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Introduction to Disaster Management

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Introduction to Disaster Management

Book · January 2010

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Introduction to

Disaster Management

Satish Modh

PREFACE

Disaster management essentially deals with management of resources and

information towards a disastrous event and is measured by how efficiently, effectively

and seamlessly one coordinates these resources. The ability to effectively deal with

disasters has become a challenge to modern technology.

It is apparent that disaster problems cut across various disciplinary lines. One

cannot effectively address disaster management difficulties by focusing on the isolated

problems of a single type. Effective disaster management is influenced by the activities

of a host of independent organisations at national and inter-national level.

A book to teach disaster management would accomplish very little unless a

broad spectrum of knowledge is imparted regarding effects of various types of disasters,

their dimensions and characteristics, the role of United Nations in complex emergencies

and the role of Indian government in prevention and control of disasters. Equally

important is the knowledge about various international and national agencies involved

in disaster relief and humanitarian assistance.

Disaster management at the individual and organisational level deals with issues

of planning, coordination, communication and risk assessment. Accordingly, this book

also covers these subjects to enhance their ability for better disaster response.

For the most part, the case studies in this book deal with various disasters to

promote discussion on issues of disaster and development, national policies on disaster

management across the world and problems in disaster management. The conclusions

of these case studies must be interpreted with caution; because, actual disaster situations

always brings surprises and are unpredictable.

This book has been divided into three sections, namely, Disaster and

Development; Disaster Prevention and Control; and Disaster Risk Analysis and

Management. Relevant cases on the subject have been given at the end of each sections.

An effort has been made to cover the subject according to the syllabus of couple

of Indian Universities who have taken lead in introducing the Masters’ Degree level

course on disaster management. I hope that the content of the book meets the

requirement of these ‘would be’ disaster professionals.

Disaster impact is often expressed in terms of the numbers of dead and injured

and loss of property and resources. Therefore, the purpose of this book will be served if

in the end it helps to minimize the economic losses and reduce injuries and death to the

affected population.

Satish Modh

ACKNOWLEDGMENTS

Disaster Management is a new subject for institutions and universities in India.

There is scarcity of textbooks which cover the syllabus in a systematic manner.

Macmillan India has taken initiative in bridging this gap. I would like to acknowledge

my deep appreciation for their effort to fulfil the demand of students and professionals

of disaster management.

I have gone through various newspaper articles, books, Internet sites and other

literature to collect information for this textbook. Some such books and Internet sites

have been listed as further readings. Many other sources do not find mention here. I

would like to thank all such named and unnamed sources that have helped me in

understanding the subject. I would like to express my gratefulness to all of them.

My first lecture on disaster management was organised by Bombay

Management Association (BMA), Western Centre just after I returned from my study

tour of Gujarat Earthquake in 2001. I would like to thank BMA for initiating me into

this long journey. Over the last 5 to 6 years during which time this book developed,

there were many who helped and guided me with a sense of service to the society. I

would like to thank all those who collaborated with me in conducting training sessions,

organising lectures and discussion groups and interaction with volunteers.

I would like to thank Dr Yashavant Pathak who inspired me to visit Gujarat

disaster zone, which changed my way of looking at a disaster. I also thank my fellow

travellers Mr Ratan Sharda and Mr Ashok Motwani who helped me writing the report

of our visit. I would also like to thank Mr Pradeep Malu who brought out my first

booklet on disaster preparedness and Mr Vasant Tambe who published my second book

in Hindi for trainers and volunteers. All these undertakings encouraged me to continue

my labours in accumulating more relevant information for disaster mitigation.

I would like to express my gratitude to my family who cooperated with me

while I was writing the book. I would like to show my appreciation towards my young

children Ketan and Ria who had to forego important sessions of computer games while

I was using the computer. My special thanks are also to my wife Sadhana who kept on

telling me to keep in mind those students who have to finally read this book and pass

examinations! If the book turns out to be useful, they know who is responsible for that.

