PROJECT REPORT

Capacity Building in Disaster Management

 l R; eso t ; r s

Vice Chairman
National Disaster Management Authority
Government of India

MESSAGE
The National Disaster Management Authority (NDMA) was set up in 2005 by the Government of
India as an apex body to spearhead and implement a holistic and integrated approach to Disaster
Management. NDMA has the responsibility for laying down policies, plans and guidelines for disaster
management and coordinating their enforcement and implementation for ensuring preparedness mitigation
and timely and effective response to disasters. NDMA has laid down comprehensive frame work for
capacity building on Disaster Management (DM) and mainstreaming of DM for various disasters through
its National Disaster Management Guidelines. NDMA has taken up mainstreaming of Disaster Risk
Reduction (DRR) concerns in Government departments, States, Districts and civil society, School and
College education, technical education, Panchayati Raj Institutions and Urban Local Bodies.
In this direction, NDMA and IGNOU jointly executed a pilot project on “Capacity Building in Disaster
Management for Government Officials and Representatives of Panchayati Raj Institutions & Urban
Local Bodies at District Level”. This project has been successfully completed in the year 2012-13. The
Project aimed at strengthening the capacity of Government Officials and Representatives of Panchayati
Raj Institutions and Urban Local Bodies (PRI & ULB’s) at district level in the areas of disaster prevention,
preparedness, mitigation, response and recovery.
This Project was undertaken in 54 selected districts of 11 States identified on the basis of their vulnerability
to various natural and manmade hazards. In all, 16479 participants, against the targeted number of
16200 participants, attended trainings. Out of the total 16479, 6648 (40.34%) were Government
officials, 7941 (48.19%) were PRIs’ representatives, and 1890 (11.43%) were representatives of
ULBs.
Total 4623 women participants undergone training, thus project has been quite successful in fulfilling
goal of gender equality for capacity building in Disaster Management to a great extent. The outcome of
the project reaffirms that focused capacity building interventions are imperative to attain disaster resilience
at grass root level.
The training material developed for this project can be useful for all states to carry out a sustained
training / capacity building programme. We hope that all states will use this material and develop local
language handouts and carry out this training on a continuous basis.
I wish to see more such increased efforts at National, state and local level for enhancement of capacity
of communities to mitigate the effects of future disasters.

New Delhi
1st July, 2013
(M. SHASHIDHAR REDDY)
 FOREWORD
India is prone to multiple types of hazards, prominent among these include earthquakes, floods, cyclones,
droughts, forest fires, and epidemics. The disaster management scenario in the country, has metamorphosed
into a pro-active, multi-agency and development-oriented coping system, it has indeed been an arduous
journey for all those involved from the NDMA as well as IGNOU. My background in rural development
and community capacity building gives me a sense of insight into what this Project has undertaken and
attained. I have been keenly following the progress of this Project and encouraging my Faculty to carry
it forward with enthusiasm.
I remember having written the Foreword to the Training Manual of the Project on “Capacity Building
in Disaster Management for Government Officials and Representatives of Panchayati Raj
Institutions & Urban Local Bodies at District Level” carried out by two apex Bodies, that is, National
Disaster Management Authority (NDMA) and Indira Gandhi National Open University ( IGNOU). I
was confident that the Faculty at IGNOU will do justice to this necessary and pertinent effort. However,
now having seen the results of this project, I feel that disaster management is an area where a lot of work
has been done and yet a lot also needs to be undertaken.
I am also happy to note that the Project has been successfully completed after having covered 54
districts in 11 identified States. I understand that this successful completion of the project is the result of
scientific methodology adopted by the Project Team members. Being a trainer for last 35 years I feel
satisfied to note that 11 Training Need Analysis Workshops, one in each of the identified States, were
conducted to frame and finalize the Schedule and Methodology of FFTPs as well as Contents of the
Training Manual. Subsequently, the Training Manual, comprising of 4 Booklets and 1 Handbook, was
developed in English and also translated in Assamese, Bengali, Hindi, Malayalam, Marathi, Oriya and
Telugu. It is also heartening to note that necessary audio and video Programmes were also developed in
8 languages. Orientation Workshops, one each, in the identified States, for the Resource Persons to
conduct FFTPs; Study Centres Coordinators to execute FFTPs; and Nodal Officers to select participants
for FFTPs, etc., were organized. Active involvement of IGNOU Study Centres, gender mainstreaming,
inter-linkages between disaster management and development and involving multiple stakeholders are all
positive indicators towards achievement of project goals. These capacity building measures taken up by
the project are essential for success of any such project.
I congratulate IGNOU team under the leadership of Prof. Pardeep Sahni for its dedication and hard
work. I sincerely feel that the present initiative should be taken up as a good beginning, to be replicated
by the NDMA and IGNOU in more states in the near future.

1st July, 2013

New Delhi (Professor. M. Aslam)
Vice-Chancellor
IGNOU
 BACKGROUND
Disasters are calamitous happenings, where normal patterns of life go topsy-turvy and large-scale
assistance becomes crucial to save lives, prevent injury and safeguard infrastructure. Disasters could be
categorized into type-based and time-based disasters. Type-based disasters are of two kinds: natural
and man-made. Likewise, time-based disasters are also of two types: slow-onset and quick- onset
disasters. Slow-onset catastrophes are predictable and provide some response time; whereas quick-
onset disasters are unpredictable and provide no response time. Recent decades have beheld an increase
in human induced disasters or say natural disasters aggravated by human interventions; thereby largely
blurring the distinction between the two. These disasters have caused widespread destruction and
fatalities, leaving the concerned institutions and the community wanting on the front of disaster related
preparedness, relief, reconstruction and recovery. Does development lead to disasters or do disasters
facilitate fresh thinking on development? This is the contemporary debate. A few noteworthy
accomplishments at the governmental, non-governmental and community levels have created small
pockets of success in managing disasters. However, these efforts remain restricted, inconsistent and
infrequent. They have not been disseminated systematically to propel standardization of disaster
management principles.
This is why it is appropriate to treat disaster management as a part of the developmental process and
not as an isolated event that takes place only when a disaster strikes. All disaster management phases
and methods have to be mainstreamed into the larger development process by viewing disasters as
developmental opportunities. Howsoever, contradictory it may appear, but it is true that whereas faulty
development policies may lead to disasters, many disaster events also open up new possibilities of
development. The onus of this astounding task rests on all the stakeholders in the process; namely the
governmental, non-governmental, international, national and community organizations. One such important
stakeholder is the National Disaster Management Authority (NDMA), and the other is the Indira Gandhi
National Open University (IGNOU). These institutions have been doing a pioneering work in the field
of disaster preparedness, training, education and awareness, both at theoretical, as well as empirical
levels.
The Project on ‘Capacity Building in Disaster Management for Government Officials and Representatives
of Panchayati Raj Institutions & Urban Local Bodies at District Level’ was undertaken on a pilot basis
through the concerted efforts of these two stakeholders. The Project covered all the major facets of
disaster management in an innovative and novel manner. This Report is based on the areas covered by
the Project. It is divided into Seven Sections; namely Introduction, Changing Contours of Disaster
Management, Need for Capacity Building, Factors that set the Project apart, Training Methodology,
Project Analyses, and Future Perspective. It also gives a comprehensive set of Annexures at the end,
which speaks volumes about the work undertaken during the Project’s implementation, especially during
the conduct of training sessions. It is anticipated that the NDMA and IGNOU will carry forward the
outcome of this pilot Project to its fruitful culmination, through various interventions.
 CONTENTS

1. Introduction 11

2. Changing Contours of Disaster Management 14

3. Need for Capacity Building 17

4. Factors Setting the Project Apart 19

4.1 Connect between Disasters and Development 19
4.2 Sustainable Development and Traditional Wisdom 20
4.3 Participation of all Stakeholders 22
4.4 Mainstreaming Disaster Risk Reduction 24
4.5 Gender Mainstreaming 26
4.6 Psycho-social Support in Disaster Aftermath 28
4.7 Preparation of Training Manual 28
4.8 Unique Training Approach 31

5. Training Methodology of the Project 31

6. Analyses of Participants’ Feedback 40

7. Conclusion and Future Perspective 57

Annexures 61
Abbreviations 121
1. INTRODUCTION
Disaster management has become a pertinent area of concern ever since the Super Cyclone hit Orissa
in 1999 with unimaginable ferocity and took a devastating toll on life and property. It brought with it a
feeling of despair, helplessness and confusion amongst the governmental and non-governmental
stakeholders engaged with disaster management. Thereafter, a paradigm shift, from reactive to pro-
active, was observed in the strategies towards disaster management. The high point was the passing of
Disaster Management Act 2005, and several other endeavours by the stakeholders, especially in the
areas of disaster preparedness, rehabilitation and building human capacities and coping skills. This
Project on “Capacity Building in Disaster Management for GOs and Representatives of Panchayati Raj
Institutions and Urban Local Bodies at District Level” was yet another effort towards building disaster
management skills through training in capacity building. It was conceived and implemented as a joint
effort on the part of the National Disaster Management Authority (NDMA) and Indira Gandhi National
Open University (IGNOU).
Capacity Building is an area, which still needs to be improved on many fronts, despite the various
governmental and non-governmental efforts in the past. Attempts to rectify the incongruities in this
regard have not yielded very satisfactory results. We hear of disasters every day, but as far as management
is concerned, our response is based more on conjecture than knowledge, research and awareness.
There is more than adequate material available with policy makers and other stakeholders in disaster
management. However, the translation of disaster management theory into action has always been
uneven and superficial. The lacunae are so innumerable and deep that any effort towards plugging them
seems small and insignificant. Recognizing the need to streamline efforts on capacity building in disaster
management and weaving them in a training manual format, a Project initiative was taken up by the
NDMA and the IGNOU.
The Project aimed to build and strengthen the capacity of the target groups in the areas of disaster
prevention, preparedness, mitigation, response and recovery at the grassroots level. It was undertaken
in selected 11 States, identified on the basis of their vulnerability to various natural and man-made
hazards. These States were selected from all five Regions namely North-East (Assam, Tripura); North
(Haryana, Himachal Pradesh, Uttarakhand); East (Bihar, Orissa, West Bengal); West (Maharashtra);
and South (Andhra Pradesh, Kerala); covering the following 54 districts, 4 from Tripura and 5 from
each of the other ten identified States under the Project:
 Andhra Pradesh: Anantapur, Mahabubnagar, Nellore, Prakasam, Srikakulam.
 Assam: Barpeta, Cachar, Dhemaji, Dhubri, Lakhimpur.
 Bihar: Madhepura, Muzaffarpur, Patna, Sitamarhi, Supaul.
 Haryana: Ambala, Gurgaon, Panipat, Rohtak, Yamuna Nagar.
 Himachal Pradesh: Chamba, Kangra, Kinnaur, Kullu, Mandi.
 Kerala: Ernakulam, Idukki, Malappuram, Palakkad, Wayanad.
 Maharashtra: Nasik, Pune, Raigarh, Satara, Thane.
 Orissa: Balasore, Bhadrak, Ganjam, Jagatsinghpur, Kendrapara.
 Tripura: Dhalai, North Tripura, South Tripura, West Tripura.

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 Uttarakhand: Bageshwar, Chamoli, Pithoragarh, Rudraprayag, Uttarkashi.
 West Bengal: Bankura, Burdwan, Murshidabad, Purba Medinipur, South Dinajpur.
Project Objectives
The main objectives of the Project were to:
 Build and strengthen the capacity of Government Officials ( GOs) and representatives of Panchayati
Raj Institutions (PRIs) and Urban Local Bodies (ULBs) in the areas of disaster prevention,
preparedness, mitigation, response and recovery;
 Encourage the GOs as well as PRIs’ and ULBs’ representatives to enlist the support of local
institutions, NGOs, CBOs, etc., for community awareness, as well as capacitate the officials and
local institutions to procure the support from other relevant quarters;
 Reinforce the skills of officials and representatives in appropriate hazard assessment, vulnerability
analysis, resource analysis and local capacity assessment;
 Develop the required disaster management knowledge base of the GOs, as well as the PRIs and
ULBs representatives;
 Formulate training modules, including standardized training methodology, technical support for
organizing training programmes on emergency preparedness and management for the officials and
representatives;
 Develop community based disaster management systems for their specific needs in view of the
regional diversities and multi-hazard vulnerabilities through a consultative process;
 Disseminate important concepts of NDMA Guidelines in the various regional languages through
multi-media technologies;
 Enable officials who are functioning at the district levels to be better equipped to deal with natural
disasters such as earthquakes, floods, landslides and other natural phenomena that are likely to
cause damage;
 Train the team of district officials to enable them to introduce basic guidelines/procedures and
become aware of safety and evacuation techniques, as well as seismic-resistant constructions;
 Equip the functionaries at district level to immediately arrange for basic relief work, in case of
common natural/man-made disasters without waiting for help/ instructions from external sources.
The Main Stakeholders of the Project were:
 National Disaster Management Authority (NDMA)
 Indira Gandhi National Open University (IGNOU)
 State Governments
 State Disaster Management Authority (SDMA)
 District Disaster Management Authority (DDMA)
 District Administration
The Project aimed at training the participants who were supposed to further help the community to
undertake required tasks for effective disaster management.

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Mandate of NDMA and IGNOU
The two major stakeholders of the Project –NDMA and IGNOU, had a clear mandate to undertake
capacity building training of disaster management representatives. The two organizations are working
zealously in the area through various educational and research-oriented strategies.
The NDMA has the Prime Minister
of India as its Chairman. Other
members of the Authority,not
exceeding nine, are to be nominated
by the Chairman. The Chairman of
the NDMA may designate one of the
members to be the Vice-Chairman of
the NDMA. The Vice-Chairman of
NDMA has the status of Cabinet
Minister and other members have the
status of Ministers of State. The
NDMA has been assigned the
responsibility of laying down policies,
plans and guidelines for disaster
management for ensuring timely and Source: NDMA Photo Gallery
effective response to disaster.
The NDMA has the following responsibilities to:
 Lay down policies on Disaster Management;
 Approve the National Plan;
 Approve plans prepared by the Ministries or Departments of the Government of India in accordance
with the National Plan;
 Lay down guidelines to be followed by the state authorities in drawing up state plan;
 Lay down guidelines to be followed by the different Ministries or Departments of the Government
of India for the purpose of integrating the measures for prevention of disaster or the mitigation of
its effects in their development plans and projects;
 Coordinate the enforcement and implementation of the policy and plan for disaster management;
 Recommend provision of funds for purpose of mitigation;
 Take such measures for the prevention of disaster, or mitigation, or preparedness, and capacity
building for dealing with the threatening disaster situation or disaster as it may consider necessary;
 Provide such support to other countries affected by major disasters as may be determined by the
Central Government;
 Lay down broad policies and guidelines for the functioning of the National Institute of Disaster
Management (NIDM).
NDMA has issued many disaster specific and thematic guidelines on disaster management. It is in
the process of implementing various mitigation projects namely NCRMP, NSSP; formulating many
projects like NDCN, NERMP, and carrying out education and awareness programmes in the states.

