UNIT 8

INTRODUCTION TO HAZARDS
AND DISASTERS
Structure
8.1 Introduction Disaster Management
Expected Learning Outcomes 8.6 Community Based Disaster
8.2 Concept of Hazards and Management
Disasters 8.7 Summary
8.3 Vulnerability and Risk 8.8 Terminal Questions
8.4 Disaster Risk Reduction- 8.9 Answers
Approach and Strategies 8.10 References and
8.5 Sendai Framework and SuggestedFurther Reading

8.1 INTRODUCTION
Hazards and disasters are as old as human history. The dramatic increase in
their magnitude and frequency and the damage caused by them in the recent
years have become a cause of national and international concern. Over the
past decade, the number of natural and man-made disasters has climbed
alarmingly. India is vulnerable to natural hazards and disasters on account of
its unique geological disposition and climatic conditions. India is vulnerable to
floods, droughts, cyclones, earthquakes, landslides, thunderstorms, lightning,
coastal erosion and submergence of coastal land masses. It has also been
found that many of these events are recurrent phenomena for the country.
Increasing population density in different locations, rising developmental and
industrial activities are often associated with man-made hazards and disasters.
Global warming and climate change is adding a new dimension to the natural
hazards and disasters.This dimension poses greater challenges before
humanity.There is an unprecedented increase in disaster frequency, intensity
and areal extension. Inter Governmental Panel on Climate Change (IPCC) is of
the opinion that the present trend of global warming is likely to bring more
intense climatic hazards and natural disasters like floods, cyclones, droughts,
cold and heat waves. It is essential to understand these extreme processes,
their drivers and implications so as to develop strategies for their mitigation,
better adaptation and management. In this unit we are going to discuss the
concept of hazards and disasters, their nature, characteristics and types. We
also aim to understand the key terminologies associated with disasters such as

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vulnerability, risk, prevention and mitigation as well as different strategies and

approaches of disaster management focusing on community resilience and
sustainable development.

Expected Learning Outcomes

After studying this unit, you will be able to:
 Describe the concept of hazards and disasters;
 Explain types of hazards and disasters
 Analyze vulnerability and risk;
 Explore approaches and strategies for disaster risk reduction;
 Understand Sendai Framework; and
 Comprehend community based disaster management practices.

8.2 CONCEPT OF HAZARDS AND DISASTERS

Natural hazards and disasters are geophysical events of extreme nature.
These are caused by the natural forces and processes which occur beyond
their normal magnitude and frequency. These are natural phenomena which
pose a threat to the society, human beings and their assets. These natural
processes of the environment may be biological, geological, hydrological or
meteorological in origin. Natural hazards often turn into disasters causing
severe impacts and disruption in the society leading to large scale human,
material and environmental losses exceeding the ability to manage. A disaster
is a product of a hazard (cyclone, flood or earthquake) and a vulnerability factor
which may be physical, social, and economic or the nature of exposure of
people, area and infrastructure. Without vulnerability or hazard, there is no
disaster. An event, though caused naturally might be, sudden or progressive,
intensive or pervasive which impacts with such severity that the affected
community has to respond by exceptional measures is referred to as disasters.
Natural hazards are classified as rapid unsetting physical phenomena like
earthquakes or slow unsetting processes like droughts and desertification.
Natural hazards are classified as geophysical, hydrological, climatological,
meteorological or biological based on the nature of their origin. From the
preceding discussions it follows that natural hazards are associated with
extreme events in the normal operation of the planet’s geological, hydrological,
atmospheric and ecological systems. Natural hazards are of concern to
inhabited areas.

Man-made hazards are events caused by human beings in close proximity to

human settlements. Global warming, environmental pollution, different types of
accidents, wars and conflicts, epidemics and famines are the examples of
man-made hazards. Man-made hazards are normally associated with human
negligence, human intent or failure of the man-made systems in the societies.

8.2.1 Hazards
A hazard is a phenomenon that poses a threat, a future source of danger and
having the potential to cause harm to people and their environment bringing
death, injury, disease, stress and often becomes a disaster. A hazard bears
adverse impacts on human activities causing damage to property and assets.
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Hazards can often have negative impacts on the environment besides loss of
flora and fauna. Hazards are defined as ‘those elements of the physical
environment, harmful to man and caused by forces extraneous to him.’ ADPC
at Bangkok defines hazard as events which become a potential cause of harm
or loss. Some examples of hazards are earthquakes, volcanic eruptions,
cyclones, floods, landslides, train accident, a plane crash or events like
leakage of industrial waste affecting people and their surroundings. People
classify hazards as natural or man-made based on their causal origin.The
causes of natural hazards are natural processes or forces such as cyclones,
floods, droughts, earthquakes, tsunami, landslides etc. But man-made hazards
are those caused by human intent or by their negligence or by the failure of the
man-made systems such as industrial and chemical accidents, road and
railway accidents, aviation disasters, fire, building collapse, communal
violence, bomb blasts etc. Incidents like flooding in mega cities are hard to
believe whether they were caused by heavy rain or poor city planning or non
disposal of rain water owing to the choking of the drainage outlets. People
often experience that natural processes are the causes of the hazards.
However, human activities exacerbate the impacts due to lack of improper
planning and management during floods and droughts. These are seen
triggered by deforestation, lack of proper planning and development or
inefficient drainage system etc. For example, poor drainage systems of the
urban centres are directly linked to flooding. Impact of the storm surges are
amplified by the destruction of coastal mangroves.

