DEPARTMENT OF CIVIL ENGINEERING

GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403

GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

MODULE-II: Approaches to Disaster Risk Reduction

TOPICS
2.1 Disaster cycle, its analysis, phases
2.2 Culture of Safety, Prevention, Mitigation and Preparedness Community based
Disaster Risk reduction (DRR)
2.3 Structural – Non-structural measures
2.4 Roles and responsibilities of community, Panchayat Raj Institutions/urban
Local Bodies, states, centre and other stake holders

2.1 DISASTER CYCLE ITS ANALYSIS, PHASES

2.1.1 PHASES OF DISASTER
The National Governor’s Association designed a phase of disaster model to help
emergency managers prepare for and respond to a disaster, also known as the
‘life cycle’ of comprehensive emergency management. The four phases of
disaster: 1) mitigation; 2) preparedness; 3) response; and 4) recovery.
The model helps frame issues related to disaster preparedness as well as
economic and business recovery after a disaster. Each phase has specific needs,
requires distinct tools, strategies, and resources and faces different challenges.
The issues addressed below relate to the resiliency and recovery of the local
economy and business community before and after a major disaster.

PREPAREDNESS
MITIGATION Education, Outreach and Training,
Pre-Disaster Mitigation Efforts Business Continuity & Emergency
Management Planning

RECOVERY RESPONSE
Post-Disaster Economic Recovery Immediate Response to Stakeholders
Plan Establish Business Recovery Center

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

Figure-1: Disaster Management Cycle

Phases of Disaster
1. Mitigation
Mitigation involves steps to reduce vulnerability to disaster impacts such as
injuries and loss of life and property. This might involve changes in local building
codes to fortify buildings; revised zoning and land use management;
strengthening of public infrastructure; and other efforts to make the community
more resilient to a catastrophic event.

2. Preparedness
Preparedness focuses on understanding how a disaster might impact the
community and how education, outreach and training can build capacity to
respond to and recover from a disaster. This may include engaging the business
community, pre-disaster strategic planning, and other logistical readiness
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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

activities. The disaster preparedness activities guide provides more information

on how to better prepare an organization and the business community for a
disaster.

3. Response
Response addresses immediate threats presented by the disaster, including
saving lives, meeting humanitarian needs (food, shelter, clothing, public health
and safety), cleanup, damage assessment, and the start of resource distribution.
As the response period progresses, focus shifts from dealing with immediate
emergency issues to conducting repairs, restoring utilities, establishing
operations for public services (including permitting), and finishing the cleanup
process.
 Triage efforts assess and deal with the most pressing emergency issues. This
period is often marked by some level of chaos, which can last a month or
more, depending on the nature of the disaster and the extent of damage.
Federal resources, such as action from the Federal Emergency Management
Agency (in the case of a major disaster declaration) and non-profit resources
such as the Red Cross are deployed immediately
 Business re-entry into the economy begins during this phase. Businesses
initially may face issues with access to their site, preliminary damage
assessment, and communications with staff, vendors, suppliers and
customers. Ongoing issues may include access to capital and workers, the
repair of damaged property or inventory, and a diminished customer base. It
is in this phase that long-term future of a region’s business base will be saved
or lost.
 Business Recovery Centers are quickly set up in a community to centralize
small business recovery resources (e.g. SBA, SBDC, SCORE, CDFI, etc.), local
bank officers, technical assistance providers, and other critical assistance for
maintaining business continuity and/or get businesses up and running.
 Federal resources from NDMA, SBA, FEMA, HUD, EDA, USDA, etc., as well as
state programs, start to arrive; temporary housing goes up; and the planning

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

for the reconstruction of damaged infrastructure, facilities, and areas begins.

The response phase typically continues through the sixth month, again
depending on the nature of the disaster.
It is not uncommon for disasters to reveal a weakened economic development
landscape, with significant gaps in organizational capacity, staff and resources.
Thus, economic development agencies and stakeholders may need additional
staff, capacity building assistance, and training.

4. Recovery
Recovery is the fourth phase of disaster and is the restoration of all aspects of
the disaster’s impact on a community and the return of the local economy to
some sense of normalcy. By this time, the impacted region has achieved a
degree of physical, environmental, economic and social stability.
The recovery phase of disaster can be broken into two periods. The short-term
phase typically lasts from six months to at least one year and involves delivering
immediate services to businesses. The long-term phase, which can range up to
decades, requires thoughtful strategic planning and action to address more
serious or permanent impacts of a disaster. Investment in economic
development capacity building becomes essential to foster economic
diversification, attain new resources, build new partnerships and implement
effective recovery strategies and tactics. Communities must access and deploy a
range of public and private resources to enable long-term economic recovery.

