Guidelines for Flood - NDMA

National DisasterManagement GuidelinesManagement of Floods

National DisasterManagement GuidelinesManagement of FloodsNational Disaster Management AuthorityGovernment of India

Su m m a r y o f Ac t i o n Po i n tsMissionTo minimise vulnerability tofloods and consequent loss oflives, livelihood systems, propertyand damage to infrastructure andpublic utilities.V

Su m m a r y o f Ac t i o n Po i n tsContentsMissionContentsForewordAcknowledgementsAbbreviationsExecutive SummaryOverview of the Guidelines1 Floods-Status and Context 1VVIIXIXIIIXVXIXXXIX1.1 The Flood Hazard 11.2 Regions in the Country Prone to Floods 21.3 Flooding/Drainage Congestion/Erosion in Andaman and Nicobar 3Islands and Lakshadweep1.4 Flash Floods 31.5 Areas Prone to Floods 41.6 Damages Caused by Floods 41.7 Drainage Congestion and Water-logging 51.8 River Erosion 51.9 Urban Flooding 61.10 Littoral Drift in River Estuaries 61.11 Snowmelt/Glacial Lake Outbursts, Formation and Subsequent Bursting 6of Landslide Dams1.12 Monsoon/Cyclones/Cyclonic Circulations 71.13 Cloudbursts 71.14 International Dimensions of the Flood Hazard 71.15 Past Initiatives of the Government of India 81.16 Implementation of the Recommendations of the Experts’ 9Committees/Working Groups/Task ForcesVII

Nat Co n i t o e n a t l sDisa s t e r Ma n a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d s1.17 Achievements in Respect of Flood Management 101.18 Gaps in Flood Management 101.19 Approach to Guidelines 111.20 Action Plan 132 Institutional Framework and Financial Arrangements 142.1 Constitutional Provisions 142.2 National Institutions/Agencies 142.3 State-level Organisations 202.4 Techno-economic Appraisal of Flood Management Schemes 222.5 Funding of Flood Management Schemes 222.6 Flood Insurance 242.7 Action Plan 253 Flood Prevention, Preparedness and Mitigation 263.1 Introduction 263.2 Structural Measures for Flood Management 263.3 Inspection, Rehabilitation and Maintenance 303.4 Action Plan for Structural Measures 313.5 Non-structural Measures 323.6 Integrated Water Resources Management 323.7 Action Plan for Non-structural Measures 333.8 Medical Preparedness 344 Flood Forecasting and Warning in India 364.1 Concept 364.2 Methodology 364.3 The Central Water Commission’s Flood Forecasting Network in India 374.4 Expansion and Modernisation of Flood Forecasting Services 384.5 Coordination amongst the Central Water Commission, India 39Meteorological Department and the States4.6 International Cooperation 394.7 Action Plan for Flood Forecasting and Warning 41VIII

Su m m a r y o f Ac t iCo o n Po n t e i n t ts5 Dams, Reservoirs and Other Water Storages 425.1 Introduction 425.2 Natural Detention Basins 425.3 Dams and Reservoirs 425.4 Regulation of Reservoirs 435.5 Dam Safety Aspects 445.6 Action Plan 456 Regulation and Enforcement 466.1 Flood Plain Zoning 466.2 Incentives and Disincentives to States for Enacting and 48Enforcement of Flood Plain Zoning Regulation6.3 Encroachment into the Waterways and Natural Drainage Lines 486.4 Bye-laws for Buildings in Flood Prone Areas 486.5 Legal Framework for Making Infrastructure Flood Resilient 486.6 Survey of Flood Prone Areas 496.7 Wetlands: Conservation and Restoration 506.8 Watershed Management Including Catchment Area Treatment 50and Afforestation6.9 Coordination and Enforcement 506.10 Action Plan 517 Capacity Development 527.1 Flood Education 527.2 Target Groups for Capacity Development 537.3 Capacity Building of Professionals 537.4 Training 537.5 Research and Development 547.6 Documentation 557.7 Action Plan for Capacity Building 568 Flood Response 578.1 Introduction 578.2 Emergency Search and Rescue 588.3 Emergency Relief 588.4 Incident Command System 59IX

Nat Co n i t o e n a t l sDisa s t e r Ma n a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d s8.5 Community-based Disaster Preparedness and Response 59Coordination among Various Organisations8.6 Involvement of the Corporate Sector 598.7 Specialised Teams for Response 608.8 Improving Flood Response 618.9 Emergency Logistics 618.10 Emergency Medical Response 628.11 Action Plan for Strengthening Flood Response 639 Implementation of Guidelines – Preparation of Flood Management Plans 649.1 Flood Management Plans 649.2 Flood Management Plans of Central Ministries and Departments 669.3 Flood Management Plans of State Governments 669.4 Flood Management Plans of Nodal Agencies 679.5 Implementation of Flood Management Plans 679.6 Action Plan 6810 Summary of Action Points 69Annexures 86Annex-I/I Map Showing Flood Prone Areas 86Annex-I/II State-wise Break-up of Flood Prone Areas 87Annex-I/III Statement Showing Damage Due to Floods/Heavy Rains 89Annex-I/IV Estimate of Area Suffering from Drainage Congestion/Water -logging 91Annex-I/V Brief Particulars of Important Committees/Working Groups/Task Forces 92on Flood Management Appointed by the Government of IndiaAnnex-I/VI Important Recommendations of the Rashtriya Barh Ayog as Identified 103by the Experts Committee and Status of their ImplementationAnnex-I/VII State-wise Details of Achievements on Structural Measures 111Annex- IV/I Flowchart for Flood Forecasting and Early Warning 112Annex-V/I Case Study for Effectiveness of Hirakud Dam in Flood Moderation 113Annex-VI/I Model Bill for Flood Plain Zoning 116Core Group on Management of Floods 126Extended Core Group on Management of Floods 127List of Persons who Contributed to the Development of the 129Guidelines on Flood ManagementContact Us 135X

Su m m a r y o f Ac t i o n Po i n tsForewordVice ChairmanNational Disaster Management AuthorityGovernment of IndiaIndia is highly vulnerable to floods and out of the total geographical area of 329 mha, morethan 40 mha is flood prone. Floods are recurrent phenomenon, which cause huge loss of livesand damage to livelihood system, property, infrastructure and public utilities. It is a cause forconcern that the flood related damages are showing an increasing trend. The average annualflood damage during the last 10 years (1996-2005) was Rs. 4745 crore as compared to Rs. 1805crore, the corresponding average for the last 53 years. This can be attributed to many reasonsincluding rapid increase in population and urbanisation coupled with growing developmental andeconomic activities in the flood plains and global warming.From the past experience, it is observed that though the various Expert Committees/Working Groups headed by eminent dignitaries have made several useful recommendations/suggestions, these have mostly remained unimplemented, which is a cause of concern. Theseguidelines have highlighted those recommendations and actions required to be taken onthem.While formulating these guidelines, we have involved 161 experts from various concernedcentral ministries and departments, state governments, scientific and technical insitutions,academics, professionals and eminent personalities from the society and non-governmentalorganisations and tried to make the document as comprehensive as possible, so that it providesthe desired direction in the work to be done in flood management in the country. The centralministries and state governments can accordingly make their Disaster Management plansbased on these guidelines, which will minimise the vulnerability to floods and ensure betterpreparedness over a defined period of time.I express my deep appreciation of the commitment of various stakeholders for theirwholehearted support and cooperation in the preparation of these guidelines. I would also liketo commend the significant contribution made by the Ministry of Water Resources and CentralWater Commission and the members of the Core and the Extended Groups, for their long hoursof work in drafting and finalising the guidelines.XI

Su m m a r y o f Ac t i o n Po i n tsMemberNational Disaster Management AuthorityGovernment of IndiaAcknowledgementsI am thankful to the Core Group members for their unrelenting cooperation in the extensiveeffort that went into the formulation of the National Guidelines for Flood Management by theNational Disaster Management Authority (NDMA). I would like to place on record the significantcontributions made by the Ministries of Water Resources, Earth Sciences, the Central WaterCommission, the India Meteorological Department, governments of the States and the administrationof the Union Territories from time to time.I express my sincere thanks to the representatives of the other central ministries anddepartments concerned, representatives of the scientific and technical institutions, eminentprofessionals, the National Institute of Disaster Management, non-governmental organisationsand the representatives of the Corporate Sector for their valuable inputs which helped us improvethe content and the presentation of this document.The efforts of Shri S. K. Agrawal, Specialist (Floods), NDMA and former Member, CWC inproviding knowledge-based technical inputs to the core group and drafting the report, deservehigh appreciation.I thank Shri H.S Brahma, Additional Secretary and the staff of the NDMA for their cooperation.My thanks are also due to my staff including Sarvashri G .V Satyanarayana, Dr. Pavan KumarSingh, M. Kankaji, Ms Sajneet Kaur, Sarvashri Anil Kumar and Mahipal Singh Khatana for theirhelp in organising the various workshops, meetings and preparation of this document. I alsothank Mr. Sanjay Shrivastva and Ms. Neena Gupta who have helped me in editing the report.Finally, I would like to express my gratitude to General N.C Vij, PVSM, UYSM, AVSM(Retd.), Vice Chairman, NDMA, and all Members of the NDMA for their patient reading ofvarious drafts, constructive criticism, guidance and suggestions in formulating these guidelines.XIII