The word hazard’ is of French origin derived from the word ‘hasard’ and
Arabic word ‘az-zahr’ which means ‘luck or a chance’. It is the physical
parameter of the hazard event that causes the harm or brings a loss to the
people and their environment. Environmental events turn into hazards when
their adverse impacts are felt in the society. Natural events like volcanic
eruption which do not affect human beings are referred as a natural
phenomenon rather than a natural hazard. When natural phenomena occur
away from the areas of human interest, those are neither considered a hazard
nor do they bring a disaster. Hazards are characterised by the magnitude,
frequency and periodicity of occurrence. Hazards are also manifested by their
speed of onset, recurrence interval, duration of occurrence, and spatial
extension of its area of extent and impact.

8.2.2 Disasters
Disaster Management (DM) act of Govt. of India defines disaster as a
‘catastrophe, mishap or calamity of severe nature resulting from natural and
man-made causes resulting in loss of life, property and environment. The
nature and magnitude of damage often exceeds the capacity of the affected
community to manage within their own resources and force it to depend on
external resources. It has been observed that when a hazard is not managed
properly, it can turn into a disaster. This is the reason why hazards are
considered natural and disasters are often man-made. Earthquakes, floods,
cyclones or landslides, etc are all natural hazards and we can prevent them
from becoming disasters through adequate preparedness.

Disasters bring loss of life and property as well as distress in the community. It
also results economic and social dislocations in their proximity. It prevents long

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term economic growth and acts as a barrier of sustainable development.

Secondary impacts of the natural disasters extending to longer periods are a
major challenge for the developing and under developed countries. In an
economically underdeveloped region, the natural disasters put an additional
burden on the society. Governments find little option except to channel the
limited financial resources and support systems to cope up with the immediate
consequences of disasters.This severely squeezes their ability to work for long
term developments. Disasters trigger a traumatic condition of living and the
human suffering continues for a longer period in the aftermath. .

Governments, Aid Agencies and Civil Society Organizations rush in during a

disaster providing help to the affected victims. However, the benefits people
receive from such initiatives appear short-lived as they continue to struggle to
cope with the long-term consequences on their own. Humanitarian aid does not
address the basic question of after care, which is available only so long as the
primary impacts are visible. Once the initial relief efforts subside, the real
struggle starts for the victims, as economic hardships redouble and wounds
inflicted by natural disasters prove difficult to heal. Humanitarian aid itself
cannot address the developmental problems that natural disasters bring.
Ssustained effort is needed to ensure community level disaster preparedness
and response through appropriate knowledge management practices and
policies enabling people to cope and adapt.

SAQ 1
What do you mean by a hazard and a disaster?

8.3 VULNERABILITY AND RISK

8.3.1 The Concept of Vulnerability
Vulnerability in the context of a hazard or disaster describes the degree to
which an area, people, physical structures or economic assets are exposed to
loss, injury or damage caused by the impact of the hazard. Vulnerability is a
study of probability of a natural or man-made event that leaves adverse impact
on people or their assets due to the occurrence. For example, a village and its
entire people and their houses located on a river bank are vulnerable to a
flood. People who live closer to the flood plains are more vulnerable to floods
than those who live far away. Similarly, people who live in poorly constructed
straw thatched masonry houses near the coast are more vulnerable to
cyclones than those who live in well-built concrete structures.

Study of the earthquakes indicates that aged population, children, woman and
people below poverty line are more vulnerable than others. Economically
advanced families are less vulnerable because they can relocate temporarily
and reduce their vulnerability. Economically better off people can quickly
rebuild their damaged houses through their savings or by augmenting external
supports. But, the poorest, living in the most exposed places, have the weakest
structures, and have limited assets to rebuild. Therefore, they are the most
vulnerable. Vulnerability indicates people’s inadequate ability or options to
protect and prevent from the possible damages or slow recovery from the
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probable consequences of the hazards and disasters. ISDRR of UNO has

defined vulnerability as ‘the circumstances and characteristics of people, their
systems or assetswhich make it susceptible to the adverse impacts and
damaging effects of a hazard’. Vulnerability increases when the exposure of
people and assets to any physical threats is more and the capacity to cope and
manage with the prevailing threats is less. Threats often emerge due to the
combination of physical and social processes of the exposed population.
Human vulnerability thus integrates many physical, economic, social and
environmental concerns. Vulnerability to hazard and disasters may undermine
the sustainable development process of a country or a region. Vulnerability has
been an important component of disaster risk analysis. Vulnerability can be
classified, defined and characterized as given below.

a) Physical Vulnerability

Physical vulnerability depends on location of people, infrastructure and

resources as well as technical capacity of structures, and built environment. It
varies according to the construction techniques employed, materials used and
location. Physical vulnerability relates mostly to buildings, infrastructure and
critical facilities. Building sites, designs, shapes, materials used, construction
techniques, maintenance and proximity of buildings to others determine the
vulnerability of buildings. The weight attached to each of these factors will vary
according to the type of hazard encountered. Infrastructure consists of three
groups namely transport systems (roads, railways, bridges, airports, and port
facilities), utilities (water, sewerage, electricity, telecommunication and
embankments, dams) and critical facilities like hospitals, primary health centres
and government offices etc.