Satish Modh

CONTENTS

SECTION I: DISASTER AND DEVELOPMENT

Chapter 1: Nature, Humanity and Development

Nature and Dimension of the Challenge, Hazards as A Central Concern, Linking

Disasters and Development, Sustainable Development, Disruption of

Development by Disasters, Loss of Resources, Interruption of Programs, Impact

on Investment Climate, Impact on The Non-Formal Sector, Social and Political

Implications, Displaced Persons and Refugees, How Development May Cause

Disasters, Development Opportunities Afforded by Disasters, Varied Impact on

States in India

Chapter 2: Hazards and Disasters

Definitions and Principles, Emergency, Vulnerability, Population displacements,

Complex emergencies, Classification of Disasters, Levels of Disaster, Effect of

Disasters, Causal Factors of Disasters, Poverty, Population Growth, Rapid

Urbanisation, Transition in Cultural Practices, Environmental Degradation,

Lack of Awareness and Information, War and Civil Strife, Phases of Disaster,

Rapid Onset Disasters, Slow Onset Disasters

Chapter 3: Dimensions and Typology of Disasters

Calamities of Meteorological/ Climatic Origin, Calamities of Hydrological

Origin, Calamities of Geological Origin, Human Epidemics and Pandemics,

Exotic Animal Diseases, Insect and Vermin Plagues, Calamities of Extra-

Terrestrial Origin, Man Made Disasters, Terrorism, Technological Hazards,

Structure Collapse, Fire, Hazardous and Toxic Materials, Transportation, Space

Disasters, Climate Change, Typology of Disasters, Earthquakes, Tsunamis,

Tropical Cyclones, Floods, Droughts, Environmental Pollution, Deforestation,

Desertification, Epidemics, Chemical and Industrial Accidents, Causal

Phenomena, Typical Effects, General Characteristics, Possible Risk Reduction

Measures, Predictability, Specific Preparedness Measures, Factors Contributing

to Vulnerability, Typical Post-Disaster Needs, Trends in Climatology,

Meteorology and Hydrology, Trends In Seismology

Chapter 4: Public Health and Disasters

Basics of Body Systems, Nervous Systems, Reproduction, The Immune System,

Biological Effects of Massive Chemical Exposures, The Impact of Disasters on

Human Health, Biological Hazards, Chemical Hazards, Physical Hazards,

Sociological Hazards, Feeding Mega Doses, Cancer And The Environment,

Infectious Diseases, Anthrax, Food borne Diseases, Dengue Fever, Flu

(Influenza), Bird (Avian) Flu, Plague, Severe Acute Respiratory Syndrome

(SARS) , Tuberculosis (TB) , WHO’s Goal

CASE STUDIES ON DISASTER AND DEVELOPMENT

CASE 1: Chernobyl Nuclear Accident: Disaster and Development

CASE 2: Drought in India and the Water Crisis: Disaster and Development

CASE 3: Mumbai Floods: Disaster and Development

CASE 4: Orissa Cyclone in 1999: Meteorological Disaster

CASE 5: Monsoon Floods in India: Hydrological Disaster

CASE 6: Train Accidents in India: Transportation Disaster

CASE 7: Pandemic Lessons: Avian Flu of 1918: Epidemic/Pandemic Disaster

SECTION II: DISASTER PREVENTION AND CONTROL

Chapter 5: The Role of UN in Complex Emergencies

Disaster Management and The United Nations System, United Nations Disaster

Relief Coordinator (UNDRO), UNDRO Mandate in Disaster Relief and

Management, General Assembly, Guiding Principles, Prevention, Preparedness,

Stand-By Capacity, Consolidated Appeals; Coordination, Cooperation And

Leadership; Continuum From Relief To Rehabilitation And Development,

International Decade For Natural Disaster Reduction, Yokohama Conference,

Kobe Conference, Plan of Action

Chapter 6: The Co-Ordination and Leadership Context of The UNDMT

Country Level Entities and Responsibilities, The UN System in a Country, The

UN Resident Coordinator, The Function of Humanitarian Coordinator, United

Nations Assessment and Co-ordination (UNDAC), Donor Governments, Non-

governmental organisations, Humanitarian and Developmental Aid, The UN

Disaster Management Team (UNDMT), Preparedness of the UNDMT,

Response of the UNDMT , Actions on Receipt of A Warning or Unconfirmed

Report, Actions To Be Taken Following The Occurrence of A Disaster,

Assessment and the UNDMT, Gathering and Interpreting Assessment

Information, Reporting and International Information Dissemination, Alert

message and field Sitreps, The importance of co-ordination and information,

Disaster Reduction and Recovery, Checklist of Basic Preparedness Information

Required by a UNDMT, Checklist if International Emergency Assistance is

Required

Chapter 7: International Agencies for Disaster Response

Department of Humanitarian Affairs (DHA), Inter-Agency Standing Committee

(IASC), The Office for the Coordination of Humanitarian Affairs (OCHA),

Food and Agriculture Organization (FAO), United Nations’ Children’s Fund

(UNICEF), United Nations’ Development Programme (UNDP), The United

Nations High Commissioner for Refugees (UNCHR), World Food Programme

(WFP), World Health Organization (WHO), International Committee Of The

Red Cross (ICRC), International Federation Of Red Cross And Red Crescent

Societies (IFRC), International Organization For Migration (IOM), The

International Atomic Energy Agency (IAEA), United Nations Sahelian Office

(UNSO), The UN and the Role of NGO

Chapter 8: National Disaster Management: India

The Expert Group, National Policy, Historical Framework, National Crisis

Management Committee (NCMC), Crisis Management Group, Funding

Mechanisms, The Disaster Management Act, 2005, The National Disaster

Management Authority (NDMA), State Disaster Management Authorities,

District Disaster Management Authority, Role of District Magistrate, National

Disaster Response Force, Indian Agencies for Disaster Management, Indian Red

Cross Society, National Institute of Disaster Management , The Planning

Commission, National Civil Defence Organisation, The Bharat Scouts &

Guides, Indian Paramilitary Forces, Role of Armed Forces In Disaster Relief

CASE STUDIES ON DISASTER PREVENTION AND CONTROL

CASE 8: Nepal: National Hazards and the Role of CDRC Organisation

CASE 9: Disaster Management in Bangladesh

CASE 10: El Salvador and Guatemala - Report of the Secretary-General

CASE 11: USA: Insurer liability under Superfund

CASE 12: Japan: The Great Hanshin Awaji Earthquake 1995

CASE 13: South Africa: National Disaster Management Centre

CASE 14: USA: Federal Emergency Management Agency (FEMA)

CASE 15: Emergency Management Australia: “Safer Sustainable Communities”

SECTION III: DISASTER RISK ANALYSIS AND MANAGEMENT

Chapter 9: Disaster Mitigation

What Is Mitigation, Targeting Mitigation Where I\\It Has Most Effect , Actions

to Reduce Risk, The Menu of Mitigation Actions, Disaster Management Cycle,

Classification of Mitigation Measures, Investing in Disaster Mitigation, Disaster