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IGNOU, on the other hand, has contributed significantly to the development of higher education in the
country through the open and distance learning mode, ever since its establishment in 1985. IGNOU
follows a learner-centric approach and provides seamless access to quality education, innovative learning,
flexible methodology, Information and Communication Technology, professional skills and training. The
education is disseminated in conventional, as well as emerging inter-disciplinary areas.
IGNOU is also doing extensive work in the area of disaster management education and training. An
endeavour to this effect was undertaken when its Faculty of Public Administration, School of Social
Sciences started a Project on Community Awareness on Disaster Preparedness (CADP) in the year
2000 in the states of Andhra Pradesh, Gujarat, Orissa, Rajasthan, and Uttar Pradesh. The objective
was to generate awareness amongst community members on the different facets of disaster management.
The strategy was to involve them in decision-making and disaster management structures and processes.
Besides, IGNOU’s Faculty of Public
Administration has two full-fledged
Certificate and Post-Graduate Diploma
Programmes on disaster management.
There is a rich component on disaster
management in its Masters Programme
in Public Administration. The Faculty
also plans to launch Masters in Disaster
Management very soon. The Faculty
members have undertaken serious
research in disaster management, and
have some very good publications on
the subject to their credit. The Faculty
has also organized two (National and
International) Conferences on Disaster
Management.
Source: IGNOU Photo Gallery

2. CHANGING CONTOURS OF DISASTER MANAGEMENT

Disaster management had generally been understood as management of disaster response that is
management of disasters in their aftermath. For a very long time, we followed this reactive and not so
preventive/preparedness oriented approach to disaster management. This changed globally with the
initiation of the International Decade of Natural Disaster Reduction (IDNDR-1990-2000). The objectives
of IDNDR were to enable all countries to have a comprehensive national assessment of risks from
natural hazards, systematic mitigation plans at national and/or local levels, and ready access to global,
regional, national and local warning systems.
Many worthwhile developments followed later, making disaster management a serious concern, linked
intricately with global warming and environmental degradation. These were the Earth Summit (1992),
and United Nations Framework Convention on Climate Change (UNFCCC-1992). A major Conference
of the IDNDR programme was held in Yokohama in May 1994, where a plan of action for disaster
reduction called the Yokohama Strategy was evolved. The World Conference on Natural Disasters at
Yokohama in May 1994 was a crucial landmark in Disaster Mitigation and Preparedness Planning. The
Strategy recognized risk assessment as a critical need and propagated a comprehensive prevention,

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mitigation and preparedness strategy along with development of a culture of prevention. Other global
developments have been the International Strategy for Disaster Risk Reduction, (ISDR-2000-2010),
The Hyogo Framework for Action for a Safer World, Kyoto Protocol, Montreal Action Plan 2005 and
so on. The recent one, in this long list of such developments, was the Bonn Climate Change Conference,
June 2013.
In India, the change in approach to disaster management was witnessed with the implementation of the
Tenth Five Year Plan. This Plan was prepared in the backdrop of Orissa Super Cyclone, Gujarat
Earthquake and culmination of IDNDR. The Plan recognized disaster management as a development
issue for the first time. The Tenth Five Year Plan Document incorporated a detailed chapter on Disaster
Management. From a mitigation point of view, the Plan also promulgated a nationwide ‘Culture of
Prevention’, through community preparedness. There was a provision for introduction of disaster
management in school curriculum and relevant aspects of disaster management in professional courses.
It made a case for enhancing the capacity of disaster managers by better training facilities, and creating
mass awareness at all levels. Some of the outlined steps towards preventive planning that got spelt out
clearly were: TNA Workshop in Progress
 Introduction of a comprehensive
process of vulnerability analysis
and objective risk assessment.
 Building of a robust,
comprehensive and sound
information database.
 Creation of state-of-the art
infrastructure based on frontline
research.
 Establishment of linkages between
all knowledge based institutions
and developing a National
Disaster Knowledge Network Source: OSDMA, Bhubaneswar, Odisha, September 6-7, 2010
attuned to the felt needs of a
multitude of users like disaster managers, decision makers, community and so on.
A landmark development took place in the form of the Disaster Management Act, which was passed in
2005. It was enacted under the Social Security and Social Insurance subject of the Concurrent List of
the Constitution of India. The Act provides for the pre-requisite institutional mechanism for monitoring
and implementation of the plans, and ensuring measures by various wings of the Government for disaster
prevention and mitigation aspects. In tune with the paradigm shift, the State Governments were advised
to amend their Relief Codes to incorporate the changed provisions. The revised codes were also meant
to institutionalize the process of disaster management.
Eleventh Five Year Plan (2007-12) aimed at further consolidating the process initiated by the Tenth
Five Year Plan, by giving impetus to projects and programmes that could develop and nurture the
culture of safety. It called for integration of disaster prevention and mitigation into the development
process. The Plan focussed on the role of NGOs as planners, implementators and consultative partners
in the projects/programmes identified as a priority in the Eleventh Five Year Plan. Specific actions

15
included delivering best practices and demonstration projects, promoting employment based mitigation,
sustainable capacity building and pro-active engagement of communities in spreading the culture of
safety.
Another major development was the finalization of the National Policy on Disaster Management. Major
Objectives of the National Policy on Disaster Management are:
 Promoting a culture of prevention, preparedness and resilience through knowledge, innovation
and education.
 Encouraging mitigation measures based on technology, traditional wisdom and environmental
sustainability.
 Mainstreaming disaster management into the developmental planning process.
 Establishing institutional and techno-legal frameworks for disaster management.
 Ensuring efficient mechanism for identification, assessment and monitoring of disaster risks.
 Developing contemporary forecasting and early warning systems
 Ensuring efficient and caring response and relief system.
 Undertaking reconstruction as an opportunity to build disaster resilient structures for ensuring
safer living.
 Promoting a productive and proactive partnership with the media for disaster management.
The Thirteenth Finance Commission (FC) recommended that the existing National Calamity
Contingency Fund (NCCF) be merged into the National Disaster Response Fund (NDRF) proposed
under Section 46 of the DM Act 2005. It covers calamities of cyclone, drought, earthquake, fire,
flood, tsunami, hailstorm, landslide, avalanche, cloud burst and pest attack. NDRF is classified in the
Public Account in Sub-Section (b) Reserve Funds not bearing interest of the GoI under National
Disaster Response Fund major head 8235-‘General and other Reserve Funds’- 119. Funds are to
be credited into NDRF in accordance with the provisions of DM Act. Likewise, State Disaster
Response Fund (SDRF) which has replaced the earlier Calamity Relief Fund is a Fund constituted
under Section 48 (1a) of DM Act. SDRF shall be used only for meeting the expenditure for providing
immediate relief to the victims of Disasters, as identified for NDRF grant. The SDRF is constituted in
Public Accounts under the Reserve Fund bearing Interest in the Major Head: 8121. It is pertinent to
mention that NDMA has made the important recommendations to highlight the disaster management
concerns for financial allocations. These include: Funding of National and State level Mitigation
Projects; Constitution of Disaster Response Fund at the National, State and District levels; Constitution
of Disaster Mitigation Fund at the National and State Levels; and Enlargement of the scope of
disasters for relief to include some more natural hazards afflicting different parts of the country like
frost, cold wave, heat wave, lightning, river and sea erosion. Besides these, it has also been
recommended that man-made calamities occurring due to Chemical, Biological, Radiological and
Nuclear origins should also be considered.
The changing contours of disaster management have paved the way for a new thinking on the issue.
There have been many efforts to comprehend the subject more systematically. Disaster management
has become a continual process. Stakeholders in disaster management are involved in all the phases of
DM cycle, which talks about systematic strategies at preparedness, mitigation, response, rehabilitation
and recovery levels in order to cope with disaster aftermath (See Annexures 2 & 3). The Project’s

16
focus on capacity building is in agreement with the new pathways, and this new vision adopted for
disaster management, which the Project also reinforces, emphasizes on :
 Preparedness rather than post-crisis management.
 Coordinated participatory approach.
 Technology upgradation and deployment.
 Information as a tool of disaster management.
 Recognition of linkages between disasters and development.
 Connecting specific programmes for management of natural disasters.
 Forecasting and warning using latest technology; and
 Disaster management as a continuous and integrated part of development process.

3. NEED FOR CAPACITY BUILDING

Capacity building is integral to disaster management. The programmes in disaster mitigation and recovery
cannot be successful without building adequate capacities. Though the focus on capacity building has
resurfaced with the new vision on disaster management, the efforts towards building capacities have not
been very systematic. This Project not only aimed at building capacities of the grassroots level stakeholders
in disaster management, it meant to follow a comprehensive and scientific approach to achieve its goals.
This is visible through its emphasis on 4 factors:
1. Comprehensive formulation of Project objectives.
2. Conduct of Training Needs Analysis or TNA.
3. Preparation of Knowledge, Skills and Attitude or KSA schedules for the target group.
4. Administration of Face-to-Face Training Programme (FFTP) Sessions in all targeted districts on
the basis of systematic session plans, emerging out of TNA.
The Project underlined the pertinence of training and its potential in building, strengthening and enhancing
the capacities of individuals, organizations and communities. Its attempt to garner KSAs through
systematically administered TNA exercise emphasised the need for planned processes of ‘Education’
and ‘Training’ through ‘Knowledge’ and ‘Learning’. With regard to managing disasters, the Project
accorded a very important place to training and highlighted the objectives and essentials of training.
If we look at the meaning of capacity building, it can be seen as a by-product of effective training and
learning. As per the United Nations International Strategy for Disaster Reduction (UNISDR) definition,
‘Capacity is the combination of all the strengths and resources available within a community, society or
organization that can reduce the level of risk or the effects of a disaster’. Capacity may also be described
as physical, institutional, social or economic capability. The Project emphasized the fact that appropriate
levels of training and knowledge are required for adequate capacity development, which is instrumental
in detrmining what people do with available resources in times of crisis to reduce the damaging effects
of disasters. Assessing capacities of people at risk is a very important step in choosing strategies for
community disaster risk reduction, and capability or capacity building. In line with this explanation of

17
the term capacity, the Project focussed its attention on the most crucial stakeholder in disaster management,
that is., the community, as it is the first responder in all the phases of disaster management. Community,
as per the Project hypotheses, can be involved in capacity building through:
 Disseminating relevant information on relief work to the community through meetings, distribution
of pamphlets and leaflets, as well as use of community radio.
 Generating awareness on the need to ration relief supplies and hygiene maintenance.
 Impressing upon the community to keep their temporary shelters as clean as possible, and take
recourse to immunization programmes.
 Telling community to take cognizance of the advice given by the health workers and doctors in the
area.
 Organizing regular meetings with community and community leaders.
 Involving people in preparing relief schedules and allotting them specific relief duties.
 Generating awareness on traditional wisdom to cope with crises.
TNA Workshop at Agartala Highlighting the utility of community
capacity building, the Project focussed
on Community Based Disaster
Management (CBDM) in detail. CBDM
plans to safeguard lives, livelihood and
property, and seeks to involve
community or people in disaster
preparedness. Communities are the first
responders in the event of any disaster
and the representatives of local
administrative bodies have a critical role
in adoption of the new culture of disaster
management in India. People can be a
source of useful indigenous ideas, they
can help adopt technical inputs
Source: State Institute of Public Administration and Rural Development,
emanating from outside, they can get
Agartala, October 19, 2010. their goals reflected in development
policies, they can set an example to
others by testing new knowledge, skills, techniques; and they can increase the possibility of coordinated
action to help in mitigating disasters. The importance of CBDM was adequately brought forth by the
Project. It underlined the key ingredients of disaster management with a community perspective. The
focus was on long-term or sustainable livelihood approach and alternative livelihood opportunities. The
running theme of the Project was community capacity building as it tried to develop skills and attitudes,
not to forget a knowledge base for the same. It emphasised the view that community participation is a
process that serves one or more of the objectives: related to increasing empowerment, building beneficiary
capacity, enhancing project effectiveness, and sharing project costs.