b) Economic Vulnerability

Economic vulnerability measures the probability of risk of hazards leading to

losses to assets and economic processes. It focuses on evaluating the (i) direct
loss potential (damage or destruction of physical and social infrastructure and
its repair or replacement cost, crop damages and damage of the means of
production), (b) indirect loss potential (the impact of lost production,
employment, vital services, and income-earning activities) and secondary
effects (epidemics, inflation, and income disparities). Very often these damage
estimates do not have uniformity. Inevitably therefore, the destruction wreaked
by the natural disasters means a net loss of economic resources. Economically
weaker people are considered to be more vulnerable as they do not have
adequate financial opportunities or resources to cope and recover from the
adverse impact of the disasters or restore their livelihood options.

c) Social Vulnerability

Social vulnerability focuses on special categories of vulnerable groups,

livelihoods at risk, and the degree of poverty. Records of disasters of the past
reveal that the groups of people at risk who require special attention are the
poor, daily-wage labourers, single-parent families, women, differently-able
children and the elderly people, etc. Some people in the community are more
vulnerable than the others by virtue of their place in the social hierarchy and
exclusion. Vulnerability of physically and mentally- challenged people, women,
children, elderly, and socio-economically backward groups often belong to this
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category. Recent perceptions of vulnerability indicate that the magnitude of

impact caused by a disastercannot be measured entirely using the physical
parameters of vulnerability; it has to be measured with reference to prevailing
social and economic conditions. People who typically occupy comparatively
weaker positions within the social fabric or have limited access to social
services have a lesser capacity to absorb or avoid the impact of hazards. It has
already been established that the areas affected by disasters are populated by
people who are socio-economically disadvantaged and occupy a lower position
in the social hierarchy are the most vulnerable. Besides these three types of
vulnerability, people identify vulnerability in relation to environmental, cultural,
political aspects of the community to express different events related to
hazards and disasters.

8.3.2 Concept of Disaster Risk

Risk is defined as the ‘expected damage or loss due to the combination of
vulnerability and hazards’. People and their assets are considered at ‘risk’
when they are incapable of coping up or adapting with a disaster. The process
of risk assessment involves the quantification of risk by means of hazard
assessment and vulnerability analysis. There are three essential components
in the determination of risk which should be separately quantified. These
components are ;

(i) Hazard occurrence: The probability of a hazard event happening at a

location or in a region.

(ii) Risk elements: identifying and making an inventory of people, buildings or

other elements which are likely to be affected by the hazards and where
required, estimating their economic value.

(iii) Vulnerability of the elements at risk: The damages that can occur in the
event of a hazard to the buildings or extent of injuries suffered by people and
other components constitute the vulnerability of the elements at risk. When
vulnerability is assessed in probabilistic terms or in quantitative measures, it is
expressed by the percentage of exposure and loss in the event of a hazard.

The concept of vulnerability and risk can be well understood from the ‘Risk
Triangle’ (Fig. 8.1). Risk is the measure of the possible loss in the event of a
hazard depending upon three most important elements such as exposure of a
population, their assets and infrastructure, vulnerability and the hazard itself. In
the above triangle, when we consider the magnitude of risk is expressed by the
area of the triangle, then it is understood that it will depend on the length of the
three sides of the risk triangle. When the value of one side of the triangle is
zero, then the area of the triangle becomes zero and this zero value indicates
that the risk is zero which implies ‘no risk’. For a country, the exposure would
mean the population; the infrastructure and the built environment. Vulnerability
analysis gives information on the sectors at risk including physical (buildings,
infrastructure and critical facility), Social (vulnerable groups, livelihood),
economic (means of production, incomes) and the type of risk.

Risk has been a buzz word of the new millennium used in disaster
management. Risk evolves out of the consequences of a hazard event and its
associated probability of occurrence, vulnerability of the different elements at
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risk and the resilient capacity of the people or the exposed community or
infrastructure. There are a number of logical steps in assessing the risk
process such as risk identification, analysis, and evaluation. Risk identification
is the process of finding, and describing the nature of risks. Risk analysis is the
process of comprehending the magnitude of risk. Risk evaluation is used to
compare the results arising out of the risk analysis with the criteria of risk to
assess whether the magnitude of risk lies within the limits of acceptance or the
ability to recover.

Fig. 8.1: The Risk Triangle.

Vulnerability is expressed as the possibility of being affected where as capacity

represents the resources and preparedness of the people to resist, cope with,
or recover from a hazard. While vulnerability is about ‘not having’, capacities
are about ‘having’ to mitigate or prevent the risk arising out of a disaster.
Examples of capacity are knowledge, skills, resources, abilities and strength in
the community or the region, which enable them to prevent, counter, stand
against, survive and recover from a disaster. Hence capacity is often referred
as the ‘coping strategies’ to deal with a disaster. Safe concrete houses,
adequate resources, well-developed critical infrastructure, community
preparedness and leadership can be considered as the examples of capacity
to mitigate disaster risk.

UNDRO has defined that the risk of a hazard is a product of its components
like presence of a hazard, its risk elements, nature of vulnerability and inherent
capacity to mitigate the hazard. In case of risk of death, the elements at risk
are the exposed population. The hazard occurrence is quantified as the
magnitude of recurrence of an event and the estimated frequency. But the
vulnerability is ‘the degree of loss to each element should a hazard of a given
severity occur’ and the coping capacity available in the society. If there is an
increase in the frequency of a hazard or increase in the population
vulnerability, the risk of the hazard will also multiply. If better coping capacity is
there, it may reduce the disaster impact. It can be best explained by the
following equation;

Disaster Risk = (Hazard × Vulnerability) - Capacity

Assuming that the disaster risk follows a multiplicative function, the equation for
estimation of risk is ;
R = H × Population × Vulnerability – Capacity
where, R is the risk (For example risk can be measured as the numberof people
killed per one lakh or one million in a year or the amount of property lost in a year)

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H is the Hazard (Hazard is quantified as events per year based on its

magnitude and frequency)

Population is the population living in an exposed area or the number of people

affected in an area per event.