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sIt is hoped that this humble effort will prove useful to the Central Ministries and Departments,the States and the Union territories in formulating effective Flood Management Plans that willimprove the management of this phenomenon in the future.New Delhi17 January, 2008Dr. Mohan Kanda, IAS (Retd.)XIV

Su m m a r y o f Ac t i o n Po i n tsAbbreviationsAICTEAIRALTMARMVsARGATIBCMBISBMTPCBROCATCBOCBRICBSECDCFCBCFICOACPWDCRFCSRcumeccusecCWCCWPRSDDAEDARTDDAll India Council of Technical EducationAll India RadioAir-born Laser Terrain MappingAccident Relief Medical VansAutomatic Rain GaugeAdministrative Training InstituteBillion Cubic MeterBureau of Indian StandardsBuilding Materials and Technology Promotion Council,Border Roads OrganisationCatchment Area TreatmentCommunity Based OrganisationCentral Building Research Institute, RoorkeeCentral Board of Secondary EducationCivil DefenceCentral Flood Control BoardConstruction Federation of IndiaCouncil of ArchitectureCentral Public Works DepartmentCalamity Relief FundCorporate Social Responsibilitycubic meter per secondcubic feet per secondCentral Water CommissionCentral Water and Power Research StationQuarter ending DecemberDepartment of Atomic Energy,Disaster Assistance Response TeamDoordarshanXV

Nat Ab b i r o e n v i a at l Dis i o ns a s t e r Ma n a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sDDMADEMDIDMDMADMSDMPDSTDPRDRMDSSDVCDWREEPEOCERECFFFF and WFMFMOFMPFPFRLJGFCCGISGLOFsGOIGSIhaHFLHPCHSCDistrict Disaster Management AuthorityDigital Elevation ModelDrainage ImprovementDisaster ManagementDisaster Management AuthorityDisaster Management SupportDisaster Management PlanDepartment of Science and TechnologyDetailed Project ReportDisaster Risk ManagementDecision Support SystemDamodar Valley CorporationDoppler Weather RadarEmergency Evacuation PlanEmergency Operations CentreEarthquake Risk Evaluation CentreFlood ForecastingFlood Forecasting and WarningFlood ManagementFlood Meteorological OfficeFlood Management PlanFlood ProtectionFull Reservoir LevelQuarter ending JuneGanga Flood Control CommissionGeographical Information SystemGlacial Lake Outburst FloodsGovernment of IndiaGeological Survey of IndiaHectareHighest Flood LevelHigh Power Committee on Disaster ManagementHazard Safety CellXVI

Su m m a r y o f Ac Ab t b i r o e n vPo i at i o n ns tsHUDCOICSISROIDNDRIDRNIE(I)IITIMDIIAIWRMMmhaMEAMESMFRMHAmhaMHRDMOAMODMOESMOHFWMORMOWRMOSRTHMWLNCCNCDMNCMPNCMRWFNDMANRNDRFHousing and Urban Development CorporationIncident Command SystemIndian Space Research OrganisationUnited Nations International Decade for Natural Disaster ReductionIndian Disaster Resource NetworkInstitution of Engineers (India)Indian Institute of TechnologyIndia Meteorological DepartmentIndian Institute of ArchitectsIntegrated Water Resources ManagementQuarter ending Marchmajor accident hazardMinistry of External AffairsMilitary Engineering ServicesMedical First ResponderMinistry of Home Affairsmillion hectaresMinistry of Human Resource DevelopmentMinistry of AgricultureMinistry of DefenceMinistry of Earth SciencesMinistry of Health and Family WelfareMinistry of RailwaysMinistry of Water ResourcesMinistry of Shipping, Road Transport and HighwaysMaximum Water LevelNational Cadet CorpsNational Committee on Disaster ManagementNational Common Minimum ProgrammeNational Centre of Medium Range Weather ForecastingNational Disaster Management AuthorityNational ReserveNational Disaster Response ForceXVII

Nat Ab b i r o e n v i a at l Dis i o ns a s t e r Ma n a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sNECNFMINGONHAINICNIDMNITNRSANSSNWANWPNYKSPRIPVOQRMTRBARFRMRMCRRRRCSSDMASOISOPSWTACTFUGCULBUNDPWLWAPCOSNational Executive CommitteeNational Flood Management InstituteNon-governmental OrganisationNational Highways Authority of IndiaNational Informatics CentreNational Institute of Disaster ManagementNational Institute of TechnologyNational Remote Sensing AgencyNational Service SchemeNational Water AcademyNational Water PolicyNehru Yuvak Kendra SangathanPanchayati Raj InstitutionPrivate Voluntary OrganisationQuick Reaction Medical TeamRashtriya Barh AyogRainfallRiver ManagementRegional Meteorological CentreRehabilitation and ResettlementRegional Resource CentreQuarter ending SeptemberState Disaster Management AuthoritySurvey of IndiaStandard Operating ProcedureSouth-westTechnical Advisory CommitteeTask ForceUniversity Grants CommissionUrban Local BodyUnited Nations Development ProgrammeWater LevelWater and Power Consulting Services India LtdXVIII

Su m m a r y o f Ac t i o n Po i n tsExecutive SummaryIntroductionFollowing the enactment of the DisasterManagement Act, 2005, (DM Act, 2005) theGovernment of India (GOI) constituted the NationalDisaster Management Authority (NDMA) as theapex body for Disaster Management (DM) in Indiawith the mandate, inter alia, for laying down policiesand guidelines on DM. At the national level, thereis to be a paradigm shift from the erstwhile reliefcentricand post-event syndrome to pro-activeprevention-, mitigation- and preparedness-drivenDM. These efforts will conserve developmentalgains and also minimise loss of lives, livelihoodsystems and property. These Guidelines have beenevolved by the NDMA, through a nine-step process.This approach ensures that all contemporaryknowledge, experience and information are takenon board, clear destinations are identified, androad maps drawn with milestones duly marked offthrough a wide consultative process, involving allthe stakeholders. Recognising the gravity of the riskand vulnerability of India to floods, the NDMA, soonafter its constitution initiated a series of consultationswith the various stakeholders to develop Guidelinesfor strengthening the existing arrangements for floodpreparedness, mitigation, and post-flood emergencyresponse, relief, rehabilitation and reconstruction.Senior representatives from the Central Ministries/Departments and the state governments, relatedagencies, academics and professionals attendedthese meetings. The meetings acknowledged that,while several significant initiatives had been takenby government agencies in the past for addressingthe risk and vulnerability of India to floods, it isnecessary to undertake measures for the evolutionof a holistic and integrated strategy to addressthe critical factors that accentuate flood risk. Onthe basis of these deliberations, the NDMA hasprepared these Guidelines for Flood Management(FM), to assist the ministries and departments ofthe GOI, the state governments and other agenciesin preparing Flood Management plans (FMPs).Vulnerability to FloodsFloods have been a recurrent phenomenonin India and cause huge losses to lives, properties,livelihood systems, infrastructure and public utilities.India’s high risk and vulnerability is highlighted bythe fact that 40 million hectares out of a geographicalarea of 3290 lakh hectares is prone to floods. Onan average every year, 75 lakh hectares of landis affected, 1600 lives are lost and the damagecaused to crops, houses and public utilities is Rs.1805 crores due to floods. The maximum numberof lives (11,316) were lost in the year 1977. Thefrequency of major floods is more than once in fiveyears. Floods have also occurred in areas, whichwere earlier not considered flood prone. An efforthas been made in these Guidelines to cover theentire gamut of Flood Management. Eighty percent of the precipitation takes place in the monsoonmonths from June to September. The rivers bringheavy sediment load from the catchments. These,coupled with inadequate carrying capacity of therivers are responsible for causing floods, drainagecongestion and erosion of river-banks. Cyclones,cyclonic circulations and cloud bursts cause flashfloods and lead to huge losses. The fact that someof the rivers causing damage in India originate inneighboring countries, adds another complexdimension to the problem. Continuing and largescaleloss of lives and damage to public and privateproperty due to floods indicate that we are still todevelop an effective response to floods. TheseXIX

Nat Ex e i c o u n t iv a l e Dis Su a m s m t e a r yMan a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sGuidelines have been prepared to enable thevarious implementers and stakeholder agencies toaddress effectively the critical areas for minimisingflood damages.Urban FloodingFlooding in the cities and the towns is a recentphenomenon caused by increasing incidence ofheavy rainfall in a short period of time, indiscriminateencroachment of waterways, inadequate capacityof drains and lack of maintenance of the drainageinfrastructure. Keeping in view the fact that theproblem is becoming more severe and losses aremounting every year, the subject of urban floodinghas been recognised by the NDMA as one meritingexclusive attention and separate guidelines for itsmanagement are being prepared and will be issuedsoon.Action Plans at Various LevelsThese Guidelines have been drawn up in thecontext of a rigorous risk management frameworkto ensure the effectiveness of action plans that aredeveloped by various agencies. All key agencies,including the central ministries, and departments,state governments, local bodies including PanchayatiRaj Institutions (PRIs), and Urban Local Bodies(ULBs) like metropolitan development authorities,municipal corporations, municipal councils anddistrict authorities will develop detailed FMPsbased on these Guidelines. State governmentsand local authorities will play an important role inthe formulation and effective implementation ofsuch action plans. The communities and otherstakeholders will play an important part in ensuringcompliance to the regulations and their effectiveenforcement. The State Disaster ManagementAuthorities (SDMAs) will be responsible for reviewingand monitoring the implementation of the actionplans at the state-level.The Objectives of the GuidelinesThese Guidelines rest on the followingobjectives aimed at increasing the efficacy of theFMPs, which will be prepared at various levels:1. Shifting the focus to preparedness byimplementing, in a time-bound manner,an optimal combination of technoeconomicallyviable, socially acceptableand eco-friendly structural and nonstructuralmeasures of FM.2. Ensuring regular monitoring of theeffectiveness and sustainability of variousstructures and taking appropriate measuresfor their restoration and strengthening.3. Continuous modernisation of floodforecasting, early warning and decisionsupport systems.4. Ensuring the incorporation of flood resistantfeatures in the design and construction ofnew structures in the flood prone areas.5. Drawing up time-bound plans for the floodproofing of strategic and public utilitystructures in flood prone areas.6. Improving the awareness and preparednessof all stakeholders in the flood proneareas.7. Introducing appropriate capacitydevelopment interventions for effectiveFM (including education, training, capacitybuilding, research and development, anddocumentation.)8. Improving the compliance regime throughappropriate mechanisms.9. Strengthening the emergency responsecapabilities.XX

