster’s impact, define the needs for recovery and design a recovery
strategy. A PDNA looks ahead to restoring damaged infrastructure, houses, livelihoods,

115
services, governance and social systems, and includes an emphasis on reducing future
disaster risks and building resilience.

National Disaster Management Authority (NDMA) with the assistance of National

Institute of Disaster Management (NIDM) has developed PDNA Tools for India with the
objective to establish a standardized mechanism based on scientific approach for conducting
post disaster needs assessment for recovery and reconstruction.

The PDNA is an assessment covering 23 thematic areas as follows

• Social Sectors:
1. Housing
2. Health & Population
3. Nutrition
4. Education
5. Cultural Heritage
• Productive Sectors:
1. Agriculture
2. Irrigation
3. Commerce & Industry
4. Tourism
5. Financial Sector
• Infrastructure Sectors:
1. Electricity
2. Communications
3. Community Infrastructure
4. Transport
5. Water, Sanitation & Hygiene
• Cross-cutting Sectors:
1. Governance
2. Disaster Risk Reduction
3. Environment & Forestry
4. Employment & Livelihoods
5. Social Protection
6. Gender Equity & Social Inclusion

116
7. Poverty and Human Development
8. Macroeconomic Impact Assessment

Operational Activities and Protocols for PDNA

Planning for PDNA

1. The JKDMA / DMRR & R department, based on the initial assessment and in
consultation with NDMA will recommend for PDNA exercise after a week of the
disaster event.
2. As per the approval by the competent authority on requirement of PDNA, the State
shall inform the national nodal ministries and invite the other government
departments and technical agencies such as CWC, IMD, ISRO etc. to participate in
the PDNA activities. The JKDMA/ DMRR & R department shall lead the PDNA in
cooperation and coordination.
3. The PDNA should be a well-coordinated inter-agency mechanism. Agreement on the
management structure of the PDNA is important: The management structure shall
comprise of the following:
i. PDNA management team: The assessment team is normally led by the CEO,
Secretary (DMRR & R). The management team shall meet regularly to oversee
the process of assessment, provide strategic guidance, take decisions and shall
ensure that the necessary resources are available for undertaking the assessment.
ii. Coordination team: The members can be from national ministries or state
departments. The team shall be responsible for managing day-to-day planning,
coordinating with the sector team members as well as state government and
donors in conducting the assessment, analyzing the data, preparing the reports,
and the development of the recovery and reconstruction framework under the
guidance on the PDNA management team. The Coordination team shall have
the principal responsibility in organizing the conduct of the assessment and in
ensuring that all logistic arrangements are in place.
iii. Sector teams: the sector teams shall be composed of designated technical
representatives from line departments at national, state and district offices, as
well as with representatives from development partner agencies. The sector team
will be responsible for collecting sector specific baseline data, damage and loss
data, undertaking field visits to validate the data collected, analyzing the data

117
 and writing the sectoral assessment report on damage and loss and propose
sector priorities for recovery and reconstruction.
iv. Report Preparation Secretariat: the coordination team, with technical support
from development partners (if required), shall be responsible for coordinating
with the sectoral team members for the sector report based on data analysis for
their sector. The coordination team will then compile and summarize the
individual sectoral report into consolidated report.
4. The Secretary (DMRR & R) as the leader of the PDNA management team will brief
the Chairman, JKDMA and State Crisis Group on the conduct of the PDNA and
recommend appropriate actions to be taken, including timeframe for completing the
assessment and delivering the report. The Secretary (DMRR & R)will also decide if
assistance from development partners, in the conduct of the PDNA, is needed. If
required, the nodal ministry at national level will coordinate with the Ministry of
External Affairs (MEA), to issue a formal letter requesting for assistance from
development partners in the conduct of PDNA.
5. Once the formal request is made by the MEA to development partners, the MHA will
call for an internal meeting – called “Stakeholder Consultation” between the
international agencies and development partners. The cost of the assessment shall be
borne by the JKDMA / Revenue Department.
6. Prior to starting the assessment, an “Orientation Training” will be organised to
refresh the designated PDNA team members on the broad concept of the damage, loss
and needs as well as methodology for undertaking the assessments for each
sector/sub-sector and issues to be aware when the team is in the field for individual
sector members.
7. Finally, Sector teams will initiate collection of baseline data as per the templates
prescribed in the sector specific Guidance Notes (GOI) on undertaking damage, loss
and needs assessment. The Central Statistical Organization (CSO) as well as the line
departments will maintain and update key baseline date of sectors.