Vulnerability is depending on socio-economic factors (units).

Capacity is the inherent strength to prevent the adverse impact of a disaster

(Can be measured in terms of no. of people evacuated in an event or length of
embankments constructed in the preceding year etc.).

In the above equation -1, the combination of frequency of a hazard and its
exposed population is called physical exposure. This is the average number of
people exposed to a hazard in a time period. Hence the Formula 1 for risk can
be simplified as follows;

R = (P. Exp × Vulnerability) - Capacity

where: R is the risk of an element ( for example human life lost / Property lost),
Vulnerability is the population Vulnerability
P. Exp is the number of exposed people to a hazard per year.

SAQ 2
What is vulnerability?

8.4 DISASTER RISK REDUCTION-APPROACH

AND STRATEGIES
In the year 2005, the Govt of India (GoI) enacted the Disaster Management
Act. Following this act, NDMA was established under the headship of the Prime
Minister. SDMAs were formulated at the state level under the Chairmanship of
the Chief Ministers, and DDMAs were also created headed by the District
Magistrate / Deputy Commissioner to spearhead an integrated and holistic
approach to Disaster Risk Management. Post Sendai disaster management
framework was adopted with an approach of proactive prevention, mitigation
and preparedness replacing the age old relief-centric response in disaster risk
reduction to minimise losses of life, livelihood and property due to a disaster.
This new approach of Disaster Risk Management inculcated a culture of
preparedness, prevention, and resilience at all levels through awareness,
education and innovation. Besides this the new approach aims at;

(a) Adoption of mitigation measures through use of technology, indigenous

wisdom and environmental sustainability,
(b) Mainstreaming disaster management into the state’s development
planning
(c) Establishing institutional and techno-legal setups for identification,
monitoring, andassessment of disaster risks.
(d) Improving forecasting and early warning systems and failsafe

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communication.
(e) Promoting collaboration and partnership with the media, national and
international organisations to create awareness and capacity building
ofstakeholders.
(f) Ensuring efficient and quick response and relief to the vulnerable and
poorer sections of the community.
(g) Building back better system taking a disaster as an opportunity for risk
reduction and sustainable development through disaster resilient
structures and habitat ensuring safer living.
(h) Govt. of India has institutionalized and adopted disaster risk mitigation and
prevention as an integral part of their development strategy. It was also
been mandated that each project in a hazard prone area will
address‘Disaster prevention/mitigation’ as an essential component of the
developmental planning. This principle was also incorporated into the
disaster management policy of the country and the states as well.

Most of the innovations in the domain of disaster risk management has come
aligned with the international agreements emerged from the Hyogo framework
of action and Sendai Framework for community resilience. All these have
brought a paradigm shift in the entire process of disaster management from
pre-disaster preparedness to post-disaster rehabilitation and reconstruction
viewing disaster as an opportunity for sustainable development and community
resilience. The shifting paradigm of disaster management in the new
millennium is changing the vision of disaster management from response to
risk reduction, prevention to preparedness, one agency to all agencies, natural
hazard to all hazards, relief to development, focus on the poorest and most
vulnerable, people and community centred DRR, international collaboration,
focus on early warning system based on ICT, risk and vulnerability based
development assistance, devolution of authority and proactive governance and
incident command system. Some of the important approaches used in disaster
management are discussed below.

(a) Approach of Preparedness and Response

Preparedness comprises measures taken before a disaster aiming at

minimising loss of life and property, disruption of critical infrastructure and
services. Preparedness empowers the community for a quick and effective
response and recovery. Preparedness includes vulnerability analysis, risk
assessment, last mile connectivity, early warning system and capacity building
of the different stakeholders of the community to function during the
emergency and rehabilitation phase.

(b) Global Model of Disaster Management

Disaster Management follows the Disaster Management Cycle which includes

activities of crisis management when the disaster strikes an area and activities
of risk management during the pre-disaster phase.

(c) Sustainable Development Approach

The sustainable development approach has facilitated better understanding of

the linkages between disaster and development. Disasters bring an adverse
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impact on the economy and become a barrier in the path of achievement of the
goals of sustainable development. Hence disaster mitigation programmes are
made as an integral part of developmental programme. This view has
facilitated the adoption of the principle of ‘how to build back better.’ It fosters
the promotion of the ‘culture of prevention’ and incorporation of disaster
management in development planning.

(d) Total Disaster Management Approach

Under the purview of this framework, disaster management has been refined
as a comprehensive and integrated one with multi-hazards approach
comprising prevention and mitigation, preparedness, response and recovery.
All-hazards approach of disaster management aims to address the full range of
probable disasters. The integrated approach aims at promoting multi-sectoral
and inter-sectoral coordination in disaster management and reducing
duplication and inefficiencies.

(e) Community Centred Approach

The new paradigm of disaster management intends to keep the community as

the pivot. This approach reiterates the roles, responsibilities and a sense of
community ownership of disaster management ensuring self-reliance among
the community members.