2.1.2 DISASTER MANAGEMENT CYCLE – DISASTER RISK MANAGEMENT

Disaster Risk Management includes sum of all activities, programmes and
measures which can be taken up before, during and after a disaster with the
purpose to avoid a disaster, reduce its impact or recover from its losses. The
three key stages of activities that are taken up within disaster risk management
are:

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

1. Before a disaster (pre-disaster)

Activities taken to reduce human and property losses caused by a potential
hazard. For example, carrying out awareness campaigns, strengthening the
existing weak structures, preparation of the disaster management plans at
household and community level etc. Such risk reduction measures taken under
this stage are termed as mitigation and preparedness activities.

2. During a disaster (disaster occurrence)

Initiatives taken to ensure that the needs and provisions of victims are met, and
suffering is minimized. Activities taken under this stage are called emergency
response activities.

3. After a disaster (post-disaster)

Initiatives taken in response to a disaster with a purpose to achieve early
recovery and rehabilitation of affected communities, immediately after a disaster
strikes. These are called as response and recovery activities.

2.2 PREVENTION, MITIGATION AND PREPAREDNESS

COMMUNITY BASED DISASTER RISK REDUCTION

2.2.1 COMMUNITY BASED DISASTER MANAGEMENT

Community Based Disaster Management (CBDM) is a process in which risk
communities (people) are actively engaged in the identification, analysis,
treatment, monitoring and evaluation of disaster risks reducing their
vulnerabilities and enhancing capacities. This means the people are at the heart
of decision making and implementation of disaster risk management activities.

Necessity for CBDM

• If readiness (and capacity) are insufficient
• If vulnerabilities are too great
• If the scale of hazard is too big
• Then, the risk is too high, emergencies may not be managed locally, the

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

• communities may not cope

Objectives
 To build a response mechanism to save life, livelihood, livestock & assets
with available resources
 To develop multi-pronged interventions to address the root cause of
vulnerability
 To hasten post-event recovery
 To build a self-reliant disaster proof community

Characteristics of a disaster resilient community

Resilience in a community can be compared to the characteristics of a bamboo
plant.
• It can recover fast
 Resume its original form
 Adjust easily to changed situation.
 Cope with the situation without outside support

A community-based disaster risk reduction plan would support the community in

planning for being resilient.

Mapping of Vulnerability & Risk Assessments

• Identification of Different Hazards & its Impact and their Mapping
• Identification of Risk & Weak areas & their Mapping
• Identification of Risk Groups and their Mapping

Resource Inventory
• Safe Shelters / Houses – Community as well as privates
• Temporary Shelters – Tarpaulins/ Tents/ Polythene sheets
• Food – Dealers / Godowns
• Transportation – Vehicles, Boats
• List of Volunteers / CBOs / NGOs with Address exact location
• Health Facilities etc.

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

Mitigation strategy
Risk Reduction
• Safe shelter/ elevated land/ insurance
• Retrofitting the traditional structure
• Alternate cropping pattern/short duration crop/grain or seed bank
• Accurate and timely warning
• Identification and registration of risk groups
• Integrating Development programme to reduce vulnerability

Emergency Fund
• Emergency fund generated from the community by individual contribution
• Community Funds/Grain banks
• Use for preparedness activities and emergency consumptions

2.3 STRUCTURAL – NON-STRUCTURAL MEASURES

2.3.1 DIFFERENCE BETWEEN STRUCTURE AND NON-STRUCTURE
Structure
All the parts of the building that carry its weight are called as Structure.
Examples: Columns, Beams, Slab, foundation etc.