Mitigation as a Development Theme, Role of Private Sector, Effectiveness of

Mitigation Packages

Chapter 10: Coordination

Definitions, Objectives of Co-Ordination, Improved efficiency, cost-

effectiveness and speed of humanitarian assistance, Achieving Co-Ordination,

Techniques Which Facilitate Coordination, Barriers To Inter-Organizational

Coordination, Coordination Activities, Information Sharing, Collaboration,

Joint Strategic Planning And Programming

Chapter 11: Disaster Preparedness and Planning

Main Objectives, Dealing with Major Disasters, Strategies for Disaster

Preparedness and Planning, Disaster Preparedness, Disaster Planning, Principles

of Disaster Planning, Myths in Disaster Planning, Involvement of Disaster Plan

Users

Chapter 12: Disaster Risk Assessment

Definitions and Concepts, Risk, Risk Assessment, Risk Mapping, Vulnerability

Analysis, Risk Identification, Factors Influencing Disaster Risk, Assessing Risk

in a Context of Uncertainty, Understanding Disaster Risk Assessment, Phases in

Risk Assessment, Limitations of Risk Assessment, Integrating Disaster Risk

Assessment in the Project Development Cycle, Disaster Risk Assessment, Steps

Involved in a Disaster Risk Assessment, Sourcing Additional Information,

Disaster Risk Assessment Methods, Disaster Risk Management, Disaster Aid,

Disaster Insurance

Chapter 13: Information Management and Dissemination

Managing Information in Emergencies, Identification of Information Needs,

Information Needs: “With Onset of Crisis” , Disaster Communication Problems,

Steps in Operations Planning, Data Gathering and Emergency Management,

Management Function, Establishing the Baseline, Category of Data ,

Geographic Information Systems (GIS), Global Positions Systems (GPS), The

World Wide Web, Data Analysis and Information Production, Information

Dissemination, Communication with Public, Warning Effectiveness, Use of the

Media in Information Dissemination, Types of Media and their Information

Needs, Building Institutional Memory

Chapter 14: Disaster Rehabilitation

Issues in Rehabilitation, Hindrances for Normalization, Rehabilitation

Approaches, The Ad Hoc Approach, The Single Sector Approach, The

Integrated Recovery Approach, Opportunity for Change after a Disaster,

Rehabilitation: From Shelter To Housing, Materials Distribution For

Rehabilitation

CASE STUDIES ON DISASTER RISK ANALYSIS AND

MANAGEMENT

CASE 16: Bhopal Disaster: Industrial/Chemical Disaster, Disaster Risks

CASE 17: Tsunami: With no warning, the Indian Ocean was exposed: Disaster

Communication

Bibliography

APPENDIX I: – Useful Internet Sites on Disaster and Emergency

Management

APPENDIX II :- Definitions of Acronyms

APPENDIX III: - The Disaster Management Act, 2005

List of Figures and Tables

Figure 1.1: Incidence of Disaster (Annual Averages) - 1975-2001

Table 1.1: Global Distribution of Disasters (by type and region - 1975-2001)

Table 1.2: High-risk areas and vulnerability

Exhibit 1.1: Relationships between Disasters and Development

Exhibit 1.2: Four Types of State Economies

Table 2.1: Social, Economic & Health Consequences of Natural Calamities

Table 2.2: List of Differences Between Natural and Technological Disasters

Exhibit 5.1: Affirmation of Nations at Yokohama

Exhibit 5.2: Global Principles of Disaster Preparedness

Exhibit 5.3: Global assessment of Disaster Reduction efforts

Table 8.1: Primary Relief Functions of Central Government

Table 8.2: Secondary Relief Functions of Central Government

Exhibit 8.1: Broad features of the national policy on disaster management

Table: Case 9.1: Disasters over last 15 years in Bangladesh

Figure: Case14.1: Framework of Earthquake Disaster Countermeasures (based on 1983)

Figure 9.1 Disaster Management Cycle

Exhibit 9.1: Role of Private Sector in Disaster Mitigation

Table 11.1: Differences in Disasters and Routine Mishaps

Exhibit 11.1: Six Components of Disaster Preparedness and Planning

Exhibit 11.2: Principles of Disaster Planning

Table 12.1 : Types of Risk and Disaster Risk Management Method

Exhibit 12.1: A Short Typology of Risks

Exhibit 12.2 Risk probability versus risk consequences

Exhibit 12.3 : Reasons for Insurance

Exhibit: 12.4 Insurance cover against disaster

Exhibit 13.1: Useful functions of Media during Disasters

Exhibit 14.1: The Ashraya BMSB in Choudwar, Orissa

Section I

Disaster

and

Development

Chapter 1

Nature, Humanity And Development

This chapter deals with issues related to understanding the impact of disaster

on development process. Disasters and development are closely linked in that disasters

can destroy development initiatives; but it also creates development opportunities.

Development approach can both increase and decrease vulnerability.

Mankind's relationship with nature has gone through several stages, starting

with survival issues in primitive times, through a period of increasing mastery over

nature since the industrial age. With development the vulnerability of the society to

natural disasters reduced. However, the rapid material-intensive growth patterns of the

twentieth century have adversely affected the environment, which in turn has made

many groups (especially the poor), more vulnerable to disasters.

In the past couple of years, many people have been killed by earthquakes,

tsunamis, volcanic eruptions, landslides, floods, tropical storms, drought, locust

invasions, and other natural calamities. These disasters have also inflicted injury,

disease, homelessness, and misery on many people, and caused colossal material

damages.

In recent years the incidence of disasters has been increasing drastically in

number as well as in terms of people affected and in magnitude of material losses.

Figure 1.1 shows a trend of consistent increase in the incidence of disasters during the

period 1975 - 2001. In the fifteen-year period (1975-1990) the incidence of disasters

increased by more than four-fold. In particular, the final years of 1990s witnessed major

natural disasters in several countries.

The number of people affected – injured, left homeless or hungry – tripled to

almost two billion during the past decade, and those at risk have been growing by 70 to

80 million per year. Direct economic losses increased five times to US$629 billion in

the 1990s. However, in the 1990s the number of people killed by disasters was 800, 000

compared to nearly two million lives in the 1970s. The decrease in fatalities, among

other factors, is due to improved early warning and forecasting systems, preparedness

programs as well as better communication systems in many countries.

Figure 1.1: Incidence of Disaster (Annual Averages) - 1975-2001

Source: EM-DAT: OFDA/CRED (2002) (http://www.cred.be/)

The incidence of hazards demonstrates considerable geographic variation as

shown in Table 1.1. The data indicates that, during this period, Asia was

disproportionately affected by natural disasters (with about 41 percent of all events)

followed by Africa (about 30 percent) the Americas (16 percent), Europe (10 percent)

and Oceania (3 percent).

There is a clear relationship between vulnerability to disasters and the level of

economic, social and technological development. Between 1990 and 1998, about 94

percent of the world’s 568 major natural disasters and more than 97 percent of all

natural disaster-related deaths were in developing countries. The data further indicates

that the incidence of disasters is higher in low-income than in middle-income countries.

In particular, the incidence of hydro-meteorological hazards and drought is 3 times

higher in low-income countries than in middle-income countries. An ongoing study on

disaster vulnerability, based on multivariate statistical analysis, confirms a positive

relationship between a higher level of economic development and reduced vulnerability

to disasters.

A closer look at countries with a high proportion of their population

undernourished shows that most of them continue to be affected by recurring natural

disasters. At least fifty-one countries, of those classified as having 20 percent or more

of their population undernourished, each suffered four to eight major disasters during

the last two decades.