Developing Reconstruction and Rehabilitation Strategy for Resilient Recovery

In parallel to the PDNA planning process, the formulation of Reconstruction and

Rehabilitation will be initiated by JKDMA / Secretary (DMRR & R) with the objectives to:-

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• Provide indicative steps to facilitate a sequenced, prioritised and flexible multisectoral
planning guide for recovery programmes.
• Provide guidance to state for organising post-disaster recovery in accordance with the
damages, losses and needs following a disaster event.
• Plan and implement a post-disaster recovery programme in an inclusive and
transparent manner (including financial planning and institutional arrangements).
• Recommend policies, strategies, areas of technical assistance and monitoring support
needed for recovery programming.
• Optimise the use of national and state flagship programmes, other schemes and
resources for implementing recovery.
• Provide guidance to reduce future disaster risks and allow for further opportunities for
long-term sustainable development.
Short-term, Mid-term and Long-term Recovery
The disaster recovery programmes usually proceed in three distinct stages to facilitate
a sequenced, prioritized, and flexible multi-sectoral approach. Three recovery stages, in
which appropriate policies and programmes tend to be planned and implemented are: a) Short
term, b) Mid -Term, and c) Long-term.

Repair and Restoration

The state governments as per the existing policy provide assistance to the affected
citizen to repair and restore damaged houses and dwellings. Respective departments should
carry out repair and restoration of the related infrastructure, facilities, services, etc. at the
earliest so that the essential services can be resumed to bring the life back to normalcy.

The government shall also coordinate with national and international NGOs, donor
agencies and other government bodies to prioritise restoration of critical infrastructure like
health, temporary housing, lifesaving facilities, critical government infrastructure, etc.

Reconstruction

J&K State Disaster Management Authority (JKDMA) shall oversee reconstruction

and rehabilitation work and ensure that it takes into account the overall development plans for
the state. These reconstruction efforts include:

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 • Reconstruction of public infrastructures and social services damaged by the disaster,
which can be completed over long-term
• Re-establishment of adequate housing to replace that which has been destroyed
• Restoration of jobs / livelihood that was lost
Restoration of the economic base of the disaster areas
a. Owner Driven Reconstruction
• Reconstruction should be done on the principle of Owner Driven Reconstruction.
Here the district administration aids in provision of funds and technical expertise for
construction activity. In principle allow active participation of the affected family/
owner in rebuilding their houses and ensures that their houses suit their cultural,
occupational and other personal needs and context. It also gives them a sense of
ownership and change their mindset from ‘being a beneficiary’ to ‘being am owner’
which also aids in psychological rehabilitation.
• The active participation of the owner also ensures regular monitoring of the process,
quality of material used, etc. which helps in speeding up the reconstruction process.
b. Build Back Better

• Reconstruction post disaster also gives an opportunity to build back better. The new
construction post disaster should comply with all safety norms, guidelines and
building codes. The design of these buildings should be disaster resilient as per the
hazard profile of the state.
• Government of Gujarat shall monitor the reconstruction process and ensure that the
principle of build back better is followed through disaster resilient reconstruction.

Rehabilitation
Holistic rehabilitation post disaster includes many inter linked aspects. It is critical to
address the need of affected population in order to achieve early recovery and to bring back
life to its normalcy.

Socio-economic Rehabilitation

Socio-economic rehabilitation is aimed at revamping the social and economic fabric

to the pre-disaster or a better situation. It also addresses issues like that of restoration and
generation of livelihoods. This is done by providing required training, skill, tools and
equipment to restart the previous or new livelihood options.

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Care should also be taken to address the needs of various socially and economically
vulnerable groups like that of women, adolescent girls, old age persons, person with
disabilities, children, destitute, below poverty line population, scheduled castes, scheduled
tribes, particularly vulnerable tribal groups, etc.

Psychological Rehabilitation

Disasters often lead to long time stress and trauma due to loss of near and dear ones,
injuries, loss of limbs, loss of housing and related property, trauma generated by facing the
disaster and fearful sites, fear of repetition of the disaster, etc. If not addressed appropriately,
it may lead to lifelong psychological fear and disorders, thus it is necessary to provide
psycho-social first aid and psychological care to the affected population.

Environmental Rehabilitation

Environmental impacts of disasters can result in serious risk to life and livelihoods if
not addressed. Environmental emergencies like uncontrolled, unplanned or accidental release
of a substance into the environment not only impact human life in many ways but also
damage environment to great extent which may be impossible or may take years to restore to
its original.

Thus without proper consideration of the environment, pre-existing vulnerabilities

may be re-created or exacerbated. Thus GoJK along with other concerned department should
ensure measures to decontaminate the affected elements like air, river, water bodies, forests,
etc.