Su m m a rEx y o e f c uAc t iv t e i oSu n Po m m i a n r ts yEarlier Initiatives of the Government ofIndiaFollowing the unprecedented floods of 1954,the then Union Minister for Planning, Irrigation andPower placed before Parliament on 3 September1954, the statements on floods which set theobjective of reducing the menace of floods. Later on,in a subsequent statement in Parliament on 27 July1956, the emphasis was laid on doing all that waspossible to contain floods in the country. Since thenthe government has taken various initiatives and setup a number of committees to study the problemand recommend several remedial measures. Themost important ones are the High Level Committeeon Floods (1957), the Ministers Committee on FloodControl (1964), the Rashtriya Barh Ayog (1980) andTask Force on Flood Management/Erosion Control(2004).Institutional FrameworkAs per the constitutional provisions, FM is astate subject and as such the primary responsibilityfor flood management lies with the states. Thecentral government has taken various initiatives andset up a number of organisations dealing with thefloods. The most notable one is the enactment ofthe National Disaster Management Act, December2005 and setting up of the NDMA, which has beenassigned to deal with all types of disasters includingthe floods. The National Executive Committee(NEC) with the Secretary of GOI of the ministry ordepartment having administrative control of thesubject of the DM as the Chairman and Secretariesof other ministries concerned and the Chief of theIntegrated Defence Staff to the Chairman Chiefs ofthe Staff Committee (CISC) as Members, will assistthe NDMA in the discharge of its functions and ensurecompliance of the directions issued by the centralgovernment apart from preparing the NationalDisaster Management Plan. The state governmentsare to set up State Disaster Management Authorities(SDMAs) and State Executive Committees (SECs)to perform similar functions at the state level. Theseare in addition to existing organisations dealing withthe floods in the states.There is a need to set up a central organisationto lay down policy and implement FM measures inconsultation with the states and other stakeholdersas floods are not confined to one state and floodingin one state leads to flooding in adjoining states.Accordingly, it has been proposed to set up RiverBasin Organisations to deal with the managementof water resources at river basin level. It is alsoproposed to set up a National Flood ManagementInstitute (NFMI) at an appropriate location in oneof the flood prone states, to impart training toengineers, administrators, personnel of the policedepartments, Non-governmental Organisations(NGOs) and Community Based Orgnisations(CBOs) etc.Flood Prevention, Preparedness andMitigationFloods being the most common naturaldisaster, people have, out of experience, devisedmany ways of coping with them. However,encroachments into the flood plains over the yearshas aggravated the flood problem and a need totake effective and sustained FM measures hasbeen felt. Various measures, structural and nonstructural,have been taken by the central and stategovernments and as a result, considerable protectionhas been provided to the people. However, moreefforts are required in this direction and there is aneed to put in place a techno-legal regime to makestructures flood-proof and regulate the activities inthe flood plains of the rivers. Flood forecasting andwarning and Decision Support System (DSS) will beestablished on a scientific basis taking into accountthe latest technological developments in the world.XXI

Nat Ex e i c o u n t iv a l e Dis Su a m s m t e a r yMan a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sCapacity Development and Flood ResponseThe central government and the stategovernments are required to take steps for capacitydevelopment for taking effective and sustainablepreventive, preparatory and mitigative measures inpre-floods stage and effective and prompt responseduring- and post-floods stages. Appropriaterecommendations have been made in this regard.Activities for Minimising Flood Risk andLossesThe activities proposed to be undertakenaim at minimising the flood risk and losses and areto be implemented in three phases in addition torecurring activities.Phase-IThese activities include identification andmarking of flood prone areas on maps, preparationof close contour and flood vulnerability maps,formulating plans for expansion and modernisation offlood forecasting and warning systems, identificationof priority flood protection and drainage improvementworks, identification of reservoirs for review andmodification of operation manuals and rule curvesand undertaking special studies on problems ofriver erosion. These will be initiated immediately andefforts will be made to complete them in a phasedmanner with the last of these activities scheduled forcompletion by January 2010.Phase-IIThese include implementation of the schemesfor expansion and modernisation of the floodforecasting and warning network, execution of floodprotection and drainage improvement schemes,modification and adoption of revised reservoiroperation manuals, enactment and enforcementof flood plain zoning regulations and planning andpreparation of Detailed Project Reports (DPRs)for storage reservoirs and implementation ofthe schemes for real-time collection of hydrometeorologicaldata on rivers in Nepal, Bhutan andChina. These activities, which aim at implementationof FMPs, will commence immediately after thecompletion of the link activities of Phase-I and willbe completed by March 2012.Phase-IIIImplementation of activities, which includeconstruction of dams and catchment area treatment(CAT) works in India as well as neighboring countries,is likely to take considerable time as they entail majorenvironmental, social, inter-state and internationalimplications. These need careful study and interactionwith the stakeholders. It is envisaged that all feasibleschemes will be completed by the year 2025.Recurring ActivitiesThese activities which include inspection ofdams, embankments and other structural measures,execution of restoration and strengthening worksand expansion and modernisation of floodforecasting and warning systems, are to be takenon a regular basis for ensuring the effectiveness andsustainability of various measures for minimisingflood risk.The relevance and status of various activitieswill be continuously monitored and reviewed.The activities will be modified, if felt necessary.The preparedness of the central ministries anddepartments concerned and the state governmentswill be reviewed in April/May every year andappropriate corrective measures will be takenbefore the commencement of the monsoon. Apost-monsoon review will be held every year inNovember/December so as to finalise the actionXXII

Su m m a rEx y o e f c uAc t iv t e i oSu n Po m m i a n r ts yplan for preparatory measures to be implementedbefore the onset of the next monsoon.Flood Management PlansIt is expected that based on these guidelinesthe central ministries and departments concernedand the state governments will prepare their FMPswhich will be holistic, participatory, inclusive, ecofriendlyand gender-sensitive in nature and theimplementation of which will result in a flood- resilientIndia. The plans will focus on the community andthe collective efforts of the government and NGOs.Important Milestones in the Road-mapfor the Implementation of the GuidelinesPhase – I (Works to Commence Immediately)• Mechanism for joint formulation of forecastsby the CWC/IMD/NRSA/states-May 2008.• Identification of flood prone areas (villages/blocks/tehsils/districts) and marking onnational, state and district level maps bythe Central Water Commission (CWC)/Ganga Flood Control Commission(GFCC)/Brahmaputra Board and the stategovernments in collaboration with theNational Remote Sensing Agency (NRSA)and Survey of India (SOI) - June 2008.• Finalisation of plans for expansion andmodernisation of flood forecasting andwarning systems and development of DSSfor management of floods by the CWC,India Meteorological Department (IMD)and the state governments - June 2008.• Making an assessment of the areasuffering from drainage congestion by thestate governments- June 2008.• Making an assessment of the area sufferingfrom erosion by the state governments-June 2008.• Categorization of flood disaster by NDMA/SDMAs- June 2008.• Introduction of module on FM in educationin schools/technical institutions/defenceforces/academies, Administrative TrainingInstitutes (ATIs) etc., by the Ministryof Human Resources Development(MHRD), Ministry of Defence (MOD),Ministry of Home Affairs (MHA), stategovernments/SDMAs- June 2008.• Documentation of floods by stategovernments- June 2008.• Identification of reservoirs for reviewingand modifying the operation manuals/rule curves by the state governments inconsultation with the CWC, GFCC andBrahmaputra Board – June 2008.• Amendment of building bye-laws to makefuture buildings in flood prone areas floodsafeby the state governments/SDMAs andULBs-June 2008.• Establishing a mechanism for intra-statecoordination by the state governments/SDMAs-June 2008.• Establishing a mechanism for joint operationfor reservoirs on inter-state rivers by thestate governments/SDMAs – June 2008.• Establishing a system for monitoring oflandslides causing blockages in the rivers,by the CWC/NRSA/ state governments/SDMAs-December 2008.• Preparation of FM plans by the centralministries and departments- December2008.XXIII