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4. FACTORS SETTING THE PROJECT APART
There are many factors that set this Project apart from similar efforts in the field. These are:
4.1 Connect between Disasters and Development
The Project amply highlighted the connect between disasters and development by focussing on
mainstreaming disaster management programmes. It also underlined disasters as development
opportunities. The Project brought home the point that while disasters are calamitous events, lessons
learnt and incorporated into long-term development planning may serve to minimize future vulnerability.
Disasters are also our little windows of development. Paradoxically, ample opportunities for growth
and prosperity are thrown open in the aftermath of disasters. If these are put to right use, disasters can
be converted into development processes. The Project reinforced the point that the destruction of
unsafe infrastructure and buildings could provide an opportunity for rebuilding with better standards, or
even relocation from a vulnerable site to a less vulnerable one.
The Project focussed on disaster-development interface that could make disaster risk reduction strategy
a reality. There are many measures that can be adopted to build an interface between disasters and
development. It is a protracted process, which can be facilitated by effective resilience, training, education,
capacity building, and information dissemination efforts. Mainstreaming implies that at conceptualization
or funding stage itself, the development schemes should be designed with consideration of some potential
hazardous impact associated with it; and incorporate measures for mitigation of the same. The Project
underlined this point and called for a critical review of each activity that is planned, not only from the
perspective of reducing the disaster vulnerability, but also from the point of view of minimizing that
activity’s potential to the hazard. Every development plan has to incorporate elements of impact
assessment, risk reduction, and the ‘do no harm’ approach. The aim being to ensure that all newly built
structures and those under construction are disaster resilient and those which have already been
constructed are selectively retrofitted in accordance with priority. An often quoted phrase, which the
Project reiterated in its printed material is; “Development should be such that guards against disasters,
development in itself should not give rise to disasters”.
In the contemporary context, the Project noted that disaster management is being mainstreamed into
the development planning process through: structural measures, non-structural measures and mitigation
projects. Under structural measures, all new projects/programmes are being revisited in order to
incorporate disaster management concerns to ensure disaster resilience. All the development schemes
are expected to show pragmatism, incorporating the awareness of local disaster risk and vulnerability,
and ensuring that the schemes address these concerns, and include specific provisions for mitigating
disaster concerns. A futuristic perspective, as reasserted by the Project findings, would have to look
into the contours of disaster-development interface and come up with a systematic disaster recovery
strategy. Non-structural measures would incorporate legislation, and other such instruments as building
bye-laws, land-use regulations, which create an enabling regulatory environment. Mitigation projects
would be taken up to enhance the status of preparedness in the country.
Linking of Disaster Relief, Rehabilitation with Development (LRRD) is the new approach, which finds
a due place in the Project. Disasters often focus on relief aid and rehabilitation investment; thereby
providing developmental opportunities that have been previously unavailable. There is, thus, a significant
relationship in the way disasters and development affect one another. In the present scenario, disasters
can no longer be viewed as random occurrences caused by nature’s wrath. The relationship between

19
disaster management and environmental protection thus needs to be examined against the backdrop of
the disaster-development matrix, which falls under the LRRD, as well as the Sustainable Development
(SD) Framework. This is a new perspective that is gaining relevance with regard to convergence of
relief, rehabilitation and development. The Project highlighted the basic premise for LRRD, which
holds the key to future strategies towards disaster rehabilitation. It reinforced the point that development
policy often ignores the risks of disasters and the need to protect vulnerable households by helping
them to develop appropriate ‘coping strategies’. If relief and development were to be linked, these
deficiencies could be reduced. A comprehensive long-term recovery plan should keep into view the
interlinkages between all the stages of disaster management continuum as well as the ‘connect’ between
disaster rehabilitation, reconstruction and larger developmental planning.
Close to LRRD is the Rehabilitation-Reconstruction-Tracking Matrix or Rehabilitation Reconstruction
Development (RRD) linkage, which is being produced. Its objective is to provide salient information
on the overall recovery effort. The Project underlined the features of this pertinent Matrix, which is
aimed at bringing together information from tsunami-affected countries with regard to the nature of
work in the area, functions of stakeholders, monitoring and evaluation of impact; and availability of
resources. The Matrix is designed to give information at the regional, sectoral and project levels: It is
expected to provide a comprehensive view of rehabilitation and long-time recovery. A few important
factors that the Project took note of are:
 The “backward” and “forward” linkages between political, developmental, relief and rehabilitation
operations constitute a complex network of relationships.
 The structure of the document on RRD continuum, which should be seen in a holistic way and
need not be considered in a linear manner.
 Importance of introducing gender analysis into the RRD response, so as to avoid further
marginalization of women and the other disadvantaged groups.
It is not very often that these linkages between disaster relief, rehabilitation, recovery and development
are discussed in disaster management Projects. The significant components of disaster-development
interface rarely find a mention to this an extent as covered by this Project. The uniqueness of this
Project lies in the fact that it was able to juxtapose disaster management with larger developmental
process, at least at the vision level. The hope that this vision will translate into reality is reinforced by the
inter-linkages underlined by the Project.
4.2 Sustainable Development and Traditional Wisdom
The Project tried to describe disaster management on the sustainable development matrix by making a
statement to revive the traditional systems of living in harmony with nature. By focussing on access to
sustainable livelihood options, it made a case for consolidation of past initiatives and best practices, as
well as their institutionalization. It asserted that in order to promote environmental protection and create
long-term vulnerability reduction conditions, a ‘sustainable livelihood framework’ is urgently required.
The livelihood approach that it advocated connotes an increase in economic opportunities of work
without degrading the natural environment. The approach aims at:
 Understanding the various factors, which influence people’s choices.
 Creating livelihood options.

20
 Pursuing equitable and environment friendly growth.
 Involving both content and quality of growth.
 Preventing acts of nature from becoming disasters.
 Mitigating the conflict between development and environment.
Group Photo of Orientation Workshop for Centre Coordinators, Resource Through its Training Manual, the
Persons and Nodal Officers
Project brought forth many
environment-friendly traditional
practices. The Project analysed the
reasons behind abandonment of
traditional practices and the
increasing dependence on external
agencies to withstand the disaster
aftermath. At a time when a
thoughtful blend of the ‘old’ and the
‘new’ is required, the Project took
note of the sad loss of traditional
wisdom to a haphazard approach
Source: Himachal Pradesh Institute of Public Administration, Shimla, Himachal towards modern development. The
Pradesh, April 10, 2012.
Training Manual of the Project
mentioned many traditional methods
bequeathed to us, which were quite scientific in their own ways. The Traditional water harvesting
methods that Project highlighted were the ‘Virdas’ of Gujarat, ‘Kundis’, ‘Rapats’, ‘Tobas’ of Rajasthan,
‘Kuhls’ of Himachal Pradesh, ‘Palliyals’ of Kerala,‘Phad’ system of Maharashtra, and ‘Ahars’ and
‘Pynes’of Bihar. Traditional earthquake resistant house building techniques highlighted in the Project
were the ‘Dhajji-Diwari’ buildings in Srinagar, ‘Kat-Ki-Kunn’ houses in Kullu Valley, ‘Pherols’ of
Uttarkhand Region and,‘Sumers’ (Watchtowers) of Rajput families from Rajasthan. Traditional Cyclone
Preparedness measures that the Project made a mention of were wrapping of all available seeds, rice,
pumpkin , paddy and burying them underground before moving to safer places, doing away with planting
of big huge trees near houses, predicting by observing the colour of clouds, growing banana trees,
observing animal and bird behaviour for predictions, and so on.
The Project underlined the utility of indigenous knowledge in the present context, as it is locally bound,
culture-and context-specific, and non-formal in nature. Such knowledge is orally transmitted, generally
not documented, dynamic and based on innovation, adaptation, and experimentation. This component
of traditional wisdom sets the Project apart as it weaves together multiple traditional coping strategies
at one place. In the race for speedy development and urbanization, we are losing our grip on indigenous
survival techniques. The Project drew home the point that we should develop skills to offset the negatives
of development. We should not let development offset our traditional knowledge and skills cherished
since generations.

21
 Inauguration of FFTP by Shri M. Maheedhar Reddy, Minister
for Municipal Administration and Urban Development, Andhra
Pradesh.

Source: TRR Government Degree College, Kandukuru, District Prakasam,

Andhra Pradesh, November 4, 2012.

4.3 Participation of all Stakeholders

Yet another component that renders uniqueness to the Project is its participatory and democratic approach
to disaster management. Disapproving of disaster management as a sole/single operator activity, the
Project looked into the issue from a multiple-stakeholder point of view, be it government or non-
government. It focussed on many stakeholders such as:
 Governmental Agencies such as district administration, DDMA, SDMA
 PRIs and ULBs
 NGO s and other Civil Society Organizations (CSOs)
 Nehru Yuva Kendra Sangathan (NYKS)
 Civil Defence (CD)
 Armed Forces
 Police Personnel
 Fire Services
 National Disaster Response Force (NDRF)
 Communities at Risk

22
 Corporate Sector and Market Associations
 Donors, including the UN and other International Agencies
The activities of these stakeholders are facilitated by efficient coordination techniques. The Project
discussed at length one such technique, that is, the Incident Response System (IRS) mentioned in the
NDMA guidelines to support its focus on democratic stakeholders’ participation in disaster
management. The NDMA guidelines recommend that there will be Incident Response Teams (IRTs) at
the State, District, Sub-Division, and Block levels comprising players like Responsible Officer (RO),
Incident Commander (IC), Operation Section Chief (OSC), Planning Section Chief (PSC) and Logistic
and Finance Section Chief (L&FSC). The guidelines have given a suggestive list of officers who can
perform the concerned activities. The idea is to pre-designate officers to perform different functions
and to train them on their responsibilities so that whenever there is a disaster, everyone knows who has
to perform what duty and how will it be done. This will remove adhocism in responses and make the
response process smooth and effective. The Chief Secretary (CS) and District Magistrate have been
designated as RO and overall in-charge of Disaster Response in their jurisdiction. A holistic and
integrated approach towards disaster management concentrating on coordination of all stakeholders
involved is emphasised. This unique IRS gives the Project an edge over other such Projects in the area,
as the detailed response structures of stakeholders are discussed in detail.
The Project spoke about certain objectives of stakeholders’ participation in disaster management.
These are:
 Reduction of the risks associated with disasters through timely measures, short-term and long-
term policies.
 Provision of required assistance to communities during and after the disasters; and
 Rapid and sustained recovery and rehabilitation after the occurrence of disasters.
The advantages of community participation, the most crucial stakeholders’ participation, were clearly
brought out by the Project. These are:
 Dissemination of information.
 Systematic identification of problems.
 Generation of innovative ideas/solutions.
 Higher levels of motivation.
 Cost-effective decision making.
 Optimum mobilization and utilization of local resources.
 Faster communication.
 Resolution of conflict.
 Vulnerability and Risk Assessment.
 Facilitation of Mock Drills.

23
 Creation of avenues for alternative employment.
 Participatory decision making at local levels.
 Effective and speedy monitoring and evaluation.
 Lesser dependence on governmental and non-governmental bodies.
 Creating linkages between research and development programmes.
Most importantly, the Project stressed on the role of Village Level Development Committee (VLDC) in
facilitating stakeholders’ participation: VLDC is provisioned to be formed in each village and is
responsible for initiating disaster preparedness activities. It consists of:
 Locally elected representatives, grassroots government functionaries.
 Local NGOs/Community Based Organizations (CBOs).
 Members of youth groups such as the National Service Scheme (NSS) and Nehru Yuva Kendra
Sangathan (NYKS), women groups, youth club members, grassroots level government
functionaries, etc.
 The size of a Village Disaster Management Committee (VDMC) is based on the population and
needs of the villagers. The Head of the VDMC takes a lead in mobilizing the community for
preparation of the CBDP plans.
This feature made this Project different from those in similar areas, as it laid emphasis on participatory
approach to disaster management. Specifically, it highlighted the role of almost each and every stakeholder
in the task of managing disasters, howsoever big or small. Most important was its focus on the community,
the first responder and most integral stakeholder in the entire process of mitigating disaster impact.
4.4 Mainstreaming Disaster Risk Reduction (DRR)
The Project laid emphasis on critical entry points that could mainstream disaster risk reduction.
Mainstreaming Disaster Risk Reduction is basic to disaster-development interface. It is a process that
fully incorporates the concerns of disaster preparedness, prevention and mitigation into development
and post- disaster recovery policy, as well as practice. It means completely institutionalizing Disaster
Risk Reduction (DRR) within the development and recovery agenda. Accordingly, a few broad objectives
of mainstreaming DRR into development that the Project highlighted include: ongoing schemes and
projects of the Ministries and Departments of Government of India and State Governments, as well as
of all government agencies and institutions, including Public Sector Undertakings, which will be selectively
audited by designated government agencies for ensuring that they have addressed the disaster risk and
vulnerability profiles of the local areas, where such schemes and activities are being undertaken. The
Project accentuated this development model in some detail. The Project showed that unless the aftermath
of a disaster is turned into a development model opportunity, with due focus on the requirements of
target group, availability of infrastructure, opportunities for livelihood, mobilization of resources and
agencies involved, disaster risk reduction through disaster-resistant construction would just remain a
superficial exercise.
The Project underlined the significance of post-disaster reconstruction, which is a process or a
development attempt that helps the community not only to overcome damages due to disasters, but

24
also to help the community to upgrade its existing infrastructure to withstand future catastrophes. All
phases of disaster management cycle have to be a part and parcel of DRR. Disaster-resistant construction,
though a very pertinent disaster risk reduction method, becomes redundant if seen in isolation from the
broader economic, social and cultural requirements of the target groups. The Project endeavoured to
integrate all development programmes and disaster risk mitigation strategies. It laid down that all
development projects must see to it that no construction is allowed in disaster vulnerable areas such as
hilly and steep slopes. The development programmes should also not increase the vulnerability of disaster
prone areas. All risk reduction strategies draw sustenance from disaster-development interface.
The Project amplified the relevance of Disaster Risk Management Programme (DRMP), which was
taken up with the assistance from UNDP, United States Agency for International Aid (USAID),
Department for International Development (DFID), Disaster Preparedness European Commission’s
Humanitarian Aid Department (DIPECHO), Government of Japan, United Nations International Strategy
for Disaster Reduction (UNISDR) in 169 highly hazard prone districts in 17 States, including the North
Eastern States during 2002-09. The Programme aimed to minimize losses of development gains from
disasters and reduce vulnerability.
The major pillars of disaster management that are relevant for DRR, and which the Project aimed at
strengthening included:
 Public health measures for containment of outbreak of disease.
 Incident Response System (IRS).
 Community participation.
 Communication network.
 Capacity development of various linkages and support functions.
 Identification and integration of differential gender and class vulnerabilities.
 Specialized incident-site and hospital capabilities to handle Chemical Biological Radiological Nuclear
(CBRN) casualties.
 Human resource development by training manpower.
 Resource mobilization based upon the nature of disaster.
 Adoption of new technologies used worldwide for effective mass casualty management.
 Mechanism and capacity development to deal with public emergencies.
 Public-Private Partnership towards development of regional consortiums for critical care.
 Critical entry points to mainstream risk reduction.
 Development of risk financing and risk transfer instruments.

25
 FFTP Banner

Source: IGNOU Special Study Centre, Palakkad, Kerala, September 3, 2012.

Besides, the Project outlined the role of NDMA by highlighting the steps it has initiated for launching
national level mitigation projects for the management of earthquakes, cyclones, floods, droughts and
landslides. The objective is to strengthen the disaster communication network up to the last mile
connectivity, and set up national disaster mitigation reserves. The Project made note of the work on
risk assessment and vulnerability analysis, micro-zonation and hazard-zonation mapping, etc., that has
also been initiated with the involvement of various stakeholder groups. The following are the Projects
taken up by the NDMA:
 National Cyclone Risk Mitigation Project (NCRMP)
 National Earthquake Risk Mitigation Project (NERMP)
 National Disaster Communication Network (NDCN)
 National School Safety Pilot Project (NSSPP)
 National Landslide Risk Mitigation Project (NLRMP)
 National Flood Risk Mitigation Project (NFRMP)
4.5 Gender Mainstreaming
The fifth unique component of this Project was of gender mainstreaming. The Project brought out the
need for a sensitive attitude towards the vulnerable sections of society, especially the women. The focus
was on gender analysis, which helps to clarify the specific and often different capacities, vulnerabilities,
needs and coping strategies of men and women. The Project stressed the fact that established patterns
of gender inequality and inequity could be explored, exposed and addressed. This may provide
opportunities and entry points to develop programmes that support efforts to build more equitable
gender relations. Gender analysis, as put forth in the Project’s written material and analyses, essentially:
 Examines the differences in women’s and men’s lives, including those which lead to social and
economic inequity for women, and applies this understanding to policy development and service
delivery concerned with the underlying causes of these inequities.