Relocation

The state government believes that need-based considerations and not extraneous
factors drives the relocation of people. The local authorities, in consultation with the affected
persons and under the guidance of JKDMA, shall determine relocation needs taking into
account criteria relevant to the nature of the calamity and the extent of damage. Relocation
efforts will include activities like:

1. Gaining consent of the affected population

2. Land acquisition
3. Urban/ rural land use planning
4. Customizing relocation packages

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5. Obtaining due legal clearances for relocation
6. Getting the necessary authorization for rehabilitation
7. Livelihood rehabilitation measures for relocated communities, wherever necessary
While planning on site reconstruction or relocation, care should be taken to provide
the community with all basic amenities in close vicinity of the reconstruction site. This leads
to inclusive and holistic reconstruction process. Some of the basic amenities are as follows:
1. Health
2. Education
3. Provision of adequate drainage system
4. Provision to drinking water
5. Provision for proper sanitation
6. Provision for Electricity
7. Provision for waste collection and management
8. Market place
9. Connectivity to road and railway
Restoration of Damaged Cultural Heritage Sites, their Precincts and Museums

Post disaster repairs and reconstruction of damaged sites / precincts to be undertaken

based on sound documentation and assessment practices. Poor reconstruction practices cause
further physical damage to heritage structures, may worsen its structural vulnerability and
carries the risk of erasing the heritage features. Restoration or reconstruction of heritage after
disasters should go beyond buildings and it should look at heritage livelihood, traditional
trades/ crafts etc.
Project Management
Since rehabilitation and reconstruction effort typically involves the co-ordinated
efforts of several entities / institutions, the GoJK shall encourage the respective entities to
strengthen program management capabilities to ensure that synergies across and within
entities are managed efficiently. In addition, it is also necessary to constantly monitor the
activity to ensure that the project is executed on time, in accordance with the technical
specifications and to the satisfaction of the beneficiaries. JKDMA, in coordination with
relevant government departments, will monitor the reconstruction activity that is carried out
by various implementation agencies.
Typical implementation activities would include:

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• Disaster proofing and retrofitting of houses
• Creation/ retrofitting of structures – including roads, bridges, dams, canals etc that
may have been destroyed/ damaged due to the disaster
• Restoration of basic infrastructure facilities, for example, ports, airports, power
stations etc.
• Creation of health centres, first aid centres, hospitals, groups of doctors and surgeons
etc.
• Restoration of the industrial viability of the affected area.
• Restoration of livelihood.
For managing long-term rehabilitation programmes, such as reconstruction of houses,
infrastructure and other social amenities, the responsibilities will be that of respective line
departments through a well-structured R & R Programme.

Information, Education and Communication

Communication activities are necessary to convey to the larger community the scope
and nature of the proposed reconstruction and rehabilitation effort so as to increase the
stakeholders awareness and buy-in for the ongoing activities. Hence, JKDMA and relevant
government departments, district administration and local authorities shall undertake:

• Ongoing media management/ Public Relations: To ensure that accurate

communication of the reconstruction and rehabilitation measures are being informed
to the various stakeholders;

• Community management: This includes communicating to the affected

communities with a view to appraising them of efforts being made for their
relocation/ rehabilitation/ reconstruction;

• Feedback mechanisms: Using the communication network to get feedback on

reconstruction and rehabilitation measures.

Dispute Resolution Mechanisms

JKDMA, in coordination with relevant agencies, shall institutionalize mechanisms to
address beneficiary grievances at various levels, as well as explore innovative ways of
dispute minimisation like involving the community in reconstruction initiatives. Appropriate
mechanism with penalties for dealing with false claims will be evolved to prevent misuse of
assistance.

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Implementing Initiatives for Recovery of Reconstruction Costs
The GoJK shall finalise and implement selected recovery measures such as:

• Imposing tax surcharge levies (central)

• Imposing local taxes

• Facilitation of funding responsibility sharing by beneficiaries etc.

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CHAPTER 9 FINANCIAL ARRANGEMENTS

Funding mechanism at various levels

To ensure the long-term sustenance and permanency of the organisation, funds are
generated and deployed on an ongoing basis. Financial mechanism for disaster management
is already in place at national, state and district level. Additionally there are various projects,
programmes and initiatives catering to different phases of disaster management funds for
preparedness, mitigation and reconstruction allocated by the government as part of a regular
budget.