Table 1.1: Global Distribution of Disasters (by type and region– 1975-2001

Source: Data from EM-DAT (http://www.cred.be/)

Type of Disaster

Africa Americas Asia Europe Oceania Total % Share

Hydro-meteorological

44.7

Drought

263

123 23

513

4.9

Famine

0.6

Floods

331

485

759 245

1891

18.0

Wind Storm

113

538

738 228

163 1780 16.9

Wild Fire

235

2.2

Extreme Temperature

224

2.1

Geo-physical

9.9

Earthquake

114

278 114

565

5.4

Volcanic eruption

117

1.1

Tsunami/Wave/Surge

0.2

Landslide

167 53

334

3.2

Bio-hazards

7.4

Insect Infestation

0.6

Human Epidemic

386

191 32

691

6.6

Non-natural

38.2

Industrial Accident

149

360 134

707

6.7

Transport Accident

645

451

1166 349

2633

25.0

Misc. Accident

112

365 101

681

6.5

% share

29.7

16.2

40.9 10.4

2.8

100

Among such countries in Asia, Bangladesh suffered eight disasters with the

number of people affected ranging between 11.5 - 73 million. Cambodia also suffered

ten disasters; the people affected ranging between 0.3- 3.4. In Africa, Ethiopia suffered

ten disasters with the number of affected people ranging between 3.8 - 10.5 million;

Kenya suffered eight major disasters with the number of affected people ranging

between 0.3 – 6.5 million. In Latin America, Honduras suffered four disasters with the

number of affected people ranging between 0.048-2.1 million; and Nicaragua nine

disasters with the number of affected people ranging between 0.08- 0.87 million. The

food security situation in many of the countries affected by recurring disasters,

particularly in Africa, was further aggravated by war and civil strife. The incidence of

HIV/AIDS is also aggravating the compounded effect of structural problems and

disaster shocks, worsening the food insecurity and poverty of households in many

countries.

The increasing trend in the incidence of natural disasters is associated with the

fact that more and more societies are becoming increasingly vulnerable to such

phenomena, in part owing to human activities. The prevalence of massive poverty

forces people to be engaged in income producing activities for survival, like

deforestation or farming in marginal areas, which lead to resource degradation. In

addition, some development activities such as clearing forests for timber or road

construction, put at risk natural resource sustainability, and are among factors

contributing to the frequency and intensity of natural disasters. Environmental

degradation also contributes to lowering the potential of resilience and recovery from

the effects of disasters.

NATURE AND DIMENSION OF THE CHALLENGE

Disasters are not aberrant phenomena. To the contrary, they are reflections of

the ways human-beings live their normal lives, the ways that they structure their

societies and allocate their resources. It is from this perspective that four dimensions of

disaster phenomena needs to be considered:

1. Hazards as a central concern;

2. The dynamics of disaster-agents;

3. A global typology of hazards; and

4. A reconfigured development focus.

Hazards as a central concern: The number, types and impacts of disasters are

increasing, as are the factors that cause them. There continues to be a steady increase in

the range and effects of disaster events that take place around the world, and the agents

of such disasters – be they natural phenomena, chemical, or technological. These events

threaten the lives and livelihoods of more and more human-beings, and often have

enduring effects on the socio-economic and political structures of states and regions.

There is a need to move disaster related issues from the periphery of policy-

makers’ and planners’ perspectives to the centre. For example, the entire “Pacific

economic rim” from Lima and Los Angeles to Tokyo and Taipei has an array of

transportation, communication and economic nodes that lie on a map that features high

seismic and volcanic activity along with coastal mountains that are vulnerable to

landslides and the heavy precipitation that causes them. Nevertheless, planners and

policy makers seem to be oblivious to the potential hazard risks.

The dynamics of inter-related disasters: Hazard threat may also result from

the “synchronous failures of global social, economic and biophysical systems arising

from diverse yet interacting stresses.” This perspective is a long way from the age when

disasters were perceived as “acts of God.”

Insufficient attention is given to the ways that different types of disasters and

disaster-agents inter-relate. Disaster causation and impacts feed off each other, and spill

over into other sorts of disaster phenomena. The flood that intensifies the poverty of the

affected which impacts upon livelihoods and ultimately may become the source of

violent discontent reflects the sort of dynamic inter-relationships that increasingly needs

to guide one’s understanding of the hazards spectrum.

A typology of hazards. Closely related to the dynamics of inter-related hazards

is that of a hazard typology. In that regard, there are probably four broad types and

levels of interaction that are worth noting from a geographical perspective. The first

concern those events in which the direct and immediate impacts are local, e.g., the

Kashmir earthquake. While acknowledging that even ostensibly local events may have

far more extensive social, economic and political effects, their immediate impacts are

normally within a relatively confined space, e.g., a population centre. The second type

of disasters spill across regional borders. Floods often generate this sort of impact,

though over the last two decades the impact of chemical spills, burning of forests for

agricultural land and Chernobyl suggest new dimensions of regional disasters.

Increasingly, there is a third type of disaster from a geographical perspective,

namely, that which arises from events in one country that have global impacts. There is

emerging concern, for example, that the Chinese government’s efforts to divert major

rivers within China will have effects on weather conditions globally. This same sort of

potential impact has normally been associated with the destruction of the rain forests in

South America. The fourth type of disaster in this geographical typology stems from

global hazards. If one uses the example of global climate change and the disaster

agents, e.g., fossil fuels, the line between the third and fourth type can be very fine.

Nevertheless, this fourth type can be seen in terms of pandemics and the consequences

of global warming.

A reconfigured development focus: Over the past three decades, the belief that

development and disaster prevention, preparedness and even response should be closely

integrated conceptually and practically has been a recurring if not always persistent

theme. In 1987, the Ethiopian National Disaster Prevention and Preparedness Strategy

recognised the need for development to underpin disaster prevention and preparedness,

and for disaster analysis to be used as a criterion to test the sustainability of

development. However, despite this awareness, there are few consistent mechanisms

that promote such linkages. For the most part, development programmes and projects

are not scrutinised in terms of the potential hazards that they might create, and

conversely disaster response and preparedness – let alone transition and recovery --

programmes are rarely assessed in terms of their potential development linkages.