26
 Aims to achieve positive changes for women gender mainstreaming, which is a strategy for making
the concerns and experiences of women and men an integral part of the design, implementation,
monitoring and evaluation of policies and programmes, in all political, economic and societal spheres,
so that men and women benefit equally, and inequality is minimized.
The Project paid attention to the fact that ultimate goal is to achieve gender equality. Gender mainstreaming
is a process that goes beyond focussing on women in isolation, to look at both women and men as
actors in and beneficiaries of development, and how
PRIs Participants in FFTP at Patna
their rights are defined relative to each other. It also
ensures that women and men have equal access
and control over resources, development benefits
and decision-making, at all stages of the
development process, project, programmes and
policy. This was reflected clearly by the Project.
The Project was quite successful in enlisting
women’s participation in FFTPs, thereby fulfilling
its goal of gender mainstreaming to an extent. In
Andhra Pradesh, 485 women participated as
against 891 men, which is quite satisfactory. Assam
though had 384 women, whereas men were 1148
Source: Prof. G.P.Sinha Centre for Disaster Management and in number. In Bihar again, participation of women
Rural Development, Patna, Bihar, June 26, 2012.
was average at 400 and men were at 1164. The
state of Haryana, which does not have a culture of
sending its women out to work, also showed a fairly good number in terms of participation. 420 women
participants showed up here, though men far outnumbered them at 1074. Himachal Pradesh also had a
good record in numbers. Over here 417 women participated as against 1331 men. Kerala certainly
lived up to its reputation, and here women’s number was as high as 519 as against 845 men. Maharashtra
showed 483 women participants and 1131 men in its FFTPs. In Orissa, 469 women participated as
against 954 men. In Tripura however, women’s participation was not too high. Over here, women
participants were 216 in number, against 1018 men. In Uttarakhand, the figure for women participants
was 413 and for men it was 1379. In West Bengal, it was only 298, whereas men were 1030. Even
though participation of men was much higher than women in most states; it was as high as 11856, that
is 71.95 per cent, women’s participation can still be considered to be satisfactory. 4623 women
participants is a very good figure, given the socio-cultural scenario in rural areas and small towns. We
should also keep in view the fact that reservation for women in local bodies only happened after the
73rd and 74th amendments. 28.05 per cent participation by women in the FFTPs only reiterates the
Project’s aspiration for gender mainstreaming (See Annexure 12).

27
 Demographic Participation in FFTPs

4.6 Psycho-social Support in Disaster Aftermath

A very relevant component of the Project was its emphasis on stress management and psycho-social
care of disaster victims, especially the children, elderly and women. Not generally dealt in training
manuals or workshops of projects on disaster management, this coverage of the topic in the Project
sets it apart from similar projects in the area. The psycho-social support in the post-disaster phase
should be handled professionally to promote safety and protection of the survivors against the psycho-
social trauma. It is the first line response that needs to be integrated with the general response and it can
be given by any type of responders in disasters. The Project emphasised the fact that Psycho-Social
Support for Affected (PSFA) was an integral part of emergency health response plan, and PSFA
training and skills could be given to hospital emergency para-medics, ambulance crew, community level
workers, students and other first responders based on the modules prepared by the nodal agencies. It
called for integrating Psycho-Social Support for Mental Health Sciences (PSSMHS) with the general
health-care to facilitate early identification, management, referral and follow up of PSSMHS problems,
along with the medical problems. It drew attention on the necessity for development of ‘All Hazard’
Implementation Strategy and outlined the requirements for development of a PSSMHS action plan by
the nodal ministry.
Laying focus on Post-Traumatic Stress Disorder (PTSD), the Project called upon for an understanding
of disaster-induced stress and trauma, which are ‘normal’ reactions to ‘abnormal’ situations. It underlined
the importance of efforts that need be taken to minimize stress, shock and denial. Thoughts and behaviour
patterns are affected by the trauma, so the Project drew attention to observing victim’s behaviour
carefully and taking note of trigger factors. The Project gave a detailed list of ‘Things to Do’ in case of
emotional breakdown of trauma victims, especially children, women and elderly. It laid focus on
international standards, involvement of professional groups, right exercise regimen, healthy diet plan,
and interactive sessions to deal with stress and trauma.
4.7 Preparation of Training Manual
Training Manual is generally a part of the theoretical component of many Projects, but this Manual
including 4 Booklets and 1 Handbook had certain specific features, not usually seen in the disaster
management project manuals. A novel component of the Manual Booklets was its section on ‘Concepts

28
to Remember’. Other new concepts included Graphics, Did You Know Sections and Skill based
Exercises. Generally, training material is focussed more on skill and attitude inculcation and less on
knowledge infusion. This Manual attempted to rectify this by introducing the innovative section on
Concepts to Remember in all its Booklets, covering a wide range of topics pertaining to knowledge on
disaster management through its sections.
The first Booklet endeavoured to familiarise the target group with all Constitutional provisions and
policies with regard to disaster management; besides dealing with the role of the authorities and
organizations in the field, including the NDMA and IGNOU, as well as PRIs and ULBs. It made note
of all the major landmarks in disaster management at the national and international levels. Section 1 of
the Booklet introduced the objectives, purpose, and modalities of the Project .The general purpose of
the Training Manual, of which the Booklet was an integral part, was clearly brought out through a
discussion on dissemination of Knowledge, Skills and Attitudes (KSAs), with a focus on the inter-
linkages between education and training, based on knowledge and learning. The major goals of the
Project were described at length. The Section gave an insight into the KSA requirements of the target
group functionaries; and provided specific ways of using the Manual, underlining its broad overview.
Section 2 of Booklet One on ‘Disaster Management: Conceptual and Institutional Framework’ explained
the meaning of the concept of disaster, clearly highlighting its characteristics and objectives. The distinction
between a hazard and a disaster was also brought out. The Section described the meaning of risk,
vulnerability and capacity: the three pertinent features which vary in degree, and influence the impact of
disasters. Typology of disasters, nature of disasters and disaster management phases were also dealt
with in the Section. It gave a detailed list of key words with their explanations. National landmarks in
disaster management such as the 73rd and 74th Constitutional Amendments, Eleventh Schedule, Twelfth
Schedule, Eleventh Finance Commission, Disaster Management Act 2005, National Disaster
Management Policy 2009, etc., found a major place in the Section. Likewise, it talked of International
Agreements in detail. The Section also discussed the types of financial arrangements for disaster
management. The role of different stakeholders in disaster management at the central, state and local
levels was systematically brought out.
The second Booklet entitled ‘Disaster Preparedness and Mitigation’ carried forward the emphasis on
knowledge building and described the components of preparedness and mitigation; bringing out the
role of NDMA and other governmental and non-governmental agencies in the area. It detailed three
types of preparedness; namely Target-Oriented, Task-Oriented and Disaster-Oriented Preparedness.
The focus was on specific livestock preparedness plan, composite health plan, community based disaster
management plan and coordination plan. Task-oriented preparedness included exercises of mapping,
coordinating, planning, training, recruiting and forming task force. The major focus was on Psycho-
Social Support and Mental Health Services. It brought out the role of institutional and functional
mechanisms/strategies in preparing for disasters. It discussed the concept of preparedness and mitigation,
underlining the relationship between the two. The disaster preparedness framework in India was described
in detail.
The third Booklet on ‘Responding to Disasters’ focussed more on skill and attitude training. It clearly
brought out the relevance of Search and Rescue; highlighting its basics and characteristics. The aim was
to train the target group in skills required for Incident Response System, Damage Assessment, Relief
Distribution, Shelter Management, Health Planning, Water Purification, Sanitation Options, Warehouse
Maintenance, Relief to Livestock, Stress Management and Logistics Management. This was dealt with
reference to specific natural disasters. The Booklet explained disaster response management under

29
two broad categories, namely Going through the Training Manual
Disaster Response
Management for Response
Activities and Disaster
Response for Specific
Disasters. Response activities
focussed on different response
tasks such as Incident Response
System, damage assessment,
relief distribution, health
planning, shelter management,
water purification, sanitation
options, logistics management,
stress management; and relief to
livestock. Responding to
disasters such as earthquakes,
fires, cyclones and floods
formed a part of disaster- Source: Bankura Christian College, Bankura, West Bengal, September 16,
specific response management 2012.
that the Booklet highlighted. The
Booklet also explained the functions of various response teams like carcass disposal, shelter management,
water and sanitation, quick first-aid, damage assessment, trauma counselling, as well as medical assistance
and first-aid.
Booklet fourth, the last one of the Training Manual, was divided into 2 Sections. The first Section on
‘Disaster Recovery’ dealt with the characteristics, principles and typology of rehabilitation. It brought
out the reconstruction strategies for different disasters, especially the earthquakes. Section 2 was on
the ‘Road Ahead’ and gave a futuristic perspective on disaster management by highlighting the crucial
components of the interface between disasters and development, Sustainable Development Framework
and Relief-Rehabilitation Development Continuum. Many new developments/ initiatives taken by various
organizations in disaster management, especially the NDMA were brought out. Most importantly, this
Section highlighted the role of PRIs and ULBs under the 11th and 12th Schedules of the Constitution.
In addition, useful reference material was prepared in the form of a functional Handbook for ready use
of the micro-level disaster management personnel. This ‘Handbook for Effective Disaster Management
at Micro Level’ was conceived as a compendium of roles of Key Line Departments in disaster
management at District Level, viz Revenue; Police; Irrigation; Health; Agriculture; Animal Husbandry;
Water Supply and Sanitation; Forest; Public Works Department (Buildings & Roads); Power Supply;
Transport; and Food and Civil Supplies. Likewise, in keeping with the fact that the elected Local
Bodies also have an important role to play in disaster management, the Handbook contained
Preparedness Checklists for the elected representatives of the PRIs and ULBs to enable them to work
effectively on the various facets of disaster management. The Handbook lucidly underlined the important
Do’s and Don’ts for major disasters namely, Flood; Cyclone; Tsunami; Drought; Earthquake; Landslide;
Fire; Heat Wave; Epidemics; Chemical, Biological, Radiological and Nuclear (CBRN) Disasters. With
its focus on role, checklists and Do’s and Don’ts, the Handbook emphasized the connect between
development and disasters, as well as the need for mainstreaming disaster management into the
development process.

30
4.8 Unique Training Approach
Another feature that set the Carrying a Victim
Project apart was its training
approach. The Project took a
scientific route to understanding
capacity building requirements
through a detailed Training
Needs Analysis (TNA). On the
bases of the TNA, it prepared a
comprehensive Knowledge,
Skills and Attitudes (KSA) input
for the grassroots functionaries.
It even culled out disaster
management tasks for the local
level functionaries, emanating
from the 11th and 12th Schedules
under the 73 rd and 74 th Source: District Institute of Education and Training, Rudraprayag,
Uttarakhand, August 24, 2012.
Constitutional Amendments (See
Annexure 6). The Project was methodical in outlining the role of resource persons, nodal officers and
centre coordinators. This unique training methodology is detailed in our next section.

5. TRAINING METHODOLOGY OF THE PROJECT

As far as methodology is concerned, the Project was unique and rather comprehensive in reaching out
to as many representatives and GOs as possible. From each district, 300 people were sought to be
trained under the Project, out of which 75 Government Officials (GOs) and 225 representatives of
PRIs and ULBs were to be trained. Thus, in all, 16,200 GOs and representatives of PRIs/ULBs s were
to be trained in Disaster Management under this Project.
In the identified 54 multi-hazard districts, a systematic methodology was adopted under the Project,
which included:
1. Identification of Administrative Training Institutes (ATIs), in each of the 11 States for organization
of Pilot Face-to-Face Training Programme (FFTP) for Training Need Analysis (TNA).
2. Development of background material and audio and video programmes for the participants of
FFTPs.
3. Translation of background material in Assamese, Bengali, Hindi, Malayalam, Marathi, Oriya, and
Telugu.
4. Identification of the Study Centre Coordinator as the key officer representing IGNOU for carrying
out the following activities pertaining to the Project:
 To be in touch with the Nodal Officer from the District Administration to get the names of the
participants for attending FFTPs.
 To organize the Capacity-Building exercise through 8 FFTPs of two day duration each, to be
attended by 35-40 participants identified by the district administration for each FFTP.