National Level

National Disaster Response Fund

The National Disaster Response Fund (NDRF), has been constituted under Section 46
of the Disaster Management Act, 2005, supplements SDRF of a State, in case of a disaster of
severe nature, provided adequate funds are not available in SDRF. The amount can be spent
towards meeting the expenses for emergency response, relief and rehabilitation. Under the
existing guidelines, it is available for assistance for Cyclone, drought, earthquake, fire, flood,
tsunami, hailstorm, landslide, avalanche, cloudburst, pest attack, frost and cold waves.
In case of calamity of severe nature when State Disaster Response Fund is insufficient
to meet the relief requirements, additional central assistance is provided from NDRF to the
State Government by following the laid down procedures.
b. National Disaster Mitigation Fund
To promote local-level mitigation activities, the 15th Finance Commission has
recommended the setting up of National and State Disaster Management Funds. Government
of India has accepted chapter 6 of the 15th finance commission report for 2020-21. The
guidelines with respective constitution and utilization of National Disaster Mitigation Fund
(NDMF) and State Disaster Mitigation Fund (SDMF) will be issued by Central
Government. Thus the mitigation funds shall be set up both at national and at state level in
the form of NDMF and SDMF in accordance with the Disaster Management Act, 2005.
These mitigation funds shall be used for those local level and community based interventions
which reduce the risk and promote environment friendly settlements and livelihood practices.
Thus the creation of funds for disaster mitigation along with disaster response will now be

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called as National Disaster Risk Mitigation Fund (NDRMF) and State Disaster Risk
Mitigation Fund (SDRMF). 5
Distribution of NDRMF and SDRMF:
I. Mitigation : 20%
II. Response : 80 %
Distribution of NDRF and SDRF:
I. Response and Relief: 40%
II. Recovery and Rehabilitation: 30%
III. Capacity Building: 10%
c. Prime Minister’s National Relief Fund (PMNRF)
Prime Minister's National Relief Fund (PMNRF) was established entirely with public
contributions and does not get any budgetary support. PMNRF accepts voluntary
contributions from Individuals, Organizations, Trusts, Companies and Institutions etc. All
contributions towards PMNRF are exempt from Income Tax under section 80(G) of the
Income Tax Act, 1961.
The resources of the PMNRF are utilized to render immediate relief to families of
those killed in natural calamities like floods, cyclones and earthquakes, etc. Assists partially
to defray the expenses for medical treatment like heart surgery, kidney transplantation, cancer
treatment of needy people and acid attack etc. The corpus of the fund is invested in various
forms with scheduled commercial banks and other agencies. Disbursements are made with
the approval of the Prime Minister.
State Level
a. State Budget
JKDMA submits to the State Government for approval a budget in the prescribed
form for the next financial year showing the estimated receipts and expenditure, and the sums
which would be required from the State Government during that financial year.
The GoJK also allocates funds in the State Budget for relief activities. In addition,
funds may be available through the State Disaster Response Fund.
State Disaster Response Fund
State Disaster Risk Mitigation Fund (SDRMF) has been set up as per the
recommendation of 15th finance commission. SDRMF comprises of the State Disaster
Response Fund (SDRF) and State Disaster Mitigation Fund (SDMF). Out of the total State

5
Chapter 6th of Fifteen Finance Commission

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Disaster Risk Mitigation Fund (SDRMF) the share of State Disaster Response Fund shall be
80% and the share of State Disaster Mitigation Fund (SDMF) will be 20%. Within the SDRF
allocation of 80% there would be three sub allocations, they are:6
I. Response and Relief: 40%
II. Recovery and Rehabilitation: 30%
III. Capacity Building: 10%
While the funding window of SDRF and SDMF are not interchangeable, there could
be flexibility of reallocation within these three sub windows of respective funds and such
reallocation shall not exceed 10% of allotted amount of that sub window for 2020-21. There
is a departure from the expenditure based approach to a methodological which reflects risk
and vulnerability of each state.
b. LG Relief Fund
This provides immediate support to the distressed people affected by the natural
calamities, or road, air, or railway accidents.

Other Sources of Funds

a. Public Private Partnership
There are projects/schemes in which funding can be done by a public sector authority
and a private party in partnership. In this State Govt. along with Private organizations and
with Central Govt. share their part.
b. Grant In Aid
State government may receive a grant in aid from Central Govt., World Bank, other
departments, bilateral or multilateral funding agencies, etc. to carry out specific
projects/schemes related to disaster management/ mitigation/ capacity building.
c. Corporate Social Responsibility (CSR) Funds
Corporate social responsibility is a broad concept that can take many forms depending
on the company and industry. Through CSR programs, philanthropy, and volunteer efforts,
businesses can benefit society while boosting their brands.