Now, however, given disaster trends, development-hazard linkages are

increasingly being more regionally focused. This requires more than just

complementary activities, but in many instances convergent and integrated programmes

and projects which inevitably pose among other things challenging governance issues.

Greater attention, too, has to be given to the ways that conflict prevention and

resolution relate to development-hazard linkages – not merely for obvious “complex

emergency situations” but also for those situations in which disaster agents spill across

borders or directly impact upon the resources of neighbouring states.

LINKING DISASTERS AND DEVELOPMENT

Development requires institutional and structural transformations of societies to

speed up economic growth reduce levels of inequality and eradicate absolute poverty.

Over time, the effects of disasters can seriously degrade a country’s long-term potential

for sustained development and cause governments to substantially modify their

economic development priorities and programs.

At the same time, disasters often provide opportunities for development. They

can improve the atmosphere in favour of change and create a rationale to establish

development programs such as job training, housing construction and land reform.

However, poor management of the relief and rehabilitation responses may have severe

negative implications for development for years to come, and may even increase

vulnerability to future hazards.

The growing body of knowledge on the relationships between disasters and

development indicates four basic themes. These four themes are given in Exhibit 1.1.

Exhibit 1.1: Relationships between Disasters and

Development

1. Disasters set back development programmes, destroying years

of development initiatives. This also gives an opportunity for

infrastructure improvements e.g. transport and utility systems

to be rebuilt when a flood destroys them.

2. Rebuilding after a disaster provides significant opportunities

to initiate development programs. A self-help housing

program to rebuild housing destroyed by an earthquake

teaches new skills, strengthens community pride and

leadership.

3. Development programs can increase an area’s susceptibility to

disasters e.g. probability of technological disaster may

increase in an industrialized area. Therefore, the Environment

Impact Assessment is mandatory.

4. Sustainable Development programs can be designed to

decrease the susceptibility to disasters and their negative

consequences. Housing projects constructed under building

codes designed to withstand high winds result in less

destruction during the next tropical storm.

Decision-makers who ignore these relationships between disasters and

development do a disservice to the people who place their trust in them. Increasingly,

around the world, forward thinking Government agencies with the support of United

Nations and Non-Governmental Organization (NGO) officials are assessing

development projects in the context of disaster mitigation and are designing disaster

recovery programs with long-term development needs in mind.

SUSTAINABLE DEVELOPMENT

The concept of sustainable development has emerged after several decades of

development efforts. Historically, the development of the industrialized world focused

on material production. The earlier emphasis was on output growth and economic

efficiency. But due to the large and growing numbers of poor in the developing world,

and the lack of "trickle-down" benefits to them, efforts were made to directly improve

income distribution. The development paradigm shifted towards equitable growth, and

efficiency and equity became the twin objectives.

Protection of the environment has now become the third major objective of

development. Therefore, the concept of sustainable development has evolved to

encompass three major points of view: economic, social and environmental.

Natural disasters threaten all three dimensions of sustainable development. The

economic approach to sustainability is based on preserving the stock of capital (or

assets) that yields the maximum amount that a person or community can consume over

some time period and still be as well off at the end of the period as at the beginning.

Natural resources and the assimilative capacity of the environment, whether

technologically induced or natural, are included as assets.

Thus, the loss of natural capital plays a crucial role in limiting development. Of

course, the degree of productivity loss occurring as a result of natural disasters is also

determined by the resilience of societies in the face of stress and shocks.

From this economic viewpoint, the rapidly increasing interconnectedness has

worsened the spread of disaster vulnerability. The number of people affected by disaster

damage worldwide is typically one thousand times the number of people killed by

disasters.

For instance, losses could be propagated via capital markets, through capital

flight, depreciation of domestic currency, greater indebtedness etc. Developing

economies are sensitive to the vagaries of international capital flows, which makes

them additionally vulnerable to disruption from natural disasters.

The key elements for economic growth include investment, effective

governance and social stability -- unfortunately, disasters lead to exactly the opposite

conditions. Loss of manmade and natural capital causes sudden disinvestments; post

disaster relief increases both the financial and administrative burden on government.

Finally, it can be said that disasters are socially destabilizing due to its impact on the

community and loss of life.

Effect of Human actions and Behaviour

The social view of sustainable development indicates that vulnerability to

natural disasters is definitely a function of human actions and behaviour. Thus, the

resilience of socio-economic systems may be increased through mitigation efforts, and

adaptation in anticipation of a perceived risk, and more generally, through greater

economic development. Environmental vulnerability and poverty are mutually

reinforcing. Developing countries face the most debilitating consequences due to

natural disasters.

As the impacts of natural disasters fall disproportionately on the poor, the social

view of sustainable development stresses the participation of at-risk communities in

devising and implementing effective strategies to reduce vulnerability. The

communities must have a voice in identifying site-specific solutions and assessing the

efficacy of proposed measures. Local communities, the government, and industry best

perform the implementation of disaster planning jointly. Better community awareness is

essential. There is a need to identify and understand people's perception of risk, to

develop better channels of communication and popular consultation, and to rely on

local resources. In many cases, the profound changes brought by urbanization have

undermined the traditional support system for coping with crisis.

Decentralization of decision-making is important in the strengthening of

organization for disaster preparedness prevention and mitigation, particularly given the

need for rapid and localized responses in the face of swiftly occurring calamities.

The Environmental View

The environmental view of sustainable development emphasizes preserving the

resilience and dynamic ability of biological and physical systems to adapt to change.

While disasters may be beyond human control, the probability of their occurrence may

be affected through human actions.

Accelerated changes in demographic and economic trends have disturbed the

balance of ecosystems. The failure to limit environmental degradation resulting from

human intervention increases the vulnerability to risks posed by natural hazards. Most

of the cities in India are examples of uncontrolled urban development, combined with

deforestation and dumping of wastes into rivers and canals, which have led to increased

runoff and heavy flooding. Many of the same actions that preserve the ability of systems

to adapt to change also increase resiliency to external shocks or extremes in the

environment such as natural disasters. This interconnection between natural resource

degradation and increased vulnerability to natural disaster emphasizes the need for

preventive measures.