31
  2 Resource Persons identified from different fields of study from each Study Centre were
assigned to conduct 8 FFTPs of two day duration each.
 Mock Drill of around two hours on the second day of each FFTP was provisioned to
demonstrate skills and methods required in rescue operations, including first aid techniques/
skills.
Under the Project, 432 FFTPs, of Two Day duration each, were conducted mainly at IGNOU Study
Centres under the supervision of the Study Centre Coordinators. In each Centre, Capacity Building
exercise, as per FFTP Schedule, was carried out by local Resource Persons identified by the
Administrative Training Institutes/ State Disaster Management Authorities/Departments of Revenue,
etc. The last FFTP, at Dhubri, Assam, was completed on 18th May 2013. In all, 16479 participants,
against the targeted number of 16200 participants, attended the FFTPs, which means 279 more
participants attended the FFTPs. Out of this, 6648 (40.34%) were GOs, 7941 (48.19%) were PRIs’
representatives, and 1890 (11.47%) were representatives of ULBs (See Annexure 11).
As far as the status of FFTPs in different states is concerned, 40 FFTP s were conducted in 10 states,
and 32 FFTPs were conducted in Tripura. In Andhra Pradesh, total participation was 1376. Of this,
701 (50.95%) were GOs, 423 (30.74%) were representatives of PRIs, and 252 (18.31%) were
representatives of ULBs. Assam could cover 1542 participants under its FFTPs. Out of which 750
(48.64%), 601(38.98%), 191 (12.38%) were GOs, PRIs’ representatives, and ULBs’ representatives
respectively. In state of Bihar, 1564 participants attended FFTPs, of which GOs were 379 (24.23%),
PRIs’ representatives were 1111 (71.04%) and ULBs’ representatives were 74 (4.73%). Haryana
covered 1494 participants under its FFTPs. 758 (50.74%), 597 (39.96%), 139 (9.30%) were GOs,
PRIs’ representatives, and ULBs’ representatives respectively.
Number of Participants in FFTPs at Different Places

1548 participants attended the FFTPs in Himachal Pradesh. Out of this, 623 (40.25%) were GOs,
755 (48.77%) were representatives of PRIs, and 170 (10.98%) were representatives of ULBs. In
state of Kerala, 1364 participants attended FFTPs, of which GOs were 564 (41.35%), PRIs’
representatives were 633 (46.41%) and ULBs’ representatives were 167 (12.24%). In Maharashtra,

32
figures were 1814 total participants, 800 (44.10%) GOs, 668 (36.83%) PRIs’ representatives, and
346 (19.07%) ULBs’ representatives.
In the state of Orissa, 1432 participants attended the FFTPs, out of which 514 (36.12%) were GOs,
798 (56.08%) were representatives of PRIs, and 111(7.8%) were ULBs’ representatives. In all, 1234
participants attended FFTPs in Tripura, out of this, 531 (43.03%) were GOs, 526 (42.63%) were
representatives of PRIs, and 177 (14.34%) were representatives of ULBs. In Uttarakhand, total
participation was 1902, of which 547 (28.76%) were GOs, 1253 (65.88%) were representatives of
PRIs, and 102 (5.36%) were representatives of ULBs. 1328 participants attended FFTP Sessions in
West Bengal, 481 (36.22%) out of them were GOs, 686 (51.66%) were representatives of PRIs and
161(12.12%) were ULBs’ representatives (See Annexure 11). The participation level of the functionaries
is depicted in the Bar Diagram given below.
Categories of Participants in FFTPs in Different States

As already mentioned, a few features were unique to the training methodology of the FFTPs conducted
under the Project. These were:
i) Training Needs Analysis
The methodology of the Project was very scientific, as it was based on a comprehensive Training
Needs Analysis or TNA. As education and training require systematic appraisal of knowledge and
learning levels, it is appropriate to conceive their determining factors or parameters through a well-
defined TNA. The TNA process involves a range of techniques to analyze how to enhance the
performance of people. This can be done individually, for groups of persons, or for the organization as
a whole. It can be used for all levels of staff. The objectives of administering a TNA are to accurately
identify where and in what amount training is needed, and also to present training recommendations to
the authorities responsible for training for approval. TNA provides the basis for these activities by:
 Looking at the organization or an institution as a whole and trying to understand its operations and
problems;

33
 Observing the employees at all levels and finding out how their performance can be improved;
 Identifying significant performance problems;
 Analyzing these problems to determine training needs for those people who are associated with
them;
 Helping individual employees with their training and development;
 Recommending training and non-training solutions;
 Prioritizing the needs in order to help the management in decision-making; and
 Helping the management to plan training initiatives.
In line with the above mentioned TNA specifics, the Project made use of 3 TNA Schedules ( See
Annexures 2,3&4)). One was a detailed 65 odd question format, the second was attempted to garner
participants’ perception on knowledge and the third one was targeted on skill perceptions. These 3
Sets of TNA Schedules helped in compiling a detailed list of KSAs for the target functionaries.
ii) Knowledge Skills and Attitudes (KSAs)
The entire methodology, as mentioned, was based on a systematic TNA exercise, which was garnered
by GOs and public representatives through structured schedules. Based on these schedules, a detailed
list of knowledge, skills and attitude requirements for the target group was prepared. For the purpose
of imparting KSAs to the target groups of this Project, a KSA chart was prepared and placed before
the Project Expert Committee Meeting and Pilot FFTP and TNA workshops, to ascertain the knowledge,
skill and attitude requirements of the target functionaries (See Annexure 5). The views of the participants
at these Workshops were duly recorded. The Project was innovative enough to bring out a detailed
chart on KSAs required at different phases of disaster management cycle, namely preparedness and
mitigation, response, rehabilitation and recovery. Besides, it brought a detailed set of tasks required to
be performed by PRIs and ULBs under their new role with regard to 11th and 12th Schedules of the
73rd and 74th Constitutional Amendments (See Annexure 6).
iii) The Role of Project Functionaries Towards Effective Conduct of FFTPs
In order to make the conduct of FFTP Sessions more systematic, the Project delineated the role and
activities of all the functionaries involved in the conduct of Workshops and FFTPs such as the resource
persons, facilitators, nodal officers and centre coordinators. The specific roles of these functionaries
are given below:
Role of NDMA
NDMA functionaries involved in the Project played a formidable role in conduct of FFTPs by performing
the following tasks:
 Interacting with the State/District Administration for arranging the FFTPs in their districts, as per
the schedule finalized in the Orientation Workshops.
 Urging the Deputy Commissioner/District Collector/District Magistrate for identification of the
Nodal Officer in each district.
 Apprising the Project Team at IGNOU about the names and contact details of the Nodal Officers.

34
 Keeping in constant touch with the Deputy Commissioners/District Collectors/District Magistrates
and the Nodal Officers, wherever required, for all necessary help to be provided for smooth
conduct of FFTPs.
 Reviewing the status of FFTPs with IGNOU Project Team from time to time to initiate required
steps for successful completion of FFTPs at all places.
 Monitoring of FFTPs at some places by NDMA officials.
 Ensuring Third Party Evaluation of FFTPs at some places.
Role of the Resource Persons
The Resource Persons were supposed to:
 Get acquainted with the Project Objectives, Methodology, Outcome, etc.
 Prepare thoroughly for each Session of the FFTPs.
 Encourage interaction by the participants in each Session.
 Illustrate various concepts with suitable local examples.
 Formulate Report for each FFTP, identifying and highlighting inter-departmental issues for resolution
to the NDMA and IGNOU; as well as providing strategic inputs and feedback to IGNOU for
further necessary action to be initiated by NDMA at SDMA and DDMA levels.
The Resource Persons were to act as Facilitators and thus expected to:
 Make participants feel comfortable by reassuring their potential value in the whole scheme of the
Project.
 Apprise participants on the goals and objectives of the Project, as well as its aims and contents.
 Ensure full participation of the target group through participative discussions, responsive feedback,
and also constructive criticism.
 Familiarize the participants about the relevance of effective disaster management, collective leadership
and people’s power to bring in substantial transformation in their KSAs.
Plan Preparation in Progress

Source: Government College for Women, Srikakulam, Andhra Pradesh,

November 16, 2012.

35
Role of Nodal Officer
The Nodal Officer was supposed to:
 Get acquainted with the Project Objectives, Methodology, Outcome, etc.
 Chalk out the schedule of 8 Face-to-Face Training Programmes (FFTPs) at District level in
consultation with IGNOU Study Centre Coordinator.
 Identify probable categories of participants for FFTPs with about 10-12 GOs concerned with
Disaster management at District and below levels. 15-18 representatives of PRIs and 15-18
representatives of ULBs in each FFTP.
 Prepare lists of participants for each FFTP.
 Inform participants about the dates and venue of each FFTP.
 Have liaison with IGNOU Study Centre Coordinator for ensuring participation.
 Ensure attendance of participants on both days of the FFTP.
 Help in arranging Mock Drill in each FFTP.
Role of Centre Coordinator
The Centre Coordinator had to:
 Get acquainted with the Project Objectives, Methodology, Outcome, etc.
 Chalk out the Schedule of 8 FFTPs at district level in consultation with the Nodal Officer.
 Obtain list of participants for each FFTP from the Nodal Officer. Each FFTP was to have about
10-12 GOs concerned with Disaster Management at district and below levels, 15-18 representatives
of PRIs, 15-18 representatives of ULBs in each FFTP.
 Have liaison with the Nodal Officer for ensuring participation.
 Receive material from IGNOU for preparing Training Folder for each Participant. The Folder was
supposed to contain: Plastic File; Registration Form; Evaluation Form; FFTP Schedule; 4 Booklets
and 1 Handbook of Training Manual; Audio CD; Video DVD; Exercise; Case Study; Writing
Pad; and Pen.
 Arrange for conduct of each FFTP that includes Training Hall; Lunch; Tea; etc., for the participants.
 Be in constant touch with the Resource Persons.
 Ensure attendance of participants in all Sessions of the FFTP.
 Get the Registration Form and Evaluation Proforma filled by the participants.
 Prepare Expenditure Report for each FFTP to be passed on to IGNOU with all relevant Bills.
 Make payment to the Resource Persons, Study Centre Coordinator; Study Centre for providing
Training Hall; and Catering, etc.

36
iv) Training Tools
The Project made use of many tools in its conduct of Workshops and FFTPs. The objective was to
emphasize the point that training was an interesting process rather than a drab exercise. The FFTPs
made use of a mix of training methodologies namely:
 Conventional Lectures
 Simulations
 Graphics, Pictures and Charts
 Case Studies
 Hazard, Vulnerability, Risk and Capacity (HVRC) – A Situational Analysis
 Mock Drill
All participants were given a Kit, which had all the essentials required for training. The Participant’s
Kit included:

S. No Item Quantity
1. Plastic Folder 1
2. Writing Pad 1
3. Ball Pen 1
4. Registration Form 1
5. FFTP Schedule 1
6. Print Material Booklets 5
7. Video DVD 1
8. Audio CD 1
9. HVRC Situational Analysis Exercise 1
10. Participant’s Evaluation Proforma 1

Explaining a Concept

Source: PSMO Collge, Malappuram, Kerala, September 5, 2012.

37
Besides, a Video and an Audio were prepared to familiarize the government officials and elected
bodies’ representatives about their role in disaster management. The Video covered all facets of disaster
relief with suitable examples and the Audio further supplemented the information given in the Manual
text and Video. A comprehensive set of Slides was also prepared by the IGNOU Faculty to facilitate
the conduct of Training Workshops. These covered all aspects of disaster management cycle with
examples and details. The Slides were also divided into 6 sessions in consonance with the FFTP
Sessions. The topics that it covered were also the ones as per the scheduled Sessions. These relate to
the difference between hazard and disaster, negatives and positives of disaster, disaster management
cycle, consequences of disasters, disaster preparedness teams, disaster response activities, disaster-
development interface, and types of rehabilitation, strengthening community based disaster management
system, inter-departmental linkages, loopholes in resources and infrastructure and so on. The novel
achievement was that these slides were translated into all the 6 languages in which the Project was
implemented, besides English and Hindi.
v) Mapping Exercises
One of the most important activities that the Project covered, albeit at the Manual level, was that of
mapping of risk, vulnerabilities and capacities of the village area by the community itself; because it is
a very simple and cost-effective tool to collect ground level data. This is done through Participatory
Rural Appraisal (PRA) exercises. PRA is an approach and method for learning about rural life and
condition, for, with and by the rural people. This is a training tool used to carry out the Village Disaster
Management Planning at the community level. It enables local people to make their own appraisal,
analysis and plans. It uses group animations and exercises to facilitate information sharing, analysis and
interaction among stakeholders. Community participation in mapping provides a pictorial base to the
planning process, especially for the semi-literate populace. The Project explained the potency of PRA
and Village Level Planning. It laid emphasis on problem identification and local resource utilization
potential of mapping. It talked of various types of mapping such as Safe Mapping, Social and Resource
Mapping, Risk Mapping, and Vulnerability Mapping.
Mapping Exercise in Progress

Source: D.A.V. Educational Society, Jiaganj, Murshidabad, West Bengal,

December 7, 2012.

38
vi) Innovative Style of the Training Manual
As mentioned earlier, the Training Manual Booklets contained a lot of information in terms of knowledge,
skills and attitudes input. The Manual was unique in its own way as it contained certain features that
were specific to it. These were:
Concepts to Remember: Covered concepts such as Vulnerability, Disaster Risk, Community Capacity
Building, Incident Response System, Social Forestry, Sustainable Development, Corporate Social
Responsibility (CSR), Critical Incident Stress De-briefing, Epidemiological Surveillance, Capacity
Assessment, Community Empowerment, Mercalli Scale, Crisis Information Management System, Gender
Analysis, Land-use Planning, Mapping Exercises, Rainwater Harvesting, and so on.
Did You Know: Included specific cases, incidental information, additional knowledge input and interesting
details on disaster management.It covered topics such as safety tips, seismic codes, role of NDRF,
provision of insurance and so on.
Things to Do: Contained skill based tasks to be performed at different stages of disaster management.
The Project made note of certain very pertinent rescue techniques for the participants, to be used by
them in crises, many tasks to do and various safety tips. Very rarely do such Projects cover training
skills in this manner. These techniques included: Lifts and Drags, different ways of carrying victims, use
of Bends and Lashings, improvized Swimming and Floating Aids. It detailed the role of disaster response
to the maximum extent possible. It spoke of many specialized disaster response teams like carcass
disposal, coordination, shelter, stress management, etc.
Evacuating theTrapped

Source: Government Degree College, Dharamshala, Himachal Pradesh, June 6, 2012

39
 Do’s and Don’ts: Covered the tasks to be done or not to be done under specific disasters such
as droughts, cyclones, floods, earthquakes, and fires. The Handbook covered these as well as a
range of disasters such as CBRN and their Do s and Don’ts in detail.
 Exercises: Entailed notes to be written or analyzed on specific disaster management issues, to
gauge the knowledge and skills imbibed by the participants.
 Charts, Pictures and Diagrams: Depicted many new concepts, exploded myths, enlightened
on concepts of disaster management through graphic depictions, pictures, charts, and diagrams.
To make training interesting, some of the graphics on disaster management scenarios were specially
designed by professional artists.
6. ANALYSES OF PARTICIPANTS’ FEEDBACK
The most crucial and if we can say a mammoth task was of putting together all feedback forms
(Approximately 15,000 in number). It was arduous to make sense of each response and analyse it as
scientifically as possible, using statistical tools and representations. The structured schedule in the form
of Evaluation Proforma on which the participants’ feedback was based consisted of 15 questions, as
well suggestions sought by the participants (See Annexure 9). First 3 questions pertained to name,
address and designation and the rest were all on relevance, scope and benefits of training. Besides,
responses to Resource Person Feedback Form were also garnered through a structured schedule (See
Annexure 10).
A well-defined FFTP in itself is half battle won, as it means that the participants could relate with the
structure of the training sessions and found them to be meaningful ( See Annexures 7). Proper and
timely efforts towards disaster preparedness lead to better disaster response and recovery. Thus, the
Project’s FFTPs were divided into 6 systematic Sessions, in which information on all facets of disaster
management flowed methodically. Session by Session, information was given to the participants in a
clear and logical manner, covering each phase of disaster management cycle, namely preparedness,
response, reconstruction, rehabilitation and recovery one after the other, in separate Sessions.
Participants Learning Some Useful Knots for Rescue

Source: Balurghat College, Balurghat, South Dinajpur, West Bengal,

November 2, 2012.