(f) Development-Oriented Relief Approach

This approach brings focus of disaster management towards undertaking

disaster relief within the context of development. This approach is a shift from
the classical approach of relief management towards a more proactive
approach of resource management. This enables community to be reassured
that they can be active people having capacitiesto contribute towards disaster
risk reduction at the community level. This facilitates local level community
consultation and provision of need-based appropriate relief assistance which
can reduce their immediate and long-term vulnerabilities.

(g) Vulnerability Reduction Approach

This approach is an innovative concept of disaster management. It believes

that vulnerability is an outcome of its surroundings, the habitat, environment,
and the hazards pertaining to them. Vulnerability is the susceptibility and
exposure to the risk of a hazard, and its capacity to overcomethe adversities
arising out of the hazard. Vulnerability reduction approach aims to bring
resilience by addressing the causes associated with the emergencies and
strengthens the capacities and preparedness of the communities to reduce the
disaster risks. This is achieved by undertaking various activities such as
hazard analysis, assessment of vulnerability, activities of prevention,
mitigation, preparedness and quick response. Vulnerability assessment,
hazard and risk analysis makes people aware of the magnitude of the possible
impact of a hazard in their habitat. It prepares the community towards
mitigation of the hazards, preventing them from evolving into disasters.
Disaster preparedness towards response, recovery and rehabilitation
empowers the community, raises their awareness to risk and vulnerabilities
and helps in achieving the goals of disaster risk reduction and community
resilience.
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SAQ3
Explain the development-oriented relief approach.

8.5 SENDAI FRAMEWORK AND DISASTER

MANAGEMENT
8.5.1 Background to the Sendai Framework
This framework for DRR (2015-2030) is a 15-year, voluntary, non-binding
agreement formulated at the UN Conference held in Sendai, Japan, on March
18, 2015. This framework has been developed keeping in view of the
guidelines of the Hyogo Framework and Yakohoma Strategy for disaster
resilience of the communities. Sendai Framework of disaster risk reduction
was formulated as a global strategy for increasing resilience, and reducing the
impactsof disasters through policy interventions, proactive governance,
national and international collaboration, use of ICT and innovative research,
capacity building of the stakeholders and preparedness of the community
members. The framework was worked out to ensure continuity to the
commitments undertaken in the ‘Hyogo Framework of Action (2005 – 2015)’
and ‘Yakohoma strategy (1994)’ for reduction, prevention, mitigation and
management of disasters through a number of innovations, priority actions and
target-oriented approaches.Some important points of the renewed framework
are given below.

8.5.2 Preamble of the Framework

Preamble of the framework was to adopt a focused, action-oriented and
forward looking risk reduction strategy building resilience among the
communities and nations. The framework should also identify modalities of
commitment-based implementation and periodic review for risk reduction. The
renewed framework came with the realization of progress in raising
preparedness in addressing the issues of disaster risk reduction. However,
global warming and climate change have added a new dimension to the
pattern of disaster risk increasing social vulnerability, threatening the livelihood
options and food security. In spite of various efforts and risk reduction
strategies, there is an increase in the magnitude and frequency of hazards and
disasters across the globe exacerbated by the climate change. Exposure to
hazards has also increased at a greater pace than vulnerability reduction,
generating new risks and steady increase in disaster related losses, socio-
economic and environmental impacts. In view of all these adversities, it was
believed that the framework is supposed to bring disaster risk reduction along
with climate change adaptation and sustainable development by scaling up
and better integration of risk reduction measures with planning and program
implementation aimed towards poverty alleviation in the globalized world. Thus
the preamble of the proposed framework was aimed at focussing on
preventing new risks, reducing existing risks and strengthening community
resilience broadening its scope to encompass natural and man-made hazards.
Lessons learned from the results of the Hyogo guidelines were that disasters
are continuing to undermine the achievements in sustainable development.
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Although, the Hyogo Framework catalyzed critical guidance in disaster risk

reduction, its implementation revealed a number of gaps in resolving the
underlying risk factors, formulation of goals and priorities for action revealing a
need to adopt an action-oriented framework which can be implemented and
monitored by the Government agencies and various stakeholders.

8.5.3 Characteristic Features of the Sendai Declarations

(a) Goal and Outcome

This goal and objectives outlined in the Sendai recommendation to achieve

disaster resilience by 2030 are given below.

 Substantial reduction of disaster risks with respect to loss of life and

livelihood, economic, physical, social, and environmental assets of
community and countries.
 Prevention of new disaster risks and reduction in the existing risks by
implementing integrated and inclusive structural, economic, legal, social,
environmental, political and institutional measures that reduce hazard
exposure and vulnerability to disaster, assist in preparedness for response
and recovery for strengthening resilience to disasters.

(b) Priorities and Global Targets

Keeping in view of the goal and expected outcome, Sendai Framework has
agreed upon four priority areas and seven targets to assess the global
progress in the agreed framework. These are the actionable points for the
countries and regions to achieve the goals. The four priority areas of the
Sendai declaration are as follows:

i. Understanding about the risk of Disasters

This priority tends to highlight that the disaster managers must understand the
nature and characteristics of disaster risk and its associated components like
vulnerability, exposure, capacity and preparedness in relation to the people
and their assets. Such knowledge will be significant in disaster prevention and
mitigation as well as for emergency preparedness, response and post-disaster
rehabilitation and reconstruction.

ii. Emphasis on Proactive Governance

International community has realised that proactive and decentralised

governance at the national, regional and global levels is very important for
disaster management. It can foster collaboration at different levels of
governance and partnership between various stakeholders. It is believed that
strengthening the governance systems can enhance the disaster risk reduction
measures like prevention, preparedness, mitigation, effective response during
the emergency phase and successful handling of recovery, rehabilitation and
resettlement in the crisis management phase.

iii. Investment in DRR activities and community resilience

Disaster risk reduction is the prime objective of disaster management. In this

process the structural (disaster resistant infrastructure) and non structural

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mitigation measures (Capacity building training and awareness programs) play

a key role in reducing future disaster risk. In this situation, public and private
investment play a significant role in addressing vulnerability, restoring
resilience and ultimately bringing disaster risk reduction.

iv. Enhancing Preparedness for effective Response and ‘Building Back

Better’ in reconstruction, recovery and rehabilitation.