Nat Ex e i c o u n t iv a l e Dis Su a m s m t e a r yMan a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d s• Preparation of FM plans by the stategovernments/SDMAs- December 2008.• Notification of regulation for prohibitingreclamation of wetlands and naturaldepressions by the state governments/SDMAs- December 2008.• Carrying out special studies on problemof erosion on the rivers Brahmaputra,Mahananda and Gandak by the NDMA incollaboration with the state governmentsand the CWC/GFCC/Brahmaputra Board– March 2009.• Approval and beginning of implementationof National Flood Mitigation Project by theNDMA/state governments – March 2009.• Construction of flood shelters by the stategovernments/SDMAs - March 2009.• Identification and preparation of proposalsand implementation of priority FloodProtection and Drainage Improvement (FPand DI) works (embankments, anti erosionmeasures, drainage improvement worksand sea walls/coastal protection works)by the state governments in consultationwith the CWC/GFCC/Brahmaputra Board– June 2009.• Preparation of maps to a scale of 1:10,000with contours at an interval of 0.5 m/1.0 mand digital elevation model of the floodprone areas by the NRSA and SOI usingsatellite data and Air-borne Laser TerrainMapping (ALTM) - June 2010.• Preparation of flood vulnerability/floodhazard maps by the CWC, GFCC and theBrahmaputra Board in collaboration withNRSA - January 2010.Phase–II (Works to Commence on Completionof Link Activities in Phase–I)• Institutionalising the role of CBOs, NGOs,Women’s Groups, Youth Organisations,Corporate Houses and other stakeholders in flood response by the SDMAs/Distric Disaster Management Authorities(DDMAs)-June 2008.• Reorganisation /reorientation of fire andemergency services, police forces, CivilDefence Organisations (CDOs), homeguards for flood response by the SDMAs/DDMAs-June 2008.• Raising and operationalising State DisasterResponse Forces (SDRFs) by the SDMAs-June 2008.• Strengthening/restructuring of the GFCCby the Ministry of Water Resources(MOWR)–September 2008.• Strengthening/restructuring of theBrahmaputra Board by the MOWR–September 2008.• Enactment and enforcement of the floodplain zoning regulation by the stategovernments – December 2008.• Developing Integrated Water ResourcesManagement (IWRM) models for intrastaterivers by the state governments-March 2009.• Establishing a system for forecasting offlash floods by IMD - September 2009.• Developing basin wise IWRM models forinter-state rivers by the CWC and stategovernments-September 2009.XXIV

Su m m a rEx y o e f c uAc t iv t e i oSu n Po m m i a n r ts y• Notification of modified operation manuals/rule curves of reservoirs identifiedunder Phase – I and implementation ofarrangements for inflow forecasts by thestate governments and CWC – December2009.• Implementation of the scheme onexpansion and modernisation of the floodforecasting network and development ofthe DSS by the CWC, IMD and the stategovernments-March 2010.• Finalising Memoranda of Understandings(MOUs) and implementation of thenetwork for collection and exchangeof hydro meteorological data includingstrengthening and modernisation ofexisting networks on rivers originating inNepal, Bhutan and China by the MOWRand Ministry of External Affairs (MEA)–March 2010.• Setting up of National Flood ManagementInstitute (NFMI) by the MOWR/NDMA –June2010.• Examining adequacy and if required,increasing the waterways of bridges/culverts under roads and railwaysembankments by the Ministry of Shipping,Road Transport and Highways (MOSRTH),Ministry of Railways (MOR), Ministryof Defence (MOD), National HighwaysAuthority of India (NHAI), BorderRoad Organisation (BRO) and stategovernments-June 2010.• Studies and consultations and finalizationof the proposal for flood insurance by theMOWR in collaboration with the Ministry ofFinance (MOF), insurance companies andstate governments and implementation ofa pilot project – December 2008 and onlarge scale-June 2010.• Preparation of DM plans for reservoirs bythe state governments – December 2010.• Making public utility buildings/installationsflood-safe by the GOI, state governmentsand ULBs/PRIs-December 2010.• Establishing river basin organisations bythe MOWR and state governments-June2010.• Preparation of DPRs for storage reservoirsin India by the state governments/centralorganisations – December 2010 and inBhutan and Nepal-March 2012.• Preparation of DPRs for long-term FP andDI measures such as embankments, antierosionmeasures, drainage improvementworks, and sea walls/coastal protectionworks by the state governments/centralorganisations – December 2008 andcompletion of the works-March 2012.Phase – III (Commences with Completionof Link Activities in Phase – II)• Water shed management, Catchment AreaTreatment (CAT) and afforestation schemesin critical areas by the state governments/central organisations-March 2012.• Construction of storage reservoirs by thestate governments/central organisations –December 2017.• Negotiations with Nepal and Bhutan forconstruction of reservoirs, watershedmanagement, CAT and afforestationmeasures in their territories and preparationof DPRs and implementation of theschemes by the GOI and the governmentsof Nepal and Bhutan- December 2025.XXV

Nat Ex e i c o u n t iv a l e Dis Su a m s m t e a r yMan a g e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sRecurring Activities• Inspections of dams, embankmentsand other structural measures by thestate governments – twice every year,once before monsoon (April-May) andsecond time after monsoon (November-December).• Restoration/strengthening works by thestate governments–every year.• Monitoring of structural measures–by thestate governments–throughout the yearwith special attention during monsoon.• Expansion and modernisation of floodforecasting and warning network andDSS for flood management as and whenrequired.Important Aspects of the GuidelinesWhile all the activities under the Guidelinesare important for minimising flood risk and loss oflives and properties, the issues which need specialattention are the following:• Indiscriminate encroachment of the floodplains of the rivers and waterways of naturaland man-made drainage channels andreclamation of ponds, chaurs, lakes anddepressions have led to increased floodrisk to lives and properties. The regulationof developmental activities in these areasand an appropriate techno-legal regimebased on the model bill circulated by theCWC, is an urgent necessity.• The change in priority in use of storagespace of the multi-purpose reservoirsfor irrigation, hydropower, drinking andindustrial water supply by ignoring floodmoderation has led to large scale flooding.The operation manuals and rule curves of allthe reservoirs will be reviewed and modifiedto give priority to flood moderation.• Flood forecasting and warning is anon-structural measure, which aimsat minimising losses and enabling theagencies concerned to plan rescue andrelief measures. The efforts of the CWC,IMD, NRSA and the state governments willbe integrated and a mechanism developedwherein during the monsoon, therepresentatives of all these organisationsand the basin states work together informulation and dissemination of reliableforecasts and warning.The national vision is to minimise thevulnerability to floods and the consequent loss oflives, livelihood systems, property and damageto infrastructure and public utilities and to build asafer India by developing a holistic, proactive, multidisasterand technology driven strategy for DM.This is to be achieved through a combination ofpreventive, mitigative and preparatory measures togenerate a prompt and efficient response after theoccurrence of floods. The entire process will focuson the community and will be sustained through thecollective efforts of the government and NGOs.The value of these guidelines will lie essentially,in the efficacy of the FMPs that will consequentlybe made and implemented by the central ministriesand departments and the state governments.The central government and the stategovernments will provide necessary resources,both financial and managerial for creating adequatestructures at all levels to take measures required tominimise risk and vulnerability to floodsFloods and famines have ravaged mankindfrom time immemorial and a vast store of knowledgeXXVI

Su m m a rEx y o e f c uAc t iv t e i oSu n Po m m i a n r ts yand experience is available on handling thesedisasters. An attempt has been made in theseGuidelines to build on this precious heritage while,simultaneously, factoring in the benefits of moderntechnology and scientific advantages apart fromemphasising the value of concerted action andsustained efforts at mitigation.Schedule of Completion of ActionPointsThe time lines proposed for the implementationof various activities in the guidelines are consideredboth important and desirable , especially in thecase of those non-structural measures for whichno clearances are required from central or otheragencies. Precise schedules for structural measureswill, however, be evolved in the FMPs that will followat the level of central ministries/states duly takinginto account the availability of financial, technicaland managerial resources. In case of compellingcircumstances warranting a change, consultationwith NDMA will be undertaken, well in advance, forany adjustment, on a case to case basis.XXVII

Su m m a r y o f Ac t i o n Po i n tsOverview of the GuidlinesGeneralIt has been recognised that, while floodscannot be prevented, they can certainly be managedto minimise loss of lives, livelihood systems, propertyand damage to infrastructure and public utilities.Various measures for management of floods willultimately lead to reduction in vulnerability to floods.These guidelines on FM have been prepared keepingthis reality in mind. Sustained efforts are required toaddress the problem to reduce the impact of floodsin the short term and flood risk in the medium andthe long term. So far the response to floods hasbeen reactive in nature and has focused on rescueand relief in the post-flood situation. Preparatory,preventive and mitigative aspects of the FM havenot received due attention. With the enactment ofthe DM Act, 2005 and the constitution of the NDMA,there has been a paradigm shift from the reactiveresponse-centric regime where most of the effortsand resources were used for providing emergencyresponse and relief after floods, to an approachthat lays greater emphasis on efforts and resourcesfor strengthening preparedness and mitigationthrough appropriate intervention apart fromconsolidating capacity for emergency response.This shift in approach is expected to be achievedwith the active participation of the communitiesand the other stakeholders in all aspects of FM.The guidelines cover all aspects of FM and aimat increasing the efficacy of the FMPs that will beprepared by various key agencies including thecentral ministries and departments concerned,state governments, districts authorities, local bodies(both rural and urban), including PRIs, metropolitandevelopment authorities, municipal corporations,municipal councils etc. The implementation of theFMPs prepared by them will result in a safer countrycapable of managing the floods effectively and thuspromote the economic development of the floodprone areas in the country.Structure of the GuidelinesThese Guidelines have been divided into 10chapters.Floods: Status and ContextThe first chapter is general in nature. Thenature and extent of the flood problem in the country,various initiatives taken by the GOI in managingthem, the actions required for a reasonable andreliable assessment of the problem and collectionof the data for the studies leading to systematic andscientific planning and implementation of variousinterventions to manage floods are briefly describedtherein.Institutional Framework and FinancialArrangementsThe second chapter titled ‘InstitutionalFramework and Financial Arrangements’ outlinesthe existing and proposed institutions to deal withthe problem of floods and manage them effectively.It also deals with the financial system in place andarrangements that are proposed for meeting therequirement of funds for implementation of thevarious proposed interventions and FM measures,both structural and non-structural.Prevention, Preparedness and MitigationThe third chapter on flood prevention, prepared-XXIX