40
By and large, the participants found the FFTPs under the Project to be of great utility and value,
especially for equipping them to adapt to the paradigmatic shift from disaster preparedness to recovery.
It enabled them to appreciate the significance of HVRC Analysis, essentials of disaster preparedness,
role of different stakeholders; impact of disasters, vulnerable communities and groups, coping
mechanisms, challenges and lessons, functioning of Disaster Response Teams; concepts of rehabilitation,
reconstruction and recovery, understanding Damage and Need Assessment, strategies for strengthening
Community Based Disaster Management system; Understanding major components of Community
Action Plan for disaster management, focus on Traditional Knowledge and Coping Mechanism Strategies
for managing different disasters; District Disaster Planning, and so on. As per the participants’ response
on the structure and organization of the FFTPs, a majority of them felt that they were very well-
structured, 63.82 per cent of them thought they were very well- structured, 29.17 per cent said it was
well-structured. A very small percentage, that is 5.6 per cent, felt it was somewhat unstructured, which
means structured to an extent only, and an even smaller percentage, only 1.42 per cent felt that FFTPs
were poorly structured or were much un-structured. This means that FFTPs were well-received and
understood. The response on FFTPs is depicted in the diagram given below.
Structure and Organization of FFTPs

Training is the process through which participants are made capable of doing the jobs prescribed to
them. Every organization needs to have well-trained and experienced people to perform the activities
required to be undertaken. It is necessary to raise the skill levels and increase the versatilities and
adaptability of employees’ performances to the requirements of an organization in the changing world.
Inadequate job performance results in decline of work productivity. Job redesigning or a technological
breakthrough require some type of training and development effort. In a rapidly changing society,
training is not only an activity that is desirable, but also an activity that an organization must commit its
resources to. “Training”, “education”, and “development” are the three terms frequently used to create
awareness.
Most of the participants found the training, imparted through FFTPs, to be very useful. Training, if we
can say, is an additional input for an already educated and developed mind. Not to say that uneducated
ones cannot be trained. The three terms cannot be viewed in a linear fashion. However, an educated
mind is more receptive to training. The process of training is meant to not only improve job performance,
but also the overall ability to think and create. A training programme can have a short-term and

41
long-term utility for the participants. There was a very good response to the impact of training
conducted through the FFTP Sessions. Almost 92.16 per cent of the participants felt that training would
be of use to them immediately. Out of this, 62.55 per cent felt it was very useful immediately, and 29.61
per cent felt it was quite useful. 6.01 per cent, however, felt that training was of limited use only and a
miniscule 1.83 per cent even expressed that they did not benefit from it at all. The objectives of the
Project stand fulfilled as majority found the training to be useful. It also means that most of the participants
understood the training content and could relate with it. The following Bar Chart depicts the response
given by the participants.

Immediate Utility of FFTPs

Training is generally targeted at improving the immediate needs of the participants, as it starts to diminish
if not utilized immediately. This Project had a short-term and a long-term goal in mind, while designing
its FFTPs. A lot of input in terms of interface between disasters and development, participatory policy
making and relief-rehabilitation continnum, was included so that the participants imbibe the training
outcome as an everyday strategy to deal with disasters, and not just something that could only be put to
immediate use. That is the reason why as far as the future utility of training for effective disaster
management is concerned, 92.19 per cent again felt it to be very useful. They found an interconnection
between training and effective disaster management. They found most of the topics covered to be very
informative and skill-oriented. Of the 92.19 per cent, a large percentage, that is, 63.89 per cent felt it to
be very useful, 28.3 per cent found it to be quite useful. 5.66 per cent, however felt that in future,
training may be of limited use only. 2.15 per cent even said that training will not be useful at all. The
responses on training utility are represented in the following diagram:
Prospective Benefits of FFTPs

Not at all Useful

Of limited Use

Quite Useful

Very Useful

0.00% 10.00% 20.00% 30.00% 40.00% 50.00% 60.00% 70.00%

42
Training programmes bring different participants from various departments and organizations together.
In this case, each FFTP had participants from different governments departments as well as elected
bodies. Normally, participants function in accordance to their own perceptions/understanding, as well
as their department/organization’s mandate and operational procedures. Since disaster management is
not a piece-meal strategy to be exclusively dealt
with by each department/organization’s Experience Sharing by Participants
procedure, it is essential that the issues of
functionaries from various operational units are
addressed collectively. Interaction amongst
the participants encourages them to take
responsibility for their own learning; working
through a problem and enhancing their
confidence in conducting various disaster
management activities; promoting an
atmosphere of co-operation; and encouraging
participants to constantly relate the imparted
training to their ‘real life’ experiences.
This is why training is more effective if the
participants mingle well with each other, share Source: F.M. Autonomous College, Balasore, Odisha, October
opinion and comments and collectively solve 7, 2012.
problems through exercises. A participatory
training session not only teaches, educates or trains, but it even leads to long-term learning amongst
participants, as they imbibe lessons from each other’s experiences as well as the trainer’s ability to instil
KSAs in them. A large percentage that is 61.67 per cent of participants thought that their interaction
with other FFTP participants have benefitted them substantially. 28.76 per cent aired that they were
considerably benefitted. 6.92 per cent, however, felt that they were fairly benefitted. Again, a very small
percentage, that is 2.66 per cent, to our surprise, averred that they were not at all benefitted by the
interaction with fellow participants. Training was thus found to be interactive as participants mingled
with each other qualitatively and learnt from each other’s experience. This is visible through the following
Pie Diagram.
Interaction amongst Participants

Fairly Not at all

7% 2%

Considerably
29%
Substantially
62%

The Project was designed in a way that all its products were attuned to each other. The Training Manual
was systematically designed with proportionate quantity of KSAs to be imbued. Likewise, the FFTPs,

43
Audio and Video were based on the information provided in the Manual. The objective was to create
complementary training aids and tools and not some type of training material that was at variance with
each other. In keeping with contents of the Manual and Audio/Video Programmes, the participants
found the same to be relevant to various Sessions of the FFTPs, as they focused on: interconnection
between disaster management and development processes, coordination amongst various disaster
management agencies, role of community and its representatives, use of traditional knowledge and
wisdom, role of stakeholders; mainstreaming disadvantaged sections in disaster management planning;
logistics management, health management and resource mobilization, linking relief and rehabilitation
with development and so on. The Project was thus successful in this objective if we look at the response
to the query on interconnection between Manual and other Training Aids and contents related
to FFTPs. A majority felt that it was very relevant. 65.86 per cent felt training aids were extremely
relevant and related to the contents of FFTPs, 27.19 per cent opined they were considerably relevant,
and 4.6 per cent said they were fairly relevant. However, 2.35 per cent went to the extent to say it was
not relevant at all. It is diagrammatically represented as under:
Interconnection between Training Manual as well as Training Aids and FFTPs

One of the significant parts of the capacity building exercise under this Project was to have such resource
persons who were professionally qualified and well-versed with the local disaster scenario in each
identified State. They were asked to be thoroughly oriented with the Project Objectives, Methodology,
Outcome, etc., and be prepared for each Session of the FFTP. They were urged upon to encourage
qualitative interaction by the participants in each Session. Besides, detailed Session Plans with objectives,
contents and methodology of conducting each Session was discussed at length with the Resource
Persons. Slides for conducting each Session in local language were developed and passed on to the
resource persons for extensive use. Thus, the Resource Persons identified were those who had all
required know-how about disaster management in general and the disaster situation in the concerned
area in particular, In assessment of the Resource Persons, the participants were very positive as
92.43 per cent averred that their Sessions were useful to a great extent. Of them, 63.43 per cent said
they were very useful and 29 per cent felt they were quite useful. Only 5.5 per cent said that these were
of limited use and a mere 2.07 per cent felt that the Resource Persons’ Sessions were of no use at all.

44
This is reflected in the diagram below:
Assessment of the Resource Persons

As already assessed, a majority of participants found the FFTPs to be very relevant to their immediate
requirements of the job as well as future needs. Of the components of the FFTPs, 85.95 per cent
found ‘Understanding Disasters and Disaster Management, Policy Framework and Institutional
Mechanisms for Disaster Management in India’ most useful. Other topics such as ‘Towards Disaster
Preparedness’, ‘Disaster Response with Special Reference to Immediate Relief’, ‘Sustainable
Reconstruction, Rehabilitation and Recovery’ , ‘Towards Strengthening Community Based Disaster
Management System’ and ‘Mock Drill’ were found beneficial by a majority of the participants. The
percentage of affirmative participants was very high. The above mentioned topics (in the same order
given above) fetched 87.74 per cent, 86. 15 per cent, 87.27 per cent, 87.74 per cent and 87.27 per
cent respectively. The Bar Chart below depicts this more clearly:
Opinions on various Components of FFTPs

45
Most of the participants felt that the Mock Drill
Project objectives, methodology and
outcome were met through the
FFTPs. Their overall impression of
the Project was excellent, a large
percentage, that is, 46.17 per cent
averred that Project was a success
in terms of its objectives,
methodology and outcome. 41.76
per cent participants had a very good
impression of the Project. 9.96 per
cent had a good impression while only
2.12 per cent rated their impression
as fair. For more clarity, the following
Pie Diagram can be seen:

Source: Government College, Chamba, Himachal Pradesh, June 3, 2012.

Views on FFTPs Objectives, Methodology and Outcome

The Training Sessions, as mentioned earlier, were meant to inculcate KSAs in the participants.
The structure and organization of the Project was scientifically designed on the bases of 3 systematic
TNA Schedules. The response of the participants only reiterates the objectives echoed by the FFTP
Sessions. 87.74 per cent of the participants felt that Project targeted the Knowledge component well
and provided specific improvements in the area of Knowledge input on disaster management in future.
87.27 per cent held this view for the Skills component and as far as Attitudes go, 87.76 per cent opined
that Project provided specific information on their improvement. The following Bar Chart depicts the
responses very clearly:

46
 Opinions on Knowledge, Skills and Attitudes inculcated through FFTPs

No training programme can call itself a success if at the end of the Sessions, the participants do not feel
charged and motivated to do better, hone their skills or excel in their job specialization. Motivation is
the reason behind effective performance. All organizations work out some strategy of motivation or the
other. Be it physical, social or psychological, each individual has specific motivational needs. Once a
general motivation strategy is adopted, organizations can customize motivational ends for each employee.
Against this backdrop, it is quite satisfactory to note that this Project achieved its goal of motivating
the participants towards capacity building. To the query on the extent of motivation enthused by the
Project Sessions, a majority of the participants answered in the affirmative. 62.88 per cent felt highly
motivated to take up such exercises on capacity building. 31.05 per cent felt they were motivated to a
substantial extent. However, a very small percentage, that is 6.07 per cent lamented that they did not
feel motivated for carrying out capacity building in disaster management. It is reflected in the diagram
below:
Motivation towards Capacity Building of Others

Thus, by and large, the response to all the queries on structure, methodology and outcome of FFTPs,
utility of training, participatory nature of sessions, motivational levels of target functionaries, and KSA s’
inculcation proved to be more than satisfactory. A very small percentage, between a 1 to 3 scale,
responded in the negative, but that did not have any impact on the overall outcome of the feedback,
which can be easily termed as ‘up to the expectations of the Project’s goals’. The last part of
Participants’ Feedback Form pertained to suggestions on FFTPs in particular and disaster management
in general. Adequate response was recorded by the GOs, Elected Representatives of PRIs, as well as

47
ULBs. It has been given below:
GOs
 More FFTPs need to be organized at regular intervals.
 Line Departments should conduct such Programmes for their own officials.
 Principle of Coordination should be emphasized upon.
 High Achievers should be recognized and low-performers penalized accordingly.
 Based on the knowledge imparted and skills inculcated, the participants oriented through FFTPs
should be engaged in establishing healthy linkages with other Departments and Grassroots level
Institutions.
 Officials should try to work in tandem with the PRIs and ULBs.
 Participants trained through FFTPs should be involved in preparation of Disaster Management
Plans.
 Participants should be engaged in monitoring and evaluating disaster response, rehabilitation and
recovery.
 More time should be assigned for Mock Drill at local level.
Elected Representatives of PRIs
 More Training Programmes of this nature, preferably at Block/Village level are needed.
 Need to acquire detailed and thorough knowledge of local disaster scenario in their areas.
 More information about the local resources and constraints needs to be sought.
 Need for knowledge and updation of the local inventory.
 Frequent interaction with local community is required. This is needed to prepare strategies for risk
assessment; early warning systems; life safeguarding equipment; emergency kits; evacuation plans;
communication systems; capacity building; public education and preparedness campaigns.
 Need for training on inventory preparation for elements at risk at Block/Village level through
baseline data on: population, age, gender, health; livelihoods: types, locations; local economy;
infrastructure; etc.
 Need for formation of Disaster Task Force in the village.
 Constant interaction with the Line Departments for coping up with the disaster situation is required.
 Need to acquire skills to integrate disaster management with development planning.
Elected Representatives of ULBs
 Need for more Training Programmes like FFTPs, and if possible, at the ward level.

48
 Capacity Building Programmes by the ULBs with the help of local administration, DDMA/SDMA,
National Level Institutions like NDMA and IGNOU need to be organized with greater periodicity.
 Regular interaction with Line Departments for playing an important role in preparing and updating
the ULB/Ward Disaster Management Plan quarterly, with focus on Hazard, Vulnerability, Risk
and Capacity Analysis (HVRCA) of the ward is needed.
 More efforts for understanding Hazards, Risks and Vulnerabilities of the cities to promote safe
environment by the ULBs through Proper Hazard Risk Vulnerability Assessments of the urban
areas is needed.
 Need for introduction of appropriate institutional mechanisms for DRR by ensuring that all
development activities look into the DRR components.
 Involvement of local leaders for awareness generation and ensuring clarity on various responsibilities
for disaster management.
 Need to coordinate with the Local Health Department to ensure that a well-designed Medical
Preparedness and Mass Casualty Management system is in place.
 Need for more training to understand the utility of mainstreaming disaster management with
development.
Resource Person’s Feedback Report
Analyses of the Project was further strengthened and substantiated by the Feedback Report submitted
by the Resource Persons from the 11 target states. They provided their candid views on the FFTP
Sessions. If on the one hand, they were all praises for the Sessions, in terms of structure, methodology
and content, they did not shy away from bringing out the loopholes in the training process on the other.
In fact, they suggested many viable changes in the conduct of training. Given below is a list of their
comments on FFTPs:
Views on FFTP Sessions based • FFTPs were well-structured and appropriately conducted
on feedback garnered from with focus on major facets of disaster management
the participants covered in different sessions.
• FFTP sessions were quite informative with examples
drawn from the existing disaster scenario as well as past
disasters.
• Overall response from the participant was quite positive.
They learnt various facets of disaster management.
• The training sessions created awareness amongst the
participants. Even though, a majority of them from the
Government Departments were already in the know of
it, they could enhance and better their KSAs.
• Few participants, particularly the representatives of PRIs/
ULBs became aware of many facets of disaster
management, which they certainly did not know before
the commencement of the training sessions.