The growth of disaster risk means there is a need to strengthen disaster

preparedness for response, take action in anticipation of events, and ensure
capacities are in place for effective response and recovery at all levels. The
recovery, rehabilitation and reconstruction phase is a critical opportunity to
build back better, including through integrating disaster risk reduction into
development measures

In order to monitor the global progress in achieving the goals and outcomes on
implementation of priority actions of the present agreed framework, seven
global targets have been put forth for achievement by 2030.

These global targets are as follows:

1. Substantially Reduce Disaster Mortality

2. Substantially reduce the number of affected people
3. Reduce direct loss to GDP.
4. Substantial reductionin disaster damage to the critical infrastructures
andessential services,
5. Increasing the number of countries with adoption of national and local
disaster risk reduction strategies
6. Substantial support and international cooperation to the developing
countries complementing to their national actions for disaster risk reduction
and community resilience.
7. Increasing access and availability of multi-hazard advance warning systems
to the developing countries.

(c) Implementation Principles of Sendai Framework

Besides the priorities and targets, the framework has also outlined certain
basic principles for its implementation based on the experience of the
Yakohoma strategy and Hyogo framework of action in consistence with the
national priorities, domestic regulations and international obligations.DRR is a
primary responsibility of each state and states can enhance their capacities of
DRR through international cooperation. Disaster management should be
inclusive and must protect life and assets in all forms (Cultural, economic and
environmental) including human rights. Among different stakeholders and
disaster managers, coordination, responsibility and accountability of the
stakeholders are considered critical in the risk reduction process. It was
believed that multi-hazard approach and empowering local communities and
application of indigenous knowledge can help in reducing disaster risk.
Effective disaster risk reduction will depend on global partnership, international
cooperation and support by the developed countries.

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SAQ4
What are the priority areas of disaster management in the Sendai Framework?

8.6 COMMUNITY BASED PREPAREDNESS

8.6.1 Meaning and Definition
Community Based Disaster Management (CBDM) and preparedness enables
the community members to address the disaster risk reduction process
pursuing disaster preparedness and response. It is an approach that involves
direct participation of the people in planning, decision making and operational
activities at all levels of disaster management with an aim towards disaster
mitigation and community resilience. Past experience of dealing with disasters
reveal that during the emergency and post-disaster phase, mitigation activities
can be managed effectively throughcommunity participation. It is needless to
mention that community’s involvement in reducing their vulnerabilities and try
to enhance their capacities through identification, analysis, planning and
monitoring of disaster risks using indigenous knowledge. This approach of self-
reliance builds on local perceptions, capabilities, coping mechanisms and
locally generated technologies. Such empowerment of individuals and
communities in DRR by harnessing local capabilities and resources are key
premises of this approach. Community level disaster preparedness can prevent
hazards from becoming disasters and can minimise human suffering, socio-
economic and environmental losses by reducing vulnerabilities and risks.

Community participation can hasten post-disaster recovery and can make

community at risk, disaster resilient. Nobody can understand local opportunities
and constraints better than the local residents themselves. In the event of a
disaster, the first and the quickest response in any community will always come
from the community members themselves. In view of all these basic
presumptions, there is a global commitment to minimise the impact of disasters
on the communities and promote community based disaster management and
specifically community preparedness.

8.6.2 Principlesand Premises behind CBDM

 Community Based Disaster Preparedness can be responsive and based on
the urgency of the community’s felt needs

 This can be an empowerment of people and community with a proactive

approach recognizing its own capacities and coping mechanisms

 Community level participation of people becomes effective in disaster

management because they are the actors / motivators / propellers and
direct beneficiaries too.

 Govt. and Non- Govt. agencies have supportive and facilitating role.

 Communities can reduce their vulnerability and increase capacity

configuring disaster mitigation with local development planning.

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8.6.3 Components of CBDM
The major components of the CBDM to achieve its goal and objectives are as
follows.

 Preparation of Multi-Hazard Disaster Management Plans for the community

(District, Block, Panchayat and Village level) for use as a management tool
in risk reduction.
 Development of Participatory Rapid Appraisal and Focus Group Discussion
Tools for situational appraisal, hazard profiling, vulnerability analysis, risk
assessment and strategy formulation for community resilience.
 Formulation of Disaster Management Committees and sub-committees for
decision making involving different stakeholders.
 Awareness building and mass mobilisation among the stakeholders and
community members and volunteers onvarious disasters and their
preparedness using the tools of information, education and communication
technology (IECT).
 Formation of different task forces and volunteer teams like search and
rescue, shelter management, water and sanitation, first aid and critical
health care, management of community kitchen, community resource
mapping and mobilisation, relief management, gender sensitisation,
recovery and rehabilitation etc. and their capacity building trainingsand
periodic mock drills for effective community level disaster management.
 Configuring risk reduction and disaster mitigation components into the
developmental programmes of the community.