Nat Ov e i r o v n i e a w l Dis o f a t s h t e r Gu Ma id l n i a n g es e m e n t Gu id e l i n es: Ma n a g e m e n t Of Flo o d sness and mitigation presents an outline of the varioustypes of structural and non-structural measuresfor managing the floods. Action plans for their implementationhave also been prepared.Flood Forecasting and WarningFlood forecasting and warning (FF and W)is an important measure for minimising loss oflives and properties and assists the authoritiesconcerned, in prompt and effective responseduring and after floods. These aspects have beendealt with in the fourth chapter and the action planfor the strengthening and modernisation of existingFF and W network as well as development of a DSSfor management of floods has been drawn.Dams, Reservoirs and Other Water StoragesDams, reservoirs and other water storages,both natural and man-made, are an effective meansfor reducing the flood peaks in the rivers. Theimportant role played by them in flood moderationand comprehensive mechanism for operation andregulation of reservoirs, which takes into accountthe international, inter-state and inter-regionalaspects, have been dealt with in the fifth chapter. Aslarge dams and reservoirs have potential for hugedamage guidelines for ensuring safety thereof havealso been detailed therein.Regulation and EnforcementUnplanned and unregulated developmentalactivities in the flood plains of the rivers andencroachments into the waterways have led toincrease in flood losses as well as flood risk. Thecolossal loss of lives and property due to theflooding of the towns and cities and the areas whichget flooded almost every alternate year is a recentphenomenon and effective steps are required forregulating unplanned growth in the flood plains andpreventing encroachment in the waterways. Theseaspects have been dealt with in the sixth chaptertitled ‘Regulation and Enforcement’. The measuresfor making the structures and buildings capable ofwithstanding the floods and serving as temporaryshelters for the flood affected people have alsobeen dealt with in this chapter. The coordinationrequired among the various agencies and stategovernments for effective FM in inter-state rivers andamong various stakeholders for effective responsehas also been highlighted.Capacity DevelopmentThe seventh chapter on capacity developmentcovers the aspects of education, training, researchand development and documentation with respectto FM. The proposals for strengthening the existingsystems are also given therein. An action plan forcapacity development has also been formulated.Flood ResponseAn effective and prompt response to floodsis very important for minimising the loss of livesand properties and providing immediate reliefto the affected people. The role of communitiesand NGOs is vital in search, rescue and reliefoperations. Immediate medical assistance tothe affected people and steps for prevention ofoutbreak of epidemics after the floods are essentialcomponents of flood response. As per provisions ofthe DM Act, 2005, the GOI has constituted NationalDisaster Response Force (NDRF) for the purpose ofspecialised response to disasters. Over and abovethis, a mechanism for coordinated approach andefforts are required for effective response. All theseaspects have been covered in the eighth chaptertitled ‘Flood Response’.XXX

Su Ov m e m r v a i r e y w o f Ac t h e t iGu o n Po id l i n es tsImplementation of Guidelines-FloodManagement PlansThe NEC has been entrusted with theresponsibility of preparing the National Plan forDM and getting it approved by the NDMA. Theseguidelines on FM will assist various stakeholders i.e.central ministries/ departments, state governments/SDMAs, PRIs, and ULBs, DDMAs, NGOs and thecommunities at large, in the preparation of FMPswhich, in turn, will form the basis for preparing thenational flood management and overall DM plan.The factors to be taken into account while preparingFMPs and aspects for implementation thereof havebeen dealt with in the ninth chapter.Summary of Action PointsThe last chapter of the Guidelines lists outvarious action points to be implemented by centralministries and departments concerned and thestate governments/SDMAs/DDMAs. There are,in all, 94 action points which will assist them inthe formulation of FMPs and the implementationthereof will result in effective management of floodsin India.XXXI

Flo o d s-Stat u s a n d Co n t e x t1Floods-Status and Context1.1 The Flood Hazard1.1.1 Floods-A Natural DisasterFloods have been recurrent phenomena in Indiafrom time immemorial. Almost every year floods ofvarying magnitude affect some parts of the countryor the other. Different regions of the country havedifferent climates and rainfall patterns and, therefore,while some parts face devastating floods, otherparts may, at the same time, experience droughtconditions. The monsoon regime is a regularphenomenon. Year-to-year variations occur withregard to the onset of the monsoon, its progressover the Indian landmass, and the amount of rainfalldistribution. In some years the variation is quitesignificant. Nevertheless, there is a fundamentalregularity and dependability about the monsoonthat sets the seasonal rhythms of life, although italso causes unfortunate losses across much of thispart of the world. The annual precipitation includingsnowfall over India is estimated at 4,00,000 crorecubic meters (4,000 Billion Cubic Meters [BCM]) withthe seasonal rainfall in the monsoons being of theorder of 3,00,000 crore cubic meters (3,000 BCM).The Indian subcontinent receives maximum rainfallduring the south-west (SW) monsoon (summermonsoon) for a period of about 100 days, startingfrom the first week of June to the end September.Normal area-weighed rainfall over the Indian landmass is 89 cms during this period. Around 80 percent of the annual total rainfall over India occursin the SW monsoon season. The balance (20 percent) rainfall is mainly due to convective activitiesin the pre-monsoon period (March-June) in theform of local storms/thunderstorms, cyclones andpost-monsoon cyclones (October-mid December).Winter rains/snowfall over the northern part of Indiacaused by western disturbances and the northeast(NE) monsoon in the state of Tamil Nadu andadjoining region also contribute to the total rainfall.The normal annual rainfall varies from less than 600mms in the north-western part to over 2,500 mmsin the north-eastern part. It varies from about 1,200mms in the north to 2,900 mms in the south.1.1.2 Causes of FloodsInadequate capacity of the rivers to containwithin their banks the high flows brought down fromthe upper catchment areas following heavy rainfall,leads to flooding. The tendency to occupy theflood plains has been a serious concern over theyears. Because of the varying rainfall distribution,many a time, areas which are not traditionallyprone to floods also experience severe inundation.Areas with poor drainage facilities get flooded byaccumulation of water from heavy rainfall. Excessirrigation water applied to command areas andincrease in ground water levels due to seepagefrom canals and irrigated fields also are factorsthat accentuate the problem of water-logging. Theproblem is exacerbated by factors such as silting ofthe riverbeds, reduction in the carrying capacity ofriver channels, erosion of beds and banks leadingto changes in river courses, obstructions to flowdue to landslides, synchronisation of floods in themain and tributary rivers and retardation due to tidaleffects.1

Nat i o n a l Di s a s t e r Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d s1.1.3 Flood DimensionsFloods have different dimensions - inundationdue to spills over the banks, drainage congestiondue to poor drainage characteristics and erosiondue to changes in water courses.1.1.4 Flood Prone Area’s EstimateAccording to the estimate of the NationalCommission on Floods, the area prone to floodsin the country is of the order of 400 lakh hectares.It is considered that 80 per cent of it, i.e., 320 lakhhectares can be provided with a reasonable degreeof protection.1.2 Regions in the Country Prone toFloodsIndia can be broadly divided into the followingfour regions for a study of flood hazard. Inaddition the Andaman and Nicobar Islands andLakshadweep have peculiar characteristics, whichresult in drainage congestion, flooding and erosionin coastal areas, as described in Para 1.3.1.2.1 The Brahmaputra River Region:This region consists of the rivers Brahmaputraand Barak and their tributaries, and covers thestates of Assam, Arunachal Pradesh, Meghalaya,Mizoram, Manipur, Tripura, Nagaland, Sikkim andthe northern parts of West Bengal. The catchmentsof these rivers receive very heavy rainfall rangingfrom 1100 mms. to 6350 mms which occurs mostlyduring the months of May-June to September. Asa result, floods in this region are severe and quitefrequent. Further the hills, where these riversoriginate, are fragile and susceptible to erosion andthereby cause exceptionally high silt discharge inthe rivers. In addition, the region is subject to severeand frequent earthquakes, which cause numerouslandslides in the hills and upset the regime of therivers. The predominant problems in this region arecloud bursts followed by flash floods, soil erosionin the watershed and bank erosion along the rivers,flooding caused by the spilling of rivers over theirbanks, drainage congestion and the tendency ofsome of the rivers to change their courses. Theplain areas of the region suffer from the inundationcaused by spilling of the Brahmaputra.1.2.2 The Ganga River Region:The river Ganga has many tributaries, theimportant ones being Yamuna, Sone, Ghaghra,Raphti, Gandak, Burhi Gandak, Bagmati, KamlaBalan, Adhwara group of rivers, Kosi and theMahananda. It covers the states of Uttarakhand,Uttar Pradesh, Jharkand, Bihar, south and centralparts of West Bengal, Punjab, parts of Haryana,Himachal Pradesh, Rajasthan, Madhya Pradeshand Delhi. The normal annual rainfall in this regionvaries from about 600 mms to 1900 mms of whichmore than 80 per cent occurs during the SWmonsoon. The rainfall increases from west to eastand from south to north. The flood problem is mostlyconfined to the areas on the northern bank of theriver Ganga. Most of the damage is caused by thenorthern tributaries of the Ganga. They spill overtheir banks and change their courses frequently.Even though the Ganga is a mighty river carryinghuge discharges of 57,000 to 85,000 cubic meterper second, the inundation and erosion problemsare confined to relatively few places. In general,the flood problem increases from the west to theeast and from south to north. In the north-westernparts of the region, there is the problem of drainagecongestion. The drainage problem also exists inthe southern parts of West Bengal. The floodingand erosion problem is serious in the states ofUttar Pradesh, Bihar and West Bengal. In recentyears, the states of Rajasthan and Madhya Pradeshhave also experienced some incidents of heavyfloods. The problem of flooding and drainagecongestion is getting accentuated due to large-2