DISRUPTION OF DEVELOPMENT BY DISASTERS

Renewed interest in the political and economic aspects of disasters triggered by

natural phenomena is part of a wider acceptance that development has failed in many

parts of the world and that it is development failures that have led to an accumulation of

disaster risks.

Disasters wipe out the hard-won results of decades of development in a very

short time. Natural disasters are on the increase - floods, storms and droughts have

doubled in number since 1996. Many are recurrent, or predictable. In the year 2005-06,

approximately 256 million people were affected by disasters. Affected - that means that

they have lost homes, livelihoods, providers - that they have become more vulnerable.

The root causes are known: Environmental degradation, Global warming,

Marginalization, Poverty. Poorer countries are more prone to disasters. 98% of last

year's disaster victims live in countries of low or medium human development. True

disaster recovery takes a long time. The interval between disasters is often too short to

build resilience and to reinforce coping mechanisms.

There is a need to discuss the importance of considering the likely potential,

risks and consequences of disasters as part of development program planning. One can

prevent damage and disruption that arise, when disaster considerations are integrated

into project planning for development. This discussion will increase our understanding

if development/disaster linkages, broaden our view of intervention possibilities, and

provide examples of how development planners can assess the costs and benefits of

these types of programs.

Disasters can seriously disrupt development initiatives in several ways,

including:

 Loss of resources

 Interruption of programs

 Impact on investment climate

 Impact on the non-formal sector

 Social and Political implications

Loss of Resources

Development resources are lost when a disaster wipes out the products of

previous investment. The primary loss of development resources occurs from damage to

capital stock and inventory. This is initially the most visible effect of sudden impact

disasters. Tropical storms can destroy factories, fishing ports, power systems and

telecommunications. Earthquakes damage and destroy buildings, transport, and public

utilities. Disasters have a particularly destructive economic impact in areas where there

are very few alternatives for assets, which are destroyed, or in areas where those assets

are particularly critical.

There is a further loss of development resources from reduction in the

production of goods and provision of services. This results from direct disruption by the

disaster and its immediate local effects and, subsequently, disaster can disrupt

development potential from the increased cost of goods and services, which then result.

Income losses resulting from lost production have a particularly depressing impact on

consumer ability to purchase goods and services. Lost productivity may also result in

loss of export markets, for example, a coconut plantation in India lost to cyclone

damage will take five years to regenerate during which time other coconut producing

countries can increase market share.

The disasters affect development through:

 Impact on capital stock and inventory

 Loss of production and provision of services due to disruption and increased

cost of goods and services

 The secondary effects of the disaster include inflation, balance of payment

problems, increase in fiscal expenditure, decreases in monetary reserves

 Other indirect losses, for example: the impact on a country's debt position

could be that as the debt service burden increases, the country has less

resources available to invest in productive enterprises

 The outcome of these losses of resources include: loss of economic growth,

delays to development programs, cancellation of programmes, and

disincentives to new investment

 There may also be a shift in skilled human resources toward high visibility

recovery activity-a diversion from long-term to short-term needs.

Interruption of Programs

Disasters interrupt ongoing programs and divert resources from originally

planned uses. Interrupting ongoing programs to allow a shift in resources from long-

term programs to highly visible short-term recovery and emergency response programs

can also negatively impact development activity.

The secondary effects of a major disaster also disrupt the development process.

These secondary effects of direct economic impact include inflation, balance of

payment problems, increase in fiscal expenditures and decreases in monetary reserves.

An increase in the country’s debt means that as the debt service burden increases,

countries have fewer resources available to invest in productive enterprises. The

outcome is usually the lowering of economic growth, delays to development programs,

cancellation of programs and disincentives to new investment.

Impact on Investment Climate

Repeated disasters, in particular, have a negative impact on the incentive for

further investment. A climate of stability and certainty is needed to encourage investors.

At the individual level, repeated losses from hazardous events can discourage creative

investment. Under conditions of uncertainty, both foreign and domestic investors will

generally be very cautious about supporting entrepreneurial activity.

Developing countries in the Asian region are now being challenged to improve

their investment climate, boost efforts to innovate and build skills, and protect those

vulnerable to devastating shocks like health crises, job losses, and natural disasters. The

threat of avian flu also presents a major uncertainty. Countries across the region are

taking steps to manage possible outbreaks. Although avian flu has severely affected

those connected to poultry farming, the impact has not spilled into the overall economy.

Impact on Non-Formal Sector

Disasters have special negative impacts on the non-formal sector. The costs of

disasters are often underestimated because disruption in this part of the economy is not

usually taken into account. In many societies the non-formal economy, while not

usually included in national economic statistics, can involve a substantial portion of the

total population. The non-formal sector is especially vulnerable to housing damage

because houses often serve as sites of business activity. Once local business is

disrupted, there will be indirect costs from lost employment and income. Small business

in this sector may be especially sensitive to price increases.

Social and Political Implications

Throughout many parts of the world one type of hazard can trigger a domino

effect of disasters. For example, a drought may lead to a famine, which in turn leads to

civil conflict resulting in a mass displacement of the population. Another example

includes flooding which may force people to seek refuge across international borders

upsetting the balance of needs and resources and weakening the ability of the

government to receive the added population growth. This in turn may lead to civil strife

and disorder.

Such compound hazards and disasters need not occur sequentially; they can

occur simultaneously. Thus, people may become caught between contending forces in a

civil war and also suffer from a major drought with limited means to grow food or to

receive outside assistance.

In a growing number of countries, complex disasters are also becoming more

evident. Essentially a complex disaster is a form of human-made emergency in which

the cause of the emergency as well as the assistance to victims are bound by intense

levels of political considerations. The single most prevalent political condition of a

complex emergency is civil conflict, resulting in a collapse of political authority. In

such cases, at least one of three situations arise:

 The government's ability to assist their disaster-afflicted becomes severely

constrained.

 The government becomes extremely suspicious of or uninterested in

afflicted people who have fled from non-government to government held

areas.

 The government or opposition groups actually create or compound a disaster

through actions that generate refugees and the mass displacement of people.

In fact, many affected people live in areas outside of government control. These

are often the people in the most need and yet, the most difficult to reach.