8.6.4 Approaches and Operational Steps in CBDM

 Community involvement in disaster preparedness and quick response.
 Collection of baseline information, situational analysis and database
generation about the community, their assets, resources and opportunities.
 Hazard analysis, vulnerability assessment and risk profiling.
 Preparation of community contingency plan.
 Awareness generation, capacity building on varioussub-themes of disaster
management, mock drills and rehearsals.
 Stakeholder participation, coordination and sustainability.
 Social mapping, resource mapping, risk and vulnerability Mapping.

8.6.5 Steps for Planning

(a) Lessons learned from past experience

 Past experiences to be discussed in the group.

 How to maintain a record of all that was discussed.
 Collection of the disaster history/ timeline of the village.
 Assess the disaster impact on the community.
 Problems faced by the community during disaster.

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(b) Situation analysis

 Information about the population, land/geographical area, habitation,

facilities, service providers, agencies present, transport/ communication
facility etc.
 Technique to be adopted: mapping and listing.

(c) Social Mapping

• Number of houses: kaccha, pacca, tiled, RCC (number of. the houses).
• Roads and bridges: kaccha, pacca etc.
• Water facilities: ponds, wells, tube Wells.
• Community infrastructure: temples, club house, shelters, phc, school, post
office, godowns, etc.
• Rivers, canals and embankments.
• Alternate route to the panchayat and block headquarters.

(d) Hazard analysis and mapping

• Zoning/ identification of areas and population prone to different hazards.

• From past experience to future probabilities.
• Technique to be used: group discussion, participatory appraisal, community
resource mapping and listing.

(e) Vulnerability analysis

• Identification of specific households and population vulnerable to different

hazards, aged / old, handicapped, ailing, pregnant and lactating women,
children and people living in the vulnerable houses, equipments, machines,
domestic animals, standing crop, etc.
• Identification of all the resources available with the community which will be
of use during response phase such as man power, material, critical
resources, equipment, etc.

(f) Group formation and mobilizing the community for joint action

Community mobilization is taken up with the formulation of several working

groups within the community to perform various functions in the process of
disaster management as follows;

 Warning Group
 Shelter Management and food/water
 Evacuation and Rescue Group
 First Aid and Medical Group
 Carcass Disposal Group
 Trauma Counseling Group
 Relief and Co-ordination Group

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Village Task Force
Action Group Disaster Situation and Response
Warning Pre During Post
Shelter Management   
Evacuation, Search and Rescue   
First Aid and Medical   
Water Sanitation   
Carcass Disposal 
Relief and Coordination 
Damage Assessment 
Patrolling 

(g) Mitigation Strategy for Reducing Risk

 Hazard shelters of the locality / use of elevated land / evacuation to a safer

place/ insurance against disaster damage
 Retrofitting and appropriate modification of the old structures
 Alternate coping strategy with cropping / use of short duration crops /grain
or seed banks
 Accurate and timely early warning for the vulnerable area
 Identification and registration of risk groups
 Integration of CCP with development program to reduce vulnerability

(h) Sustainability of Community Based Approaches

 Institutionalization of the process starts with the contingency plan approved

by Gram Sabha
 Emergency Fund Generation
 Capacity Building of Taskforces
 Linkages with other institutions

8.6.6 Challenges of CBDM

 Ensuring compatibility of community interests with interests of other
stakeholders
 Proper resource mobilization and community empowerment
 Ensuring interactive and functional community participation
 Reluctance of dominant local leaders to delegate decision making power to
the community
 Political environment
 Documentation and regular up-dating
 Capacity building and Complex impact assessment
 Convergence of various elements and principles of CBDM
 Organizational mechanism for implementation

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 Risk reduction activities should commensurate with community needs

 Formulation of realistic imitative and preparatory measures
 Community ownership, active participation of grass root leaders
 Integration with Panchayati Raj and other participating institutions

8.6.7 Lessons Learnt From CBDM

 There are multiple stakeholders with diverse interests
 Functional participation of the community members help in their confidence
building
 Community participation inculcates a sense of ownership.
 People from the outside areas have a supportive or catalytic role.
 Usefulness of appropriate PRA techniques
 Mitigation is the prime aim
 Importance of accountability and transparency
 Disaster mitigation is intrinsic to sustainable developmentand viewed as
opportunities for socio-economic development
 Small success stories often provide a strong platforminsustenance of the
disaster management program.
 Very ofteninterest clash between the community members, local
leaders/NGOs and other stakeholders
 Local leaders do not delegate power of decision making to the community
members
 Inadequacy of skilled volunteers
 Insufficient community corpus funds

It is needless to mention that noticeable progress has been achieved in

introducing legislation and policies over the years for disaster management,
adopting multi-hazard strategies, reducing vulnerabilities, improving early
warning systems, and increasing preparedness at various levels. These are
the steps taken in the long journey to disaster- resilient societies. However,
contemporary climate change is altering the nature of disaster risk in terms of
its magnitude, frequency and periodicity. There have been increased weather-
related risks, rise of sea-level, increasing temperature, heat and cold waves,
thunder showers, and cloud bursts devastating the society and becoming a
challenge for the sustainable development. It has also exacerbated social and
economic vulnerabilities, damaging livelihood options, increasing poverty and
reduced food security. In view of the increasing climatic extremes, disaster
managers at the international level thought of a new strategy of convergence
of disaster risk reduction with adaptation to climate change at the sub-national
level. Community level Risk reduction strategy should reinforce the resilience
of local communities. Doing ‘more and better’ can only be met through scaling
up our risk reduction efforts and better integration of risk reduction measures
into our planning process and into the different programmatic areas.