49
 • Participants found that community awareness was an
essential factor for effective disaster management.
• General opinion was in favour of strengthening of CBDM
system as a tool to reduce the impact of disasters.
• FFTPs were considered to be of great help for meeting
any unforeseen event occurring in their area.
• Participants could learn new topics, including the structure
and processes of disaster management in India.
• Through FFTPs, the participants seemed more informed
about Knowledge, Skills, and Attitudes required for
disaster management.
• Learning material was found to be of utility by the
participants. The CD and the DVD gave them required
insight about disaster management.
• FFTPs enabled the participants about relief and
rehabilitation provisions of Government.
• Group Exercises/Case Studies generated a great deal of
interest amongst the participants.
• Participants understood the components of Hazard, Risk,
Vulnerability and Capacity more clearly.
• Group activity on ‘Role of different Line Departments,
PRIs & ULBs in Relief & Response work’ was found to
be very effective.
• The translation of Training Manual into 6 languages,
besides English and Hindi, was appreciated a lot by the
participants.
Identification of Issues/ • FFTPs must have participants from local community as
Challenges towards effective well.
disaster management • Need for conducting FFTPs at Block/Village/Ward level.
• Periodic and regular Capacity Building exercises need to
be conducted.
• Mock drills should be held at local levels.
• Efforts need to be made for regular and constant
interaction between Line Departments, Elected Bodies,
and Community.
• More visuals (photographs / videos) need to be included
in Capacity Building exercises.

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• PRIs and ULBs with the help of Line Departments should
help community to develop Community Based Disaster
Management Plans.
• There should be more interaction amongst the existing
and former PRIs’/ULBs’ representatives for developing
appropriate disaster management strategy for the area.
• Training support is needed on preparation of DM Plan
and Annual Plans at the Panchayat level.
• There is an urgent need to generate awareness amongst
school students.
• Develop Disaster Management Plans at all levels and
update it quarterly.
• The Communication systems should be used regularly.
• Ensure establishment of fail-safe two-way communication
with the State, District and other emergency control
rooms, as well as, within the organizations.
• Need to work under the overall supervision of the District
Collector during emergencies.
• Call for mainstreaming Gender Issues in disaster
management.
• Women’s participation should be encouraged for better
DM.
• Gender based DM planning should be undertaken.
• There should be some skill development training for the
women for the better livelihood in case of disaster.
• Women SHGs should be targeted and they should be
involved more and more in every training programme.
• Women need to be addressed while administering relief
operation.
• Disaster-Development Interface needs to be put in place
with required role of concerned Departments, PRIs,
ULBs, CBOs, SHGs, Community, etc.
• The community level development programme should be
disaster proof.
• Institutionalization and reorganization of the DM
Committees and Teams.
• Administration to focus on the formation of Emergency
Committee and Trained Task Force at the community
level.

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• Preparedness drill to be conducted in disaster prone areas
at regular intervals.
• Administration should take necessary steps to conduct
awareness meetings in the villages/wards with the active
support of PRIs/ULBs.
• Need based approach for relief operations should be
followed.
• Special focus should be made on identification and
distribution of need-based relief material.
• Relief materials should be equitably distributed.
• Damage assessment at the GP/Ward level need to be
strengthened and PRIs/ULBs should be capacitated for
providing required help in this direction.
• Specialized training especially on First aid and Rescue
should be conducted at the GP/Ward level.
• GPs should prepare maintain and update the list of skilled
labour, that is, carpenter, masons and others.
• Replication of best DM practices must be encouraged.
• Interdepartmental coordination is a must.
• Role of Government agencies in Disaster preparedness
need to be more local specific.
• Adequate funds are to be earmarked for implementing
CBDM at village level.
• Participants oriented through FFTPs need to be used as
Master Trainers.
• Long intervals in imparting training should be done away
with.
• Need for contemporary database for effective planning,
response and recovery strategies.
• Serious political intervention in developmental and
disaster response related issues and decisions.
• Departments should organize mock drills regularly.
• Need to bridge communication at relief management level.
• Need for better stakeholders’ involvement in DM.
• PRIs members’ involvement in rehabilitation activities at
ground level needs strengthening.

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 • Need to improve mechanisms at PRIs’ and ULBs’ levels
to assess the vulnerabilities of the community.
• More cooperation and coordination amongst the Line
Departments and of PRIs/ULBs.
• More funds and technical know-how need to be made
available at the grassroots level.
• Need for more infrastructure and capacity building of
grassroots institutions including PRIs/ULBs.
• An effective and capacitated Task force at Village/Block/
Ward level is urgently required.
Highlighting Inter-Departmental • Inter-departmental issues and SOPs need to be
Issues/Linkages for further action discussed.
to be initiated in preparation of • Disaster management must be given importance and
SDMP/DDMP and SOPs for priority.
different Departments to tackle • Planning and Mitigation factors must be taken into
various disasters while preparing consideration.
DM plans. • Each department should have a master disaster
management plan, which should be intimated in advance
to every designated officer.
• Role clarity between departments and concerned officers
need to be in place.
• Need for integrating PRIs/ULBs and administrative
departments for DM Planning and disaster response.
• PRIs at panchayat level are led by less educated and less
skilled persons. There is a need for their handholding by
departmental officers in helping them to work for
integrating development plans with DRM perspective.
• Need for sharing various good models of Block DMP
and District DMP to help improving quality of DMPs.
• Need to inculcate more appropriate skills for undertaking
damage and loss assessment.
• The Block DM plan needs to integrate qualitative issues
like “Education in Emergencies”, “Rescue Centre
Management”, and improved “vulnerability analysis”.
• Need to conduct capacity building programmes for all
stakeholders on planning and necessary budgetary
provisions.
• District Disaster Management Authority should work more
pro-actively for technical support in preparing DDMP.

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 • Mainstreaming DRR and Development through more
inter-departmental coordination.
• Need for involvement of key departments/experts
externally for periodic review of the DDMPs.
• Call for advocating issues for the differently abled groups,
women and children in the DM Plan.
• Disaster risk issues must be discussed in developmental
meeting at all levels.
• Need for maintaining good liaison among all departments.
• Need based SOPs to be developed by each department
within the district, and ensured effective practice by
organizing Mock Drills.
• SOPs of each department to be integrated with DDMP.
• Departmental DM Plan within the district for Risk
Management (Prevention, Mitigation, Preparedness) and
Response should be incorporated in DDMP followed by
SDMP.
Recommendations/ Suggestions • More intensive and specialized training should be
conducted at the grassroots levels.
• DM Committees and DM Teams should be formed and
trained at regular intervals.
• Refresher training for the Disaster Management Teams
(that is, First-Aid, Rescue & others) should be conducted
at regular intervals.
• Steps should be taken for the institutionalization of the
village DM Committee and recognition of the specialized
trained DMTs.
• Training programme, should make use of more videos,
demonstrations, etc., to make training more
understandable for the common people.
• Volunteerism should be the criterion in the selection of
DMTs for training.
• AWWs and women SHGs should be trained in First-
Aid and DRR. The NDMA and IGNOU should initiate
such programmes more frequently.
• Strengthening of CBDM system is best to reduce the
impact of disaster.
• Need for increasing awareness amongst children and
adults.

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• Incorporate disaster management principles in school/
college curriculum.
• Extend the programme to the village level.
• Need for Village level training to the women groups.
• Organize annual workshop for DM Plan preparation and
sharing of the final plan.
• Organize panchayat level workshops to insist on the role
of GPDMC and other relevant teams at the GP and Block
level.
• Prepare comprehensive development plan on the lines of
“Five Year Plan” at the panchayat and Block level for
sustaining initiatives and reviewing them from DM
perspective.
• Revisit DM Plan with proper HVRC analysis and include
issues like international border conflicts related to the area,
wherever needed.
• Conduct training in SAR, for natural disasters and quick
response strategy for civilian protection in time of
international border conflict (e.g. border firing between
Border Security Force (BSF) and Bangladesh Rifles
(BDR) and organize mock drills regularly using trained
professionals.
• Role and responsibility of each set of functionaries must
be defined and assigned.
• Field work must be included in FFTP for practical
knowledge.
• Follow up (of Action Points laid down at the end of the
FFTP) mechanism/ strategy to be undertaken by DM/
Collector/ SDM. These include:
1. HVRC analysis;
2. Plan Preparation;
3. Listing out the gaps in existing as well as required
role and infrastructure;
4. Identifying issues/challenges towards effective
disaster management; and
5. Highlighting inter-departmental issues/linkages for
further improvement in District Disaster Management
Plans and Contingency Action Plans of various lead/
supporting departments/agencies.

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 • Refresher FFTP is required for present participants.
Any other Comments • NDMA-IGNOU Project was of immense help and use
to the target group.
• The programme was well-arranged and well-conducted.
The response was quite good.
• Venue of FFTP at Block/Ward headquarters would
increase the participation of PRI/ULB representatives.
• HVRC analysis needs to be organized through Field visit
to vulnerable areas and offices within the areas along with
organizing community / family level meeting in the
vulnerable areas as a part of practical work.

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7. CONCLUSION AND FUTURE PERSPECTIVE
The analyses of the Project impact clearly shows that objectives which the Project set out for itself
were all realized, to a fairly good extent. Whether it was building and strengthening of capacities of GOs
and representatives of PRIs and ULBs, encouraging the GOs as well as PRIs’ and ULBs’ representatives
to enlist the support of local institutions or NGOs, reinforcing the skills of officials and representatives
in appropriate hazard assessment, facilitating vulnerability analysis, resource analysis and local capacity
assessment, developing the required disaster management knowledge base, and formulating training
modules, including standardized training methodology, all these goals were met satisfactorily. The Report
has substantiated this goal achievement with adequate figures and analyses. The Project’s objectives of
technical support for organizing training programmes on emergency preparedness and management,
and developing community based disaster management systems for their specific needs were also
accomplished. The Project aspired to achieve difficult objectives like disseminating important concepts
of NDMA Guidelines in the various regional languages through multi-media technologies, training the
team of district officials to enable them to introduce basic guidelines/procedures and equipping the
functionaries at district level to immediately arrange for basic relief work, in case of common natural/
man-made disasters, without waiting for help/ instructions from external sources. All these goals were
met with aplomb.
Disaster management has come a long way, from being an unsystematic or random reactive activity to
a systematic pro-active strategy. Disaster scenario has gone through a metamorphosis of sorts. So
much is happening on the national and global fronts in terms of policies, programmes and guidelines that
their assimilation in DM Framework seems like a daunting task. DM now has to base itself more
broadly, and review its linkages with environmental degradation and developmental planning. Most of
the disasters are now found to be aggravated more by human activities than mere natural reasons. The
distinction between human and natural disasters is on the wane. Various stakeholders have joined the
foray of managing disasters; a domain which was hitherto confined to the governmental bodies and
NGOs. The disaster management scene has become very specialized and skill-oriented. This calls for
specific capacity building programmes to help/facilitate community awareness on capacity building.
Many endeavours have been witnessed in the area; some have even been very strong and focussed.
This Project was one such effective endeavour.
Despite a plethora of already existing DM ventures, this Project was, in fact, successful in achieving its
objectives. It is no little achievement, as this Project had many features which were distinct from similar
efforts in the field. As far as training methodology is concerned, this Project was truly unique. Its way of
going about capacity building was based on scientific training need analysis or TNA. It could gauge the
marked need for capacity building in DM, and based itself on adequate TNA to arrive at knowledge,
skills and attitudes (KSA) required for the GO, PRI, and ULB functionaries. Other features that
rendered this Project unique were its focus on Disaster-Development Inter-relationship, Mainstreaming
Gender Analysis, Disaster Risk Reduction, Sustainable Livelihood Framework, Psycho-Social Care in
Aftermath, and Role of Stakeholders.
This Project was not merely an attempt at building capacities in DM, as it could tap the huge gap in the
area of capacity strengthening through its surveys and could arrive at a detailed list of KSAs as well as
DM tasks under 73rd and 74th Constitutional Amendment Acts. The Project also came up with a
thorough set of problems and suggestions in this area, garnered by its respondents-the GOs, PRIs, and
ULBs. Some of its suggestions are very viable for all times and emergencies. The list of Project’s

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Achievements, Problems and Suggestions is given ahead. The Project had a very wide reach and was
quite successful as a Pilot Study. It was an endeavour, which if replicated in more states and districts,
will go a long way in building capacities.
Achievements, Constraints and Suggestions
Many other problems/issues were raised during the conduct of FFTPs. The participants in their feedback
put forth certain valid issues, which we have categorized into:
Achievements
• The overall response from the participants was quite positive. The participants felt that FFTP
sessions were quite informative. Skills imbibed through FFTPs would come in handy in case of
unforeseen events.
• Participants found the FFTP Sessions very participatory, as examples were drawn from past
disasters and real experiences. They learnt a lot through the mock drills, slide shows, DVD,
CDs and presentations. They found HVRC to be extremely useful and interesting too. They
found the learning material, that is, the training booklets very useful.
• The participants found the Sessions were in good sequence and logically linked.
• Group activities in Sessions 3 and 5 were great assets. The participants found some group
activities more interesting than the others. These were ‘Role of different line Departments’, and
‘PRI & ULB in relief and response work’, ‘Community Based Disaster Management Plan
(Plan of Action)’ etc.
• Participants learnt new topics such as KSAs, disaster rehabilitation, disaster recovery, disaster
and development interface, as well as the structure of disaster management in India. Participants
could clarify their doubts on components of hazard, risk, vulnerability and capacity.
• Participants found that community awareness was an essential factor for effective disaster
management.
• Participants showed immense interest in the topic on disaster preparedness and mitigation.
• Uniform and standardized training methodology was adopted throughout the universe of the
Project, which is an achievement.
• FFTPs were conducted by the local Resource Persons, who were thoroughly well-oriented
for the purpose in the Orientation Workshops conducted in each of the identified State.
• Local specific Case Studies/ Group Activities/ Table-Top Exercises were carried out.
• Maximum effort was made to ensure qualitative participation of the participants.
Problems
• It was felt that too many issues/topics were planned to be covered under FFTPs, within a span
of mere two days.
• Many felt that training module did not cover real life situations at as much length as required.
• Quoting examples from their experience, many participants voiced their grievances, which
included mismatched priorities of the government that did not attach attention to the issue of
disaster management.