The disaster becomes "complex" because either the collapse or diffusion of

political control makes assistance highly problematic. Solutions ultimately depend upon

agreements with all parties involved in the conflict to permit assistance to be provided

to recognized civilian noncombatants. These solutions may include agreements that are

seen essentially as compromising fundamental aspects of sovereignty in exchange for

humanitarian assistance. UN sponsored safe havens on corridors of tranquility are

examples.

Displaced Persons And Refugees

One of the most serious consequences of compound and complex emergencies

is the creation of populations of displaced persons. The term "displaced person" applies

in several contexts. These include people who are:

 Forced to leave their homes as a result of drought, famine, or other disaster,

usually in search of food, water and shelter.

 Non-combatant individuals and families forced to leave their homes because

of the direct or indirect consequences of conflict but who remain inside their

country.

 Forcibly resettled by their government if the resettlement is ethnically, tribal

or racially motivated.

 Expelled from a country, forced out for economic or political reasons

especially as an ethnic or national group.

Consequences and effects

The variety of possible situations generating displaced people makes

generalizations difficult, but the following maybe experienced in varying degrees:

 Loss of means of livelihood.

 Communities becoming separated from services previously provided.

 Loss of normal sources of food.

 Lack of shelter and household necessities.

 Lack of fuel for cooking.

 Lack of potable water.

 Communicable diseases and over-crowding.

 Additional burdens for women, especially as heads of households.

 Large numbers of unaccompanied children separated from family.

 Loss of land and tenure.

 Possible communication and logistics problems.

 Insecurity due to tensions and military activities.

Not to be forgotten is the population that remains at home and, even though they

are not "trapped in conflict areas," they may be in places that are hard to reach because

of political, logistical and/or security reasons. This population group may end up

suffering from many of the same problems as those affected by isolation from a national

support structure or access to international humanitarian relief assistance.

Political Implications

Socio-political and cultural dynamics put into motion at the time of catastrophic

‘natural’ disasters create the conditions for potential political change - often at the

hands of a discontented civil society. A state’s incapacity to respond adequately to a

disaster can create a temporary power vacuum, and potentially a watershed moment in

historical trajectories. This generates a window of opportunity for novel socio-political

action at local and national levels. Interventions may include maneuvers to entrench or

destabilize current power-holders, change power-sharing relationships within

recognized sectors, or to legitimise or delegitimise new sectors.

Disasters triggered by environmental phenomena do not cause political change,

rather they act as catalysts that put into motion potentially provocative social processes

at multiple social levels. The character of political change is influenced by the nature of

the pre-disaster socio-political and cultural milieu, and the actions and reactions of

popular and institutional actors involved in disaster response and reconstruction.

By analysing large natural disaster events from 1899 to 2005, seven premises

regarding disasters and political change have been identified:

1. Disasters often hit politically peripheral regions hardest catalysing regional

political tension.

2. Disasters are a product of development policies and can open to scrutiny

dominant political and institutional systems.

3. Existing inequalities can be exacerbated by post-disaster governmental

manipulation.

4. The way in which the state and other sectors act in response and recovery is

largely predicated on the kind of political relationships that existed between

sectors before the crisis.

5. Regimes are likely to interpret spontaneous collective actions by non-

government sectors in the aftermath of a disaster as a threat and respond with

repression.

6. In the aftermath of disaster, political leaders may regain or even enhance their

popular legitimacy.

7. The repositioning of political actors in the aftermath of a disaster unfolds at

multiple scales.

HOW DEVELOPMENT MAY CAUSE DISASTERS

The side effects of well-meaning development efforts sometimes have

disastrous consequences. Development projects implemented without taking into

account existing environmental hazards may increase vulnerability to natural disasters.

For example, projects designed to increase employment opportunities, and thus income,

usually attract additional population growth. Low-income people may then have to seek

housing in areas previously avoided, on hillsides or in floodplains. The cost of relief

assistance after a landslide or flood can easily outweigh the benefits to the economy of

more jobs. Similarly, development projects may lead to negative political consequences

that increase the vulnerability to civil conflict.

Some types of development projects commence without fully assessing their

impact on the environment. This can occur even in programmes resulting from a

disaster, such as reconstruction projects that increase demand for wood to fortify

houses. The resulting deforestation can then bring increased vulnerability to mudslides

and possibly long-term environmental changes.

Development projects may even consciously force a choice between reducing

disaster vulnerability and economic vulnerability, between objects to be achieved and

magnitude of risk involved. A project's design may require a trade-off between the two

and force a decision between the lesser of two evils.

Development can contribute to vulnerability based on the following examples of

negative consequences:

 Watershed erosion

 Deforestation

 Loss of biological diversity

 Lack of soil and land management

 Air and water pollution

 Inadequate urban sanitation and waste disposal

 Marine pollution and effect of coastal zone development

Table 1.2: High-risk areas and vulnerability

Sector

Industry

Agriculture,

Forestry and

Fisheries

Development Activity Results

Construction of

chemical plant

generating employment

Deaths due to inadvertent release of

chemicals, increased health problems,

hazardous or toxic waste accidents, damage

to environment, air pollution.

Introduction of new Uncontrolled expansion of new species into

species to control pests environment, bringing crop failure

Irrigation schemes

Flooding where canals counter natural

water flow, damage to environment

Increase in pesticide or

fertilizer use of

Contamination of potable water supplies,

augment crop yields ground water, wells, destruction of aquifers

Natural

Resources

Construction of

hydroelectric dam

Displacement, salinization, loss of

livelihood

Drilling of water wells Desertification due to population clustering

in marginal areas

around wells

Transportation, Road building in rain

Communications forests

Landslides, deforestation, soil damage

Education

School construction on

earthquake fault line Deaths/injuries due to structural collapse

failure

Development

Issues,

Policy

and Planning

Centralization of

planning process

Famine due to lack of organization of local

governments, la

Concentration of tourist Exposure of large populations to risk of

facilities on vulnerable death/injury/loss in storm surge, high wind

coastlines, unstable hills storms, tsunami, landslides

DEVELOPMENT OPPORTUNITIES AFFORDED BY DISASTERS

Disasters can be a vehicle for major development programs. The political

impact of damage and disruption can be a real catalyst for change. Disaster inspired

development initiatives are influenced in a number of ways, but two aspects are

especially important. First, disasters can highlight particular areas of vulnerability, for

example where serious loss of life has occurred, or where the economic damage is

disproportionate to the strength of the impact. The outcome of this is usually to

highlight the general level of underdevelopment. Second, for a few weeks or months,

the political environment may favour a much higher rate of economic and social change

than before, in areas such as land reform, new job training, housing improvements, and

restructuring of the economic base.