Flo o d s-Stat u s a n d Co n t e x tscale encroachment of flood plains of the rivers forhabitation and various developmental activities.1.2.3 The North-west River Region:The main rivers in this region are the Indus,Sutlej, Beas, Ravi, Chenab and Jhelum. Theserivers are the tributaries of the Indus. They carryquite substantial discharges during the monsoonand also large volumes of sediment. They changetheir courses frequently and leave behind vasttracts of sandy waste. This region covers thestates of Jammu and Kashmir, Punjab and partsof Himachal Pradesh, Haryana and Rajasthan.Compared to the Ganga and the Brahmaputra riverregions, the flood problem is relatively less in thisregion. The major problem is that of inadequatesurface drainage which causes inundation andwater-logging over vast areas. Indiscriminate useof water for irrigation and development of low-lyingareas and depressions has created problem ofdrainage congestion and water logging.1.2.4 The Central India and Deccan Region:Important rivers in this region are the Narmada,Tapi, Mahanadi, Godavari, Krishna and Cauvery.These rivers have mostly well defined and stablecourses. They have adequate capacities within thenatural banks to carry the flood discharge except inthe delta area. The lower reaches of the importantrivers on the east coast have been embanked, thuslargely eliminating the flood problem. However theembankments need to be raised and strengthenedto latest standards to continue to provide protectionagainst floods and erosion. This region covers thestates of Andhra Pradesh, Karnataka, Tamil Nadu,Kerala, Orissa, Maharashtra, Gujarat and parts ofMadhya Pradesh. The region does not have seriousflood problem except that some of the rivers inOrissa State namely Mahanadi, Brahmini, Baitarni,and Subarnarekha are prone to floods everyyear. The delta and coastal areas of the states onthe east coast periodically face flood and drainageproblems in the wake of monsoon depression andcyclonic storms. The problem is accentuated whenthe floods synchronize with high tide. The riversTapi and Narmada, are occasionally in high floodsaffecting areas in the lower reaches in Gujarat.1.3 Flooding/Drainage Congestion/Erosion in Andaman and NicobarIslands and LakshadweepThe Andaman and Nicobar archipelago consistsof 572 islands, islets and coral rocks spreading overa stretch of 726 Km in the Bay of Bengal, out ofwhich, 38 are inhabited. The population has settledin the plain table areas all along the coastline. Theislands may be categorised as heavy rainfall areawith average annual rainfall of 318 cms. The coastlineof the islands is deeply indented and broken bycreeks, backwaters and lagoons on both sides.When incessant rains synchronise with high tide,the settlements along the coastline and creeks gounder water. Some areas/islands have poor naturaldrainage caused by peculiar geographical featuresand soil characteristics. These are vulnerable toflooding in case of heavy downpour. Storm surges,associated with cyclones, also cause inundationand erosion in areas along the sea coast.Lakshadweep, a group of Islands, is located200-300 km off the coast of Kerala in the Arabiansea. The total geographical area is 32 sq km. Out ofthe 36 islands, 11 are inhabited. The average annualrainfall varies from 1100-1850 mm. The islands areaffected by sea erosion and inundation in times ofhigh tides.1.4 Flash FloodsFlash floods are characterised by very fastrise and recession of flow of small volume and high3

Nat i o n a l Di s a s t e r Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d sdischarge, which causes high damages becauseof suddenness. This occurs in hilly and not toohilly regions and sloping lands where heavy rainfalland thunderstorms or cloudbursts are common.Depression and cyclonic storms in the coastal areasof Orissa, West Bengal, Andhra Pradesh, Karnataka,and Tamil Nadu also cause flash floods. ArunachalPradesh, Assam, Orissa, Himachal Pradesh,Uttarakhand, the Western Ghats in Maharastra andKerala are more vulnerable to flash floods causedby cloud bursts. Sudden release of waters fromupstream reservoirs, breaches in landslide damsand embankments on the banks of the rivers leadsto disastrous floods. Severe floods in HimachalPradesh in August 2000 and June 2005, and inArunachal Pradesh in 2000 are a few examples offlash floods caused by breaches in landslide dams.Floods in Assam, Bihar, Uttar Pradesh, Orissa andAndhra Pradesh are generally caused by breachesin embankments. Incidents of high intensity rainfallover short durations, which cause flash floods evenin the area where rains are rare phenomena, are onthe rise and the problem needs to be tackled in ascientific manner.i) Flash floods forecasting and warningsystems using Doppler radars will beinstalled by the India MeteorologicalDepartment (IMD) by September 2009.ii)As a preventive measure, the inhabitationof low-lying areas along the rivers, nallasand drains will be regulated by the stategovernments/State Disaster ManagementAuthorities (SDMAs)/District DisasterManagement Authorities (DDMAs).iii) Landslides and blockages in rivers will bemonitored by the Central Water Commission(CWC)/National Remote Sensing Agency(NRSA)/state governments/SDMAs withthe help of satellite imageries and in caseof their occurrence, warning systems willbe set up to reduce losses. If possible,appropriate structural measures to eliminatethe damage in case of sudden collapse ofthe blockages will also be taken up.1.5 Area Prone to FloodsThe details of annual damage due to floodsare available from the year 1953 onwards. Themaximum area affected due to floods in any one ofthe years under consideration which has not beeneffectively protected, is taken as the area liableto flood in that state. Considering all such figuresfor all the States for the period from 1953 to 1978,the Rashtriya Barh Ayog (RBA) has assessed thetotal area liable to flood in the country as 400 lakhhectares. About 80 per cent of this, i.e., 320 lakhhectares areas could be provided with reasonabledegree of protection. The severity of the problemcan be appreciated that this area constitutes about1/8th of the total geographical area of the country.In recent years, areas not prone to floods are alsogetting flooded. An indicative map showing floodprone areas in India is given in Annex– I/I. The Statewisebreak up of areas prone to floods is given inAnnex– I/II. In recent years, areas once consideredfree from floods are also getting flooded.The Ministry of Water Resources (MOWR) andthe state governments/SDMAs/DDMAs concernedwill urgently undertake identification of areas proneto floods along with names of villages/talukas ortehsils/districts in a scientific manner in collaborationwith the NRSA and Survey of India( SOI).1.6 Damages Caused by FloodsMore than the loss of life and damage toproperty, the sense of insecurity and fear in theminds of people living in the flood plains is a causeof great concern. The after effects of floods suchas the agony of survivors, spread of epidemics, nonavailability of drinking water, essential commoditiesand medicines, loss of the dwellings etc. makefloods the most feared among the natural disasters4

Flo o d s-Stat u s a n d Co n t e x tfaced by mankind. Heavy flood damages hadoccurred in the country during the monsoons of theyears 1955, 1971, 1973, 1977, 1978, 1980, 1984,1988, 1989, 1998 and 2004. Highlights of the flooddamages are given below:Area affected(in lakh hectares)Crop area affected(in lakh hectares)Population affected(in crores)Houses damaged(in lakhs)MaximumAverage175 (1978) 75.1101.5 (1988) 35.17.045 (1978) 3.28435.1 (1978) 12.2Cattle heads lost 618248 (1979) 94830Human lives lost 11316 (1977) 1587Damage to publicutilities (in Rs.crores)Total damages (inRs. crores)5604.46 (1998) 820.678864.54 (1998) 1805.18A statement showing flood damage during the1953 to 2005 is given in Annex– I/III.There is lack of documentation on floodsand flood damage. The state governments willensure that each and every flood event is properlydocumented and flood damage assessment ismade on a scientific basis with the help of latesttechnological advancements in the field of remotesensing through satellites etc.1.7 Drainage Congestion and WaterloggingAn area is said to be waterlogged when thewater table rises to an extent that the soil pores in theroot zone of a crop become saturated, resulting inrestriction of the normal circulation of air, decline inthe level of oxygen and increase in the level of carbondioxide. Drainage congestion and consequentwater-logging may be either due to surface floodingor rise in water table, as a result of excess inflowas compared to outflow which may be either onaccount of excess rain and/ or over-irrigation.Various agencies/ committees/commissions havestudied the problem and assessed the area liableto water-logging in the country. The IrrigationCommission (1972) estimated the total arealiable to water-logging in the country as 48.4 lakhhectares. The National Commission on Agriculture(1976) estimated total waterlogged area as 60 lakhhectares. The Ministry of Agriculture (MOA) made areassessment in 1984-85 and revised the estimateof the area suffering from drainage congestion andwater logging as 85.3 lakh hectares. As per latestfigures reported by the states, the total area proneto water logging/drainage congestion is 90 lakhhectares. State wise breakup is at Annex-I/IV.The MOWR along with the MOA and the stategovernments will, by the end of March 2008, makea scientific assessment of the area suffering fromdrainage congestion and water-logging.1.8 River ErosionThe erosion of banks by the rivers and theconsequent loss of life and property are majorproblems. Rivers tend to erode their beds andbanks in the hilly regions resulting in the deepeningand widening of rivers. When a river enters the floodplains, it shows a tendency to braid and developnumber of channels causing silting of the riverbed,change in course and bank erosion. In the plains, ariver shows a meandering tendency with meandersmoving downstream causing erosion on theconcave and deposition on the convex side and cutoffs. This causes large-scale bank erosion. In deltaicreaches near the outfall into sea, the river dividesitself into a number of branches resulting in bankerosion. Thus bank erosion and consequent loss5