Section 135 of the Act, Schedule VII and Companies (CSR) Policy Rules, 2014,
provide a robust framework for companies to partner in contributing to the country’s
development challenges through its managerial skills, technology and innovation. Besides
providing an overall guidance framework for the corporates to carry out their CSR initiatives,

6
Member Secretary, NDMA letter no 5-20/2014-NIT dated 10/02/2020

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it also provides them with ample autonomy and flexibility to design and implement
programmes. The monitoring is based on disclosures made by the company in the prescribed
form and annual report. The company has to disclose its details on CSR implementation,
including allocation of funds, destination state and development sector where the CSR
expenditure is done, etc. annually to this Ministry through filing of annual report on CSR.
The mandatory CSR reporting has its advantages as it allows the corporates to demonstrate
their commitment towards CSR and communicate with different stakeholders, including
shareholders, regulators, customers and society at large.7

d. Loan
Authority may borrow money from the open market with the previous approval of
State government to carry out disaster management functions as described in DM Act 2005.

e. Disaster Bonds
State government can also raise funds for major disasters by exploring the options of
long-term disaster bonds.

f. Recovery Measures

The GoJK shall finalise and implement select recovery measures such as imposing tax
surcharge levies (central), imposing local taxes, facilitation of funding responsibility sharing
by beneficiaries etc.

Funds Disbursement and Audit

The funds raised from funding agencies are usually accompanied by stringent
disbursement and usage restrictions. It is therefore important to monitor the disbursement of
such funds to ensure that none of the covenants are breached. JKDMA, in conjunction with
relevant agencies, shall monitor disbursal of funds by:

• Prioritizing resource allocation across approved projects

• Establishing mechanisms (like a chain of banks, collection centres, nature of accounts,

spread etc) for collection of funds

7
http://www.mca.gov.in/Ministry/pdf/CSRHLC_13092019.pdf

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• Ongoing monitoring and control of fund usage throughout actual project
implementation.

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CHAPTER 10 PLAN MAINTENANCE

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 Plan maintenance is a dynamic process of updating the plan on a periodic basis. The
back-bone of maintaining the plan is carrying out mock drills and updating the plan based on
the lesson learnt as an outcome of the mock exercise which consists of identifying the gaps
and putting in place a system to fill the same.

Plan Testing
The Commissioner of Relief, Revenue Dept. shall prepare, review and update State
Disaster Management Plan as provided for in the JKDMA Act (Section 22 (1) (C)). He shall
also ensure that disaster management drills and rehearsals are carried out periodically.

While updating the plan the following aspects need to be considered by the COR every year:

a. Critical analysis of the outcome of exercises & mock drills as part of plan testing.

b. Incorporation of lessons learnt in the updated plan as an outcome of mock exercises

through identification of gaps and measures to fill them.

The plan must be thoroughly tested and evaluated once in a year. The plan testing
should preferably be organized on the first Monday in the months of March every year.

The main objectives of plan testing are to:

a. Determine the feasibility and compatibility of back up facilities and procedures

b. Identify areas in the plan that needs modification.

c. Identify training needs of key stakeholders.

d. Assess the ability of the organization/department to respond to disasters.

After plan testing and incorporation of lesson learnt, the COR should send a copy of
the revised and updated plan to the following officials:

a. Chief Secretary, Government of J&K

b. Chief Executive Officer, JKDMA

c. Principal Secretary, Revenue Dept

d. Head of all line Depts.

e. State EOC

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f. District EOCs

g. IMD

h. CWC/ACWC

All the departments, which have specific roles and responsibilities in State Disaster
Management Plan, must have a system to ensure that all officers of their departments who
have a specific role to play are fully up to date with their responsibilities/tasks.

10.1 Mock Exercise

a. Mock exercise debriefing and evaluation is of critical importance that these insights are
collected from participants (who participated in the exercise) and used to modify the
plan.

b. Hot debriefing is very effective as it is carried out immediately after the exercise. It also
includes documentation in terms of recommendations and improvements of the plan.

Review & Updation of Plan

The State Disaster Management Plan should be reviewed and updated annually. The
plan updation process should begin in January in each year and should be completed by
month of April, based on inputs from the following:

a. Drills and rehearsals

b. Recommendations from all depts. in their Annual DM Report

c. Lessons learnt from any disaster event in other states and countries

d. Directions from Ministry of Home Affairs, National Disaster Management Authority,

Government of India, etc.

JKDMA and all other concerned Depts. should encourage formal and informal
interaction with various stakeholders at different levels to learn and document their
experiences, so that such experiences can contribute constructively towards updation of State
Disaster Management Plan for further improving the capability to deal with future disasters.

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