The value of assistance given after disasters may partially compensate for

economic losses, although the amounts are usually rather small in relation to the total

loss. Early injections of aid rarely constitute more than ten percent of the overall losses,

and are usually considerably less than that. In the following months and years, there

may be additional longer-term development aid, which would otherwise not have been

made available.

Development opportunities are often missed or compromised because of an

excessive focus on relief assistance. Relief assistance may introduce substantial flows

of resources, which may discourage independence and entrepreneurial activity.

The political impact of damage and disruption can be a real catalyst for change.

Incorporating Mitigation Measures into Regular Development

Development programs to decrease disaster vulnerability should be incorporated

into every level of project preparation. Local people should be involved in integration

measures as they are aware of the remedies available in the neighbourhood. There is a

wide range of options for incorporating mitigation measures into regular development

programs.

Strengthening of urban utility systems and industrial support infrastructure is a

common aim of development projects. This can be achieved through a variety of inputs,

including loans, technical assistance, and institution development support. Utility

Systems like water, electric power, transport links and communications must be made

more effective as well as more selectively resistant to particular hazards.

Investments in transport and communications also improve our ability to

respond to, and recover from, a major disaster. For example, improvements in

conditions of road will usually make evacuation and relief easier. Better

communications will often lead to improved early warning and more effective

preparedness and response measures. Investments in airports and bridges can help speed

up the delivery of relief resources.

Mitigation is most effective as part of a medium to long-term development

program which incorporates hazard reduction measure into regular investment projects.

VARIED IMPACT ON STATES IN INDIA

Hazards vary considerably in the scale of their impact, the geographical scope

and the duration of effects; these may include river or coastal flooding,, landslides,

tropical storms, earthquakes, drought, urban fires, civil conflict, or technological and

industrial hazards. Each of these has a very different potential for disruption, depending

on the intensity of the disaster impact, and its geographic relation to populations,

economic assets, and the type of economic activity in progress.

Development is, in part, a process of investment and capitalization of economies

over a long period. Every State has widely differing types of development, each subject

to different processes and pattern of investment, institutional change and structural re-

organization. Each State will exhibit a different sensitivity both in the short and long

term to the impacts from various kinds of major disasters and hazard agents. This we

have seen in the after effects of disasters in the States of Orissa and Gujarat.

In India we can divide States into four different types. The main purpose here is

to focus on broad differential effects. The four types of State economies are given in

Exhibit 1.2.

Using these four categories, we can begin to develop an overview of how the

various types of States differ in their overall vulnerability to each type of shock.

Industrialized States

The economies of Industrialized States are less vulnerable to agricultural

damage. They can usually withstand losses in this sector. There are, for example, often-

sufficient financial reserves to provide food to victims of disasters on their own. There

may also be more alternative sources of employment for agricultural workers. On the

other hand, these states may be vulnerable to damage to infrastructure, e.g. power

systems, transport, communications, and public utilities, by earthquake and cyclones.

Exhibit 1.2: Four Types of State Economies

1. Industrialized States: highly urbanized, with high-density urban

populations.

2. Rural/Agricultural States: characteristic of less developed States like

Bihar, Uttar Pradesh.

3. Small States: like Union Territories or the State of Goa. Economy may

depend on single crop or single commodity economies

4. Highly Stressed States: like Jammu and Kashmir and the Northeast.

These are highly vulnerable and can slip into economic decline

quickly. The situation is worsened by public unrest or frequent terrorist

strikes.

Rural/Agricultural States

These States are relatively immune to disasters of short and sudden impact.

However, they are susceptible to disasters, which have extensive rural impact,

particularly drought, flood, severe pest damage and Naxalite movements..

Small States

They are often highly dependent on unique commercial crops or tourism e.g.

Kerala, Goa, Pondicherry. They are susceptible to natural disasters like Tsunami or

technical or man made disasters.

Highly Stressed States

Generally, these States depend on large Central Aid. Populations in these States

are under exceptional stress. They are vulnerable to disasters (Earthquake and terrorism

in Jammu and Kashmir), widespread floods and insurgency (Assam). Almost any

disaster-related shock has a frightening impact on these States.

Summary

 There is a clear relationship between vulnerability to disasters and the level of

economic, social and technological development. The increasing trend in the

incidence of natural disasters is associated with the fact that more and more

societies are becoming increasingly vulnerable to such phenomena, in part owing to

human activities.

 The prevalence of massive poverty forces people to be engaged in income

producing activities for survival, like deforestation or farming in marginal areas,

which lead to resource degradation. In addition, some development activities such

as clearing forests for timber or road construction, put at risk natural resource

sustainability, and are among factors contributing to the frequency and intensity of

natural disasters. Environmental degradation also contributes to lowering the

potential of resilience and recovery from the effects of disasters.

 Four dimensions of disaster phenomena needs to be considered:

 Hazards as a central concern;

 The dynamics of disaster-agents;

 A global typology of hazards; and

 A reconfigured development focus.

 Development requires institutional and structural transformations of societies to

speed up economic growth reduce levels of inequality and eradicate absolute

poverty. Over time, the effects of disasters can seriously degrade a country’s long-

term potential for sustained development and cause governments to substantially

modify their economic development priorities and programs.

 Disasters can seriously disrupt development initiatives in several ways, including:

 Loss of resources

 Interruption of programs

 Impact on investment climate

 Impact on the non-formal sector

 Social and Political implications

 Disasters can be a vehicle for major development programs. The political impact of

damage and disruption can be a real catalyst for change.

Questions

1. Explain the linkages between disasters and development. Describe the nature and

dimension of the challenge.

2. Comment – “Development failures have led to an accumulation of disaster risk.”

Explain various ways in which disaster can seriously disrupt development

initiatives.

3. How development may cause disasters? Do you believe that disaster may also

provide development opportunities? How?

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