Nat i o n a l Di s a s t e r Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d sof land and properties is a constant phenomenonall along the course of the river. The study of theproblem and remedial measures for training of theriver into defined channel has gained importancedue to increase in population pressure and wantof alternative sources of livelihood for the peoplewhose land and properties are lost to rivers.The MOWR along with the state governmentswill undertake river-wise studies of the problem oferosion and estimate the area liable to erosion byrivers, identify vulnerable spots and plan remedialmeasures to protect such areas. Latest technologicaldevelopments for low cost measures, such asreinforced cement concrete (RCC) porcupines, willbe considered while planning such measures.1.9 Urban FloodingHistorically, civilisations have developed alongriver courses. Towns have grown faster on accountof increase/influx of population. Owing to lack ofregulation/control, there has been considerableencroachment of flood plains. Damages becomeserious as a result of inadequate capacity ofstorm water drainage system. The problem ofurban flooding has become serious as evidencedby the floods in Mumbai, Bangalore, Chennai,Vadodara, Ahmedabad, Surat, Kolkata, Hyderabad,Visakhapatnam and Vijayawada. The NationalDisaster Management Authority (NDMA) has, inrecognition of the dimensions, this phenomenonhas acquired, identified urban flooding as a distinctdiscipline, in regard to the management of whichseparate guidelines will be formulated and issuedsoon.1.10 Littoral Drift in River EstuariesThe flood problems of deltaic regions areattributed to various causes like flatter slope of drainsand back flow due to tides. Littoral drift of sand inthe form of sand dunes formation and consequentchoking of outfalls of rivers into the sea is one of thecauses for flood in deltaic regions. The Biccavoleand Tulabhaga drains in the Godavari eastern deltaand the Panchanadi, Lower Kowsika, Vasalatippaand Kunavaram drains in Godavari central delta aresome of the problem reaches.Straight cuts into the sea with a view to makethe slope steeper in outfall reaches are sometimesconsidered as an effective measure to overcomethe problem. These measures must be taken onlyafter an intensive study on the mathematical andhydraulic models is carried out so as to avoid therisk of increased flooding in case of high tides,cyclonic storms and tsunamis.1.11 Snow-melt/Glacial Lake Outbursts,Formation and Subsequent Burstingof Landslide DamsSnowmelt is a gradual process and usuallydoes not cause major floods. Glacial melt is usuallyslower than snowmelt and is not capable of causingsevere flood. But sometimes glaciers hold largequantity of bounded water, which may be suddenlyreleased with melting of ice block resulting intoGlacial Lake Outburst Floods (GLOFs). The riversoriginating from the Himalayas in the northernpart of the country, which are also fed by snowmeltfrom glaciers, are prone to flash floods. In1929, the outburst of the Chong Khundam glacier(Karakoram) caused a flood peak of over 22,000m3 / second at Attock. Glacial outburst is one of thesuspected reasons for the flash flood experiencedin Sutlej River on the night intervening 31July and1 August 2000. The blockage in the course of theParechu in China (Tibet) caused by the landslide in2004 gave way in 2005 and caused severe floodingand damage to infrastructure in Himachal Pradesh.While the guidelines for landslides will be issuedby the NDMA separately the MOWR/CWC and thestate governments will, in collaboration with NRSA,6

Flo o d s-Stat u s a n d Co n t e x tmonitor the hilly areas liable to snow avalanches,blockages in rivers due to landslides etc for suchevents and in the case of their occurrences, installwarning systems for reducing the loss of life andproperty in the areas likely to be affected. They willalso take remedial structural measures, if feasible,for averting the danger.1.12 Monsoon/Cyclones/Cyclonic CirculationsFloods in the Indian river basins are also causedby rainstorms which are generally associatedwith low-pressure systems like well-marked lows,depressions or tropical cyclones. During the past100 years, over 1000 tropical cyclones, depressionsand low-pressure systems originating in the Bay ofBengal and Arabian Sea moved across the Indiansubcontinent. Nearly 466 cyclones of which about40 per cent were severe, affected the country duringthe past century. The passage of such storms inquick succession over a river basin invariably leadsto severe floods. Parts of the country, mainly thecoastal areas of Andhra Pradesh, Assam, Orissa,Tamil Nadu and West Bengal, experience suchcyclones leading to extensive flooding. The floodcaused by the super cyclone combined with a hugestorm surge during October 1999 in the coastal beltof Orissa was the worst in recent history.Guidelines on this subject will be issuedseparately by the NDMA.1.13 CloudburstsDue to peculiar climatic conditions, some partsof the country experience sudden unprecedentedheavy rain known as cloud bursts. Principal rainbearing meteorological systems that lead to shortduration heavy rainfall and which may also causefloods are:(i) monsoon depressions.(ii) fluctuations in the intensity and locationof the monsoon trough over the plains ofIndia.(iii) a mid-troposphere circulation/low pressureoff the coasts of India particularly overGujarat.(iv) off shore vortices.Apart from these, land-based lows ordepressions during monsoon cyclones andpersistence of low pressure areas over adjoiningcoastal areas may sometimes lead to floods.Hilly areas in Himachal Pradesh, Uttarakhand,the northern areas of West Bengal, Sikkim,Arunachal Pradesh, Manipur, Mizoram, Meghalaya,Nagaland and Tripura and the coastal areas in thestates of West Bengal, Orissa, Andhra Pradesh,Tamil Nadu, Karnataka, Kerala, Maharashtra andGujarat and Union Territories (UTs) of Andamanand Nicobar Islands and Lakhshadweep are moreprone to such phenomena. Such events have alsooccurred in the states of Rajasthan, Chattisgarh,Madhya Pradesh and Uttar Pradesh.The IMD and CWC in association withstate governments will develop forecasting andwarning systems in areas prone to floods causedby cloudbursts.1.14 International Dimensions of theFlood HazardThe rivers originating in China, Nepal and Bhutancause severe floods in the states of Uttar Pradesh,Bihar, West Bengal, Arunachal Pradesh and Assam.For flood management (FM), cooperation with theneighbouring countries viz. China(Tibet), Nepal andBhutan is essential.Negotiations upon issues such as establishmentof hydro-meteorological stations and transmission of7

Nat i o n a l Di s a s t e r Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d stheir data to India on a real time basis, afforestation,catchment area treatment (CAT) works andconstruction of reservoirs will be expedited by theMOWR and Ministry of External Affairs (MEA).1.15 Past Initiatives of the Governmentof IndiaThe Government of India (GOI) has taken anumber of initiatives in the field of FM and appointedmany committees/working groups/task forces fromtime to time to look into the problem of floods andsuggest remedial measures for their management.It has also issued a number of policy statementsin this regard. Some of the important committees/working groups/task forces appointed and the policystatements made by the GOI are listed as follows:• The Policy Statement – 1954 andSupplementary Statement -1956.• The High Level Committee on Floods –1957 and Policy Statement of – 1958.• The Ministers’ Committee on Flood Control- 1964.• The Working Groups on Flood Control forthe Five-Year Plans.• The Rashtriya Barh Ayog – 1980.• The Pritam Singh Committee Report –1980.• The National Water Policy -1987.• The Report of the Committee on FloodManagement in the North-Eastern States– 1988.• The Report of the Committee on FM in thestates of Bihar, West Bengal, Uttar Pradeshand Orissa – 1988.• The Regional Task Forces -1996.• The Experts’ Committee for Bank ErosionProblem of River Ganga-Padma in theDistricts of Malda and Murshidabad inWest Bengal -1996.• The National Commission for IntegratedWater Resources Development Plan-1999.• The Expert Group for Flood Managementin Uttar Pradesh and Bihar – 1999.• The Working Group on Flood ControlProgramme for the Tenth Five-Year Plan –2001.• Report of the Committee on Silting ofRivers in India – 2002.• National Water Policy – 2002.• The Expert Committee to Review theImplementation of the Recommendationsof Rashtriya Barh Ayog – 2003.• The Committee for Identification of criticalAnti-Erosion Schemes of Ganga BasinStates for Inclusion in centrally sponsoredscheme to be implemented during TenthPlan – 2003.• Report of the Technical Group on Floodand Erosion Problems of North Bengal –July 2004.• The Task Force on Flood Management/Erosion Control -2004.While the Policy Statement -1954 was the firstmajor initiative by the GOI taken up after the floods of1954, other important committees appointed by theGovernment of India are the High Level Committee8