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• Some averred that in a disaster situation, SAR volunteers were hard to be found. Those who
were involved were not adequately trained in SAR skills.
• FFTPs were conducted mainly at the District and in a few cases at Block level, participation
from far flung/remote areas was limited.
• Participation from ULBs was little low, as the number of ULBs was less than the number of
PRIs in every district.
• Participants found it difficult to stay overnight as there was no provision for making their stay
arrangements.
• In most cases, participants could not be given advance information about the FFTP to be
attended by them.
• Less number of local specific Case Studies was included in the FFTPs.
• Inadequate focus on visual presentations.

Suggestions
• Strengthening of CBDM system is the best to reduce the impact of disaster.
• Organizing training with residential facility so that the trainees do not get distracted because of
their other regular activities.
• Organizing training along with community representatives.
• Organizing training workshops once in six months to keep participants updated and alert
about preparedness and disaster management strategies.
• Organizing mock/ preparedness drills regularly and for a longer period.
• Creating awareness needed at the community level, as it becomes difficult to match the “wants”
of the community with the “actual needs” in disaster response.
• Including more visuals (photographs / videos) in the presentations.
• Organizing longer and detailed training programmes.
• Creating awareness at the community level about disaster management and community
participation in disaster risk reduction.
• Preparing community DM Plans.
• Making provision for at least one detailed training for new Panchayat members and leaders
with residential facility.
• Provisioning training support for annual plans on disaster management plan at the panchayat/
ward level.
• Providing for training of school children .
• Including more case studies with visuals into the training modules.
• Conducting FFTPs at regular intervals.

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 • Honing the skills of Master Trainers in each District for helping the local resource persons to be
developed as Master Trainers.
• Involving SDMAs in each disaster prone State to carry out similar Capacity Building exercise
on a regular basis.
• Urging the SDMAs in the 11 covered States under the Project to conduct FFTPs in the remaining
Blocks of the target Districts and in other Blocks of the remaining districts. It can accordingly
be replicated in other States.
• Passing on the Training Material, presently developed in 7 local languages, to the SDMAs of
the concerned States for adding more local specific information and illustrations. Initiative could
be taken to translate it in many more regional languages.
• Integrating the DM with development plans at all levels.
Thus, the Project threw open a comprehensive cluster of achievements and success stories. The problems
faced were outnumbered by the accomplishments. So many efforts went into the Project design and
implementation that it is essential to make note of the triumph points so that they can be included in
other Projects on capacity building. In fact, this very endeavour needs to be broad-based to cover
more states and districts. Mainly, all respondents spoke positively about the Project’s structure, content
and administration. The plea for more such training programmes/refresher courses/ preparedness drills
was vociferous. The fact that a proportionate input of KSAs was doled out during the Project could fill
the huge gap in knowledge component of such Projects. Even the attitude component was overtly
addressed as participants knew well about the positive attitudes that were addressed during the FFTPs.
On skill input, the Project was very methodical and novel. Suggestions poured in for more qualitative
training, at more places, covering more functionaries. Focus was on better inventory development at
village levels, local resource utilization, and formulation of specific disaster response strategies. The
bedrocks of these suggestions could be summed up by the acronym-CONCORD- coordination,
organization, novel thinking, communication, responsiveness, and disaster planning. In a way, ‘concord’
or harmony is the only hope in disaster aftermath. If strategies on relief and recovery are in concord,
effective disaster management is possible.
The connect between disasters and development and the will to innovate and think differently were the
key components that were amplified by the Project. Besides, new ideas such as gender sensitivity,
bottom-up planning, infrastructure efficiency, post-trauma care, sustainable development, disaster risk
reduction, and stakeholder participation held the Project high on goals and content. Future perspective
should entail a revisit of the given problems and come up with disaster management strategies that focus
on effective training, non-renewable resource development, disaster-resistant structures, legal framework,
traditional wisdom, participatory planning, relief-rehabilitation continuum, environmental protection and
livelihood approach. This Project amplified the goodness in taking small but systematic steps in the
journey towards effective capacity building for disaster management.

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 ANNEXURE 13
Review of the Training Manual by Renowned Experts in Disaster Management

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 ABBREVIATIONS
ASHA : Accredited Social Health Activist
ATIs : Administrative Training Institutes
AWW : Anganwadi Worker
BDR : Bangladesh Rifles
BSF : Border Security Force
CADP : Community Awareness on Disaster Preparedness
CBDM : Community Based Disaster Management
CBDP : Community Based Disaster Preparedness
CBOs : Community Based Organizations
CBRN : Chemical Biological Radiological Nuclear
CD : Civil Defence
CS : Chief Secretary
CSOs : Civil Society Organizations
CSR : Corporate Social Responsibility
DDMA : District Disaster Management Authority
DDMP : District Disaster Management Plan
DFID : Department for International Development
DM : Disaster Management
DIPECHO : Disaster Preparedness European Commission’s Humanitarian Aid
Department
DMHP : Disaster Mental Health Programme
DMT : Disaster Management Team
DMP : Disaster Management Plan
DRM : Disaster Risk Management
DRMP : Disaster Risk Management Programme
DRR : Disaster Risk Reduction
FC : Finance Commission
FFTP : Face-to-Face Training Programme
GO : Government Official
GP : Gram Panchayat
GPDMC : Gram Panchayat Disaster Management Committee
HVRCA : Hazard Vulnerability Risk Capacity Analysis
IC : Incident Commander
IDNDR : International Decade for Natural Disaster Reduction
IGNOU : Indira Gandhi National Open University
IRC : Incident Response System
IFRCRCS : International Federation of Red Cross and Red Crescent Societies
ISDR : International Strategy for Disaster Reduction
KSA : Knowledge Skills Attitudes
L&FSC : Logistic& Finance Section Chief

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LRRD : Linking Relief Rehabilitation with Development
MOU : Memorandum of Understanding
NCRMP : National Cyclone Risk Mitigation Project
NDCN : National Disaster Communication Network
NDICN : National Disaster Information and Communication Network
NDMA : National Disaster Management Authority
NDRF : National Disaster Relief Force/ Fund
NERMP : National Earthquake Risk Mitigation Project
NFRMP : National Flood Risk Mitigation Project
NGOs : Non-Governmental Organizations
NIDM : National Institute of Disaster Management
NLRMP : National Landslide Risk Mitigation Project
NMHP : National Mental Heath Programme
NSSPP : National School Safety Pilot Project
NYKS : Nehru Yuva Kendra Sangathan
OSC : Operation Section Chief
PRA : Participatory Rural Appraisal
PRIs : Panchayati Raj Institutions
PSC : Planning Section Chief
PSFA : Psycho-Social Support for the Affected
PSSMHS : Psycho-Social Support for Mental Health Sciences
PTSD : Post-Traumatic Stress Disorder
RO : Responsible Officer
RRD : Relief Rehabilitation Development
SAO : Senior Administrative Officer
SAR : Search and Rescue
SD : Sustainable Development
SDMA : State Disaster Management Authority
SDMP : State Disaster Management Plan
SGs : State Governments
SHG : Self-Help Group
SOP : Standard Operating Procedure
SRO : Senior Research Officer
TNA : Training Needs Analysis
ULBs : Urban Local Bodies
UN : United Nations
UNDRR : United Nations Office for Disaster Risk Reduction
UNFCC : United Nations Framework Convention on Climate Change
USAID : United States Agency for International Aid
UNISDR : United Nations International Strategy for Disaster Reduction
VDMC : Village Disaster Management Committee
VLDC : Village Level Development Committee

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 ACKNOWLEDGEMENTS

Behind all such Projects lies the vision of their conceivers and implementers, which needs to be
sincerely understood and acknowledged. The delineations in this Project are also reflective of
the vision envisaged by its creators. They dreamt rather innovatively by viewing disaster
management as a recurrent process, interconnected with developmental planning. This has helped
in understanding disaster management from a new perspective that focuses on relief-response-
rehabilitation continuum found in development matrix. The vision has seen the light of the day
because of the collective efforts of all those involved in the exercise. Thus, many people need to
be acknowledged; but for them new life could not have been breathed into the sinews of this
disaster management approach. First and foremost, my sincere thanks are due to Shri M. Shashidhar
Reddy, Vice Chairman of the NDMA for being instrumental in sustaining this Pilot Project till
its conclusion.
I am truly beholden to Prof. M. Aslam, Vice-Chancellor, IGNOU for his unceasing guidance and
support to the Project. His enthusiasm and encouragement has helped us sail through the productive
as well as apprehensive times.
My deep gratefulness to all those from NDMA who have sincerely worked for making this Project
a reality. Special gratitude is in place to the senior officers of the NDMA namely Mr. Amit Jha,
Ms. Sujata Saunik, Mr. R.K. Singh, Mr. S.S. Yadav, Ms. Madhulika Gupta and Ms. Preeti Banzal
for their constant cooperation, as well as for their content input on the NDMA. I would also like
to thank Mr. P. Thakur, Mr. Rajendra Prasad and Mr. Naval Prakash of the NDMA Project Team
for their valuable help on Manual Draft. Other contributors from NDMA are also worthy of my
deep gratitude. I thus thank Dr. C. Jayakumar (Sr. Consultant – Psychological Care), Mr. S.N.
Mahapatra (Sr. Consultant – Earthquake and Tsunami), Dr. T.S. Sachdeva (Consultant – Medical
Preparedness), Mr. V.K. Jain, (SAO), Dr. A.K. Sinha (SRO), Mr. Amal Sarkar, Mr. A
Sachidanandan for their noteworthy advice and suggestions.
Professor Pardeep Sahni of the Faculty of Public Administration, IGNOU deserves a deep gratitude
for being all ‘head, heart and toes’, if I may coin this new phrase to describe his anxious behaviour
during the entire period of the Project. His enthusiastic efforts in getting all the Face-to-Face
Training Programmes (FFTPs) arranged and reviewed need to be sincerely noted and
acknowledged. I must thank all other members of my Faculty of Public Administration, namely
Prof. E. Vayunandan, Prof. Uma Medury, Prof. Dolly Mathew and Dr. Durgesh Nandini for their
honest involvement in the implementation of the Project and conduct of workshops. I am truly
indebted to all the Research and Teaching Assistants of the Faculty, especially Mr. A. Senthamizh
Kanal for helping me with the analyses of the structured questionnaire and the graphic
representation of participants’ feedback. Mr. Senthil Nathan and Ms. Sandhya Chopra deserve
special thanks for their ceaseless help in this endeavour.
I express heartfelt thanks to all Director Generals/ Directors of Administrative Training Institutes/
State Disaster Management Authorities in all the eleven targeted states. Special thanks are in
place to all district level officials, especially the Deputy Commissioners/ District Magistrates/
District Collectors for helping out in FFTP arrangements. My deep gratitude is also in order to all
Regional Directors of IGNOU Regional Centres. But for them coordination of FFTPs would

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have been impossible. I express my honest appreciation to all the nodal officers, resource persons,
IGNOU Study Centre coordinators and participants for their involvement in FFTPs. A few
international experts have been kind enough to review the Project Manual and submit their reports.
I am indebted to them for their time and effort, and thank them from the bottom of my heart.
They are Ms. Madhavi Malalgoda Ariyabandu (Regional Programme Officer, UNDRR, Bangkok),
Mr. Bob McKerrow (Head of Delegation-IFRCRCS, SriLanka), Mr. Gert Venghaus (Humanitarian
Consulting, Angler’s Rest’Hollymount, Ireland) and Prof. Vinod Sharma (Executive Vice-
Chairman, Sikkim SDMA).
I am really grateful to all those who have been involved with the different aspects of Report
writing. Special thanks amongst them are in place for Mr. Lalit Kumar, Mr. Devender Pal Rawat,
Ms.Yogita Vasandani, and Mr. Dheeraj Kumar. I owe particular thanks to Mr. Manjit Singh for
printing, and Graphic Printers for laser composition of the Report. I am also grateful to Mr.
Tamal Basu for cover page design.

(Alka Dhameja)

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PROJECT TEAM NDMA
Mr. Amit Jha, Joint Secretary (A)
Ms. Sujata Saunik, Joint Secretary (Policy &Plan)
Mr. S.S. Yadav, Director (Finance)
Ms. Madhulika Gupta, Director (MIT)
Mr. R.K. Singh, Joint Advisor (Policy & Plan)
Ms. Preeti Banzal, Director (CBT)
Mr. P. Thakur, Under Secretary
Mr. Rajendra Prasad, (SO, CBT)
Mr. Naval Prakash (SRO)
Mr. Amal Sarkar (US, CBT)
Mr. A Sachidanandan (SO, CBT)
Mr. V.K. Jain (SAO)
PROJECT TEAM IGNOU
Prof. Pardeep Sahni
Prof. E. Vayunandan
Prof. Uma Medury
Prof. Alka Dhameja
Prof. Dolly Mathew
Dr. Durgesh Nandini
REPORT WRITING AND FORMATTING
Prof. Alka Dhameja

GRAPHICS
Mr. A. Senthamizh Kanal
COVER PAGE CONCEPT AND DESIGN
Mr. Tamal Basu
PRODUCTION
Mr. Manjit Singh

July, 2013
© Indira Gandhi National Open University and National Disaster Management Authority, 2013
All rights reserved. No part of this work may be reproduced in any form, by mimeograph or any other means,
without permission in writing from the Indira Gandhi National Open University and National Disaster
Management Authority.
Printed and published on behalf of the Indira Gandhi National Open University, New Delhi.
Lasertypesetted at Graphic Printers, 204, Pankaj Tower, Mayur Vihar, Phase-I, Delhi-110091.
Printed at : Gita Offset Printers Pvt. Ltd., C-90, Okhla Industrial Area Phase-I, New Delhi-110020

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