Non-structure
All the remaining parts of the building other than structure are known as Non-
Structure.
Example:
(i)Architectural Elements
• False Ceiling
• Windows and partition walls
• Parapets and cornices
• Stairways
• Water tanks

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

(ii)Electrical Systems
• Transformers
• Lighting
• Emergency power

(iii)Furnishing and Equipment

• Computers
• File cabinets
• Shelving
• Display cabinets
• Shop equipment
• Lab equipment
• Kitchen appliances

2.3.2 STRUCTURAL – NON-STRUCTURAL MEASURES

Disaster Risk Reduction (DRR) requires a combination of structural and non-
structural measures.
Structural measures
• Improve construction practice
• Retrofit critical structures and lifelines

Non-structural measures
• Improve response capacity
• Improve post-disaster assessment and communication capacity
• Communicate risk and mitigation measures to various stakeholders

Construction practice
• Engineered Constructions: Designed and constructed with the assistance
of qualified engineers
• Design to comply with relevant BIS codes

Non-Engineered Constructions
• Constructed without the assistance of qualified engineers

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

• Most constructions use light-weight roofs

• Poor seismic resistance expected

Case study: School at Ludlow Castle

Structural mitigation measures

• Rebuilding the structure and retrofitting
• Retrofitting cost is Rs. 62 lakhs for Ludlow Castle School while rebuilding
cost would be Rs. 7 Crore.

Non-Structural Mitigation Measures

Small measures to reduce damage like
• Fixing of furniture, almirah etc.
• Replacing wall clock
• Opening of doors outside
• Arranging additional exit in rooms
• Plastering glass windows
• Proper care for chemistry lab
• Drills

2.3.3. VULNERABILITY REDUCTION

• Engineering intervention in buildings and structures
• Restrictions on land-use to minimize exposure of the society to disaster
• Land use restrictions, in the town and country planning laws or master
plan rules.
• Earthquake resistance provisions in Municipal bye laws: Standards are not
mandatory and do not form part of the byelaws of the Local Bodies.
• Past earthquakes in Uttarkashi (1991), Latur-Osmanabad (1993), Jabalpur
(1997) Chamoli (1999), Kachchh (2001) and Kashmir (2005) have clearly
shown lack of implementation of these Codes and Guidelines.

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

2.4 ROLES AND RESPONSIBILITIES OF COMMUNITY, PANCHAYAT

RAJ INSTITUTIONS/URBAN LOCAL BODIES, STATES, CENTRE
AND OTHER STAKE HOLDERS

Panchayati Raj bodies are the most appropriate local institutions for involving
people in natural disaster preparedness. Panchayati Raj bodies have a role to
play in all phases of disaster management.

2.4.1 PANCHAYATS ROLE DURING THE FIRST PHASE OF DISASTER

MANAGEMENT:
The following are the major roles and responsibilities of the three tier systems of
local self-government before, during and post-disaster management period.

Gram Panchayat or Village level

• Convene meetings to ensure timely warning
• Update information on civic amenities/population, etc.
• Select safe locations for people and livestock
• Arrangements to evacuate the elderly, the disabled, children and women
• Medical and sanitation facilities at relief camps
• Disconnecting power lines during high winds/gales; storing food grain,
drinking water, etc.

Block/Mandal Panchayat
• Supervise preparedness of Gram Panchayats (GP)
• Consolidate village-level information on items listed under GP
• Assessing preparedness of: primary health centers/evacuation
arrangements, etc.
• Engineering staff at the Block/Mandal level should repair
drainage/canal/roads, etc.
• Contact ex-army/security forces personal/volunteers to organize task force
for assistance
• Procure and keep ready rescue material, including boats

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

• Function as link between district and village-level counter-disaster

activities.

Zilla Panchayat or District level

• The District Collector/CEO should convene a meeting of all District Heads
of sectoral departments and ZP members before the start of likely cyclone
periods (May to June & Oct. to Nov.)
• Initiate all concerned departments to take up necessary repair and
maintenance and related works for preparedness
• Organize ‘Task Forces’ at district, block and village levels
• Identify NGOs useful in providing assistance during disasters
• Check inventories of items required at short notice for rescue and relief
operations
• At first warning, call meeting of Crisis Management Group (CMG) and alert
blocks/villages
• All CMG members should be asked to keep their personnel in full
preparedness
• District Collector should be made the CMG Leader and establish a control
room managed by senior officers round the clock during the crisis (Jain &
Polman, 2003).

2.4.2 PANCHAYAT ROLE IN RESCUE AND RELIEF BEFORE AND DURING

NATURAL DISASTER IMPACT

Gram Panchayat or Village level

• Set up temporary shelters/relief camps after initial warning/store food and
water for people/livestock
• Evacuation of people and livestock should start immediately after final
warning
• Keep rescue volunteers and task forces ready
• District/block medical/relief teams may be asked to take position at
strategic points and coordinate with village volunteers/task forces

11
 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

• Organize veterinary aid teams for taking care of livestock and removal of
carcasses
• Disposal of dead bodies and prevention of the spread of epidemics
• Assessing loss of life, livestock and damage to farming, property, etc.