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Awareness-raising and education can empower communities to change and to

have safer, healthier lives but disaster management should go little far in
adopting advocacy as a tool of change. Advocacy is about persuading people
to make changes, whether in policy, practice, systems or structures; it is about
speaking for others, working with others and supporting others to speak for
them to prevent and reduce vulnerability in a globalized world. Although there
is a focus on improving infrastructure and emergency actions as a part of
disaster management, there is a need to focus on the livelihood restoration
after a disaster which people often forget after the emergency actions are over.
Hence there is a felt need that socioeconomic vulnerability of the community
and their livelihood restoration are to be mainstreamed in the post disaster
development and management process at the grass root level.

SAQ 5
Why there is a lot of emphasis on ‘Community based Disaster Preparedness?

8.7 SUMMARY
In this unit, you have studied:
 The meaning and concept of hazards and disasters and their characteristic
features
 The difference between natural hazards and man-made hazard
 The significance and need for the study of the hazards and disasters
 The adverse impacts of the hazards and disasters on the people and their
surrounding
 The meaning and concept of key terminologies associated with the hazards
and disasters such as, hazard vulnerability, disaster risk, disaster prevention
and mitigation, rehabilitation and resettlement, and disaster preparedness.
 Types of vulnerability such as physical, economic, social,
 Meaning and concept of disaster management, disaster risk reduction
 Community based disaster preparedness and its significance in building
resilience in the community
 Understanding various strategies adopted in disaster risk management
 Sendai Framework of disaster management.

8.8 TERMINAL QUESTIONS

1. Distinguish between hazard and disaster?
2. What is the basic difference between vulnerability and risk in the context of
a disaster?
3. Discuss the salient features of the Community Based Disaster
management?

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8.9 ANSWERS
Self-Assessment Questions (SAQ)
1. A hazard is a phenomenon that poses a threat, a future source of danger
and it has the potential to cause harm topeople and their environment
bringing death, injury, disease, stress and often becomes a disaster.
Examples are flood, cyclone, drought, industrial accidents, etc.
Disaster isa catastrophe, mishap or calamity of severe nature resulting from
natural and man-made causes bringing loss of life, property and
environment to such an extent that the nature and magnitude of damage
goes beyond the capacity of the affected community to manage within their
own resources and has to depend on external resources.
2. Vulnerability in the context of a hazard or disaster describes the degree to
which an area, people, physical structures or economic assets are exposed
to loss, injury or damage caused by the impact of the hazard.
3. This approach brings focus of disaster management towards undertaking
disaster relief within the context of development. This facilitates local level
community consultation and provision of need based appropriate relief
assistance which reduces their immediate as well as long-term
vulnerabilities.
4. i. Understanding about the risk of Disasters
ii. Emphasis on Proactive Governance
iii. Investment in DRR activities and community resilience
5. Communities can reduce their vulnerability and increase capacity
configuring disaster mitigation with local development planning.

Terminal Questions
1. Refer to Section 8.2.

2. Refer to Section 8.3.

3. Refer to Section 8.6

8.10 REFERENCES AND SUGGESTED

FURTHER READING
1. Coppola, D.P. (2007): Introduction to International Disaster Management,
Elsevier Science (B/H), London.
2. Smith, K. (1992): Environmental Hazards: Assessing Risk and Reducing
Disaster. New York: Routledge.
3. Kapur, A. (2005): Disasters in India Studies of Grim Reality. Rawat
Publishers: Jaipur.
4. Bhandani, R.K. An overview on natural & man-made disasters and their
reduction, CSIR, New Delhi.
5. Goyal, S.L. Encyclopedia of disaster management, Vol I, II and III Disaster
management policy and administration, Deep & Deep, New Delhi, 2006.
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6. Vulnerability Atlas of India (2006): Building Materials & Technology
Promotion Council, Ministry of Housing & Poverty Alleviation, Government
of India, New Delhi.
7. Abarquez, I. and Zubair M. (2004): Community-based Disaster Risk
Management Field Practitioners’ Handbook, ADPC, Thailand.
8. Asian Disaster Preparedness Centre (2000): Training module on
Community Based Disaster Preparedness, Bangkok, Thailand.
9. ISDR (International Strategy for Disaster Reduction), Hyogo Framework
for Action 2005-2015: Building the Resilience of Nations and Communities
to Disasters, UNO, Geneva.
10. Caldwell, Z.T. Global Trends: Reducing Disaster Risks,
http/us.oneworld.net/article.
11. NDMA (2016): National Disaster Management Plan, A publication of the
National Disaster Management Authority, Govt of India. New Delhi
12. Gupta, M.C. Manual on natural disaster management in India, NIDM, New
Delhi.
13. UNISDR (2015): Sendai Framework for Disaster Risk Reduction 2015 –
2030, UNO, Geneva.
14. NDMA (2015): Disaster Management Act-2005, MoHA, GoI, New Delhi
15. Katie Peters, Laura E.R. Peters, John Twigg and Colin Walch (2019):
Disaster risk reduction strategies: Navigating conflict contexts, German
Federal Ministry of Economic Cooperation and Development.
https://www.researchgate.net/publication/333149715.

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