Block/Mandal Panchayat
• Identify vulnerable areas and send task forces/volunteers to supervise
safety measures
• Evacuate people from these areas and help GPs in organizing relief camps
• Arrange for emergency communication through police wireless/ham radio,
etc.
• Arrange supply of food and other items to relief camps in adequate
quantities
• Supervise rescue and relief activities with district-level officers
• Inform CMG if help is needed from police and defense forces
• Assist armed forces in rescue and relief operations
• Supervise rescue and relief and coordinate with various agencies including
NGOs.

Zilla Panchayat or District level

• Monitor the situation, identify blocks and villages most likely to be affected
and issue warnings
• Activate control room and keep a full watch on the situation
• Arrange emergency communication with the help of police wireless/ham
radio, etc.
• Put Central Medical Group (CMG) on the job of assisting block and village
Panchayats with counter-disaster steps
• Arrange transport for evacuation of people and livestock
• Arrange for temporary shelters/relief camps
• Seek assistance of the armed forces if necessary
• Monitor rescue and relief operations at village and block levels

12
 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

• Assist lower Panchayats in mobilizing task forces/volunteers/ NGOs for

rescue and relief (Reports, The Panchayati Raj model in India, 2003).

2.4.3 ROLE OF PANCHAYAT IN RECONSTRUCTION AND LONG-TERM

MITIGATION PLANNING

Gram Panchayat or Village level

• Assist in identifying victims for compensation, and then in its distribution
• Formulate reconstruction plans for houses, community buildings, roads,
etc. within GP jurisdiction with the assistance of technical departments at
block and district levels.
• Enforce minimum specifications for safe construction.
• Help district and block level organizations in arranging awareness camps
for management and mitigation of disasters and ensure participation of
the villagers.
• Organize village-level task force/volunteers and train them in counter-
disaster measures.
• Assist in supervising and monitoring reconstruction and development
projects.
• Encourage local people to insure assets/livestock, which should be
mandatory for those who can afford. Seek government help for those who
are too poor to afford insurance (Reports, the Panchayati Raj model in
India, 2003).

Block/Mandal Panchayat
• Assist in rehabilitation, repair and reconstruction
• Assist gram Panchayats in identifying victims for payment of
compensation and in its distribution
• Prepare village and block-level mitigation plans; consolidate/integrate
these with the block plan
• Enforce minimum safety specifications for construction

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II

• Assist in long-term mitigation planning and its integration with

block/district development plans
• Supervise and monitor reconstruction and long-term mitigation projects
implemented by GPs and Block Panchayats.

Zilla Panchayat or District level

• Planning and implementation of rehabilitation, repair and reconstruction
• Compensation for loss of life, property, etc.
• Hazard and vulnerability mapping
• Anti-disaster measures to be integrated in all development projects
• Special funding to use disaster-resistant construction technologies in
vulnerable areas (Reports, The Panchayati Raj model in India, 2003).

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 DEPARTMENT OF CIVIL ENGINEERING
GITAM INSTITUTE OF TECHNOLOGY Sub. code: EHS403
GANDHI INSTITUTE OF TECHNOLOGY AND Rev. No.2
MANAGEMENT (GITAM) Date: 20180503
(Declared as Deemed to be University u/s 3 of UGC Act, 1956)
Accredited by NAAC with ‘A+’ grade
Visakhapatnam
Sub code: EHS403
Name of the subject: DISASTER MANAGEMENT
COURSE CONTENT OF MODULE-II
S.NO

TOPIC References / Weblinks

1 Disaster management cycle and http://notes.iasscore.in/wp-

Disaster management phases content/uploads/2016/11/DISASTER-
MANAGEMENT-CYCLE-1.pdf (pg 30-34)

http://restoreyoureconomy.org/disaster-
overview/phases-of-disaster/

2 Community based Disaster Risk https://ndma.gov.in/images/cbt/conference/Ms.

Reduction Abha Mishra, UNDP.pdf (pg 1-21)

http://www.hpsdma.nic.in/Training/Structural%20
Structural- nonstructural
3 and%20non%20structural%20mitigation.pdf
measures
(pg 2-23)
4 Roles and responsibilities
of community, Panchayati Raj http://shodhganga.inflibnet.ac.in/bitstream/10603/
Institutions/Urban Local Bodies 19636/13/13_chapter5.pdf (pg 22-27)
(PRIs/ULBs), states, centre and
other stake-holders

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