Flo o d s-Stat u s a n d Co n t e x ton Floods-1957, the Ministers’ Committee on FloodControl-1964, the Rashtriya Barh Ayog-1980 and theTask Force on Flood Management/Erosion Control-2004. Brief particulars relating to the reports ofthese Committees are in Annex-I/V1.16 Implementation of the Recommendationsof the Experts’ Committees/WorkingGroups/TaskForcesThe implementation of the recommendationsof various committees/ working groups/task forceshas been rather slow and action on a majority ofthem has not been taken or at best taken partiallydue to various administrative, social, financial andpolitical reasons. After the Policy Statement of1954 and Supplementary Statement of 1956, HighLevel Committee on Flood Control-1957, Ministers’Committee on Floods-1964 were the importantinitiatives taken by the GOI. The GOI set up the RBAin 1976 to study in depth the approach towardsprogrammes of flood control measures, theireffectiveness and recommend future measuresand the National policy to be followed so as toprogressively mitigate the resultant damage fromfloods. The RBA, looked into the problem of floodsin the whole of the country in a most comprehensivemanner. It took into account the recommendationsof the various past committees and the status ofimplementation thereof and submitted its report in1980. The report contained 207 recommendations,implementation of which has been reviewed fromtime to time. The latest one was by the Experts’Committee under the Chairmanship of Shri. R.Rangachari former Member, CWC in 2003. Itnoted that the implementation has been slow andidentified 40 recommendations, which need to befollowed. These are given in Annex-I/VI. The briefdetails of the most important ones, which need tobe followed, are as follows:-• Flood damage assessment be made on arealistic and scientific basis and recordedbasin-/sub-basin-wise.• Performance evaluation of a large numberof FM schemes be carried out and theirimpact on the socio economic developmentof the protected area be assessed.• The use of flood plains be regulated anda suitable legislation for flood plain zoningbe enacted and enforced.• Water Resources planning and constructionbe basin wise and basin organisations beset up.• Storages in various forms is an importantcomponent of the package of measuresfor FM and flood space in reservoirs beprovided to the extent feasible and floodcontrol not relegated to a non- priorityactivity as against competing waterrequirements for hydropower and Irrigationpurposes.• International dimensions of problem offloods be kept in mind and the GOI shouldplay an important role in the matter.• Requisite funds be made available forconstruction of new and maintenance ofexisting works.• Emphasis be laid on research, educationand training on FM.The Task Force on Flood Control/ErosionControl considered the status of implementationof recommendations of all the past committees/working groups/ task forces and submitted itsreport to the MOWR in December 2004. The MOWRis in the process of taking appropriate action on itsvarious recommendations.9

Nat i o n a l Di s a s t e r Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d sThe MOWR and the CWC will, in collaborationwith the state governments, closely monitor theimplementation of the recommendations of theExperts Committee to review the implementation ofthe recommendations of the RBA-2003 and the TaskForce on Flood Management/Erosion Control-2004.1.17 Achievements in Respect of FloodManagement.1.17.1 Structural MeasuresSince 1954, 33,928 km of new embankmentsand 38,809 km of drainage channels have beenconstructed in the country. In addition, 2,450town protection works have been completed and4,721 villages have been raised above flood levels.Barring occasional breaches in embankments,these works have given reasonable protection to anarea of about 18.22 million hectares. The state-wiseprogress of FM works is given in Annex-I/VII1.17.2 Non-structural MeasuresThe MOWR and CWC had circulated in 1975,the draft bill for flood plain zoning regulations to thestate governments for enactment and enforcement.However their response is not satisfactory. Rajasthanand Manipur are the only states which have passedthe bill but steps for its enforcement have not beentaken.The CWC has established a flood forecastingsystem comprising 175 stations on all major interstaterivers and is implementing the scheme forits modernisation and expansion. The MOWR hadlaunched a centrally sponsored scheme for raisingof villages/construction of ring bunds etc, in U.P. andBihar. The scheme was, however, discontinued in theTenth Plan pending evaluation of the performanceof the works executed under it.1.18 Gaps in Flood Management• Non-availability of close contour maps anddigital elevation models of flood proneareas are impediments to make reliableforecasts of the area likely to be inundatedcorresponding to expected river waterlevels.• Flood forecasting and warning (FF and W)network of the CWC, though developedon scientific basis, does not cover all theflood prone rivers and rivulets. Most of thestate governments do not have their ownreliable FF and W networks.• Even the FF and W network of the CWC ismostly based on hydro-meteorological datarecorded by observers and communicatedby wireless and/or telephone. Very few riverbasins have been covered with automaticsensors for observations and telemetrysystem for communication of data.• Though web-based system ofcommunication of forecasts has beendeveloped by the CWC in the last two-threeyears, it is yet to be made fully functional.• Flood plain zoning regulations have notbeen enacted and enforced by most of thestates, although a draft bill was circulatedto them by the MOWR and CWC in 1975and in spite of such recommendations ofvarious committees/ task forces/ workinggroups etc.• Implementation of the flood proofingmeasures such as raising of villages,constructions of floods shelters, makingpublic utility installations flood safeby the state governments, is far fromsatisfactory.10

Flo o d s-Stat u s a n d Co n t e x t• Operation of reservoirs is often carried outdisregarding flood moderation aspectsand there is lack of flow of informationamong the basin-states resulting in gapsin preparedness on their part to faceincoming floods.• There is also a lack of inflow forecastingsystems for the reservoirs resulting insudden release of large quantity of watercausing floods in the downstream. Damsafety aspects are also often not given dueimportance by the state governments.• Though sufficient progress has beenmade in respect of structural measures offlood management and an area of 182.2lakh hectare has been provided withreasonable degree of protection againstfloods, the remaining flood prone area isyet to be protected.• Rivers erode a significant amount of landevery year. Conventional anti-erosionmeasures often induce erosion in theupstream and downstream or on theopposite bank of the river and these requirehigh investment. There is a need to evolveeconomical and eco-friendly measure forprevention of river-erosion.• The flood response system lackspublic participation. There is also lackof awareness among the people aboutsimple ways of safeguarding their livesand properties during floods. They arealso not aware of the role they can play inthe preparedness, mitigation, rescue andrelief during floods.• Flood management measures aregenerally planned on an adhoc basis togive immediate relief on public demand.The problem and impact of the measuresadopted especially the embankments andanti-erosion works in adjoining areas isnot comprehensively studied on scientificbasis.• There is no proper documentation aboutfloods, their impact and the mannerin which these were tackled. Properdocumentation will go a long way inimproving the preparedness, mitigationand response system.1.19 Approach to Guidelines• Though sufficient knowledge about floodsand their management is available withdifferent orgnisations and the communitiesand the problem of floods has beenstudied by a number of committees, taskforces, working groups and commissionsand recommendations have been madeabout the measures for their management,yet there are no set guidelines to befollowed by the various central ministriesand departments, state governments andother stakeholders, on the basis of which,they can formulate their flood managementplans (FMPs). These guidelines have beenformulated to address this gap.• With the enactment of the DisasterManagement (DM) Act in December 2005and constitution of the NDMA, there hasbeen a paradigm shift from erstwhilerelief-centric approach to the entire DMcontinuum with equal emphasis beinggiven on preparedness, prevention andmitigation along with response and relief.• The FM guidelines emphasis on measuresfor preparedness, prevention, mitigation inthe pre-floods stage and on prompt andeffective response, relief and recoveryduring – and post floods stages.11

Nat i o n a l Di s a s t e r Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d s• The emphasis of the state governmentshas so far been on structural measuresof FM requiring huge investment and longgestation period. They have not given dueimportance to non-structural measures,which are very effective in reducing loss oflife and properties and do not require hugeinvestment and can be implemented in ashort time. These guidelines emphasiseon their time bound implementation by thecentral ministries and departments andthe state governments.• The guidelines recogonise the fact thatthere is a lack of coordination among theagencies of the central government andthe state governments as well as amongthe various departments of the stategovernment. These also recognise lackof institutional framework for coordinatingthe efforts of various agencies andlay emphasis on setting up basin-wiseorganisations for FM and a National FloodManagement Institute (NFMI) for training,education and research in FM. Themechanisms for inter-state and intra-statecoordination have also been proposed.• The financial aspects for implementationof FMPs by the central ministries anddepartments and the state governmentshave also been covered in the guidelines.• The guidelines have been evolved with theactive participation of all the stakeholdersi.e the central ministries and departments,the state governments, academics,experts, NGOs, corporate sector andeminent people.• The timelines proposed for theimplementation of various activities in theguidelines are considered both importantand desirable, especially in case of thosenon-structural measures for which noclearances are required from central or otheragencies. Precise schedules for structuralmeasures will, however, be evolved inthe FMPs that will be formulated at thecentral ministries/states level duly takinginto account the availability of financial,technical and managerial resources. In caseof compelling circumstances warrantinga change, consultation with NDMA willbe undertaken, well in advance, for anyadjustment, on a case to case basis.• The guidelines will lead to the formulationof FMPs by the central ministries anddepartments, the state governments andother stakeholders, implementation ofwhich is expected to assist the processof minimising vulnerability to floodsand consequent loss of lives, livelihoodsystems, property and damage toinfrastructure and public utilities and thusmake India flood resilient.12

Flo o d s-Stat u s a n d Co n t e x t1.20 Action Plan13

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s2Institutional Framework andFinancial Arrangements2.1 Constitutional ProvisionsThe subject of flood control, unlike irrigation,does not figure as such in any of the three legislativelists included in the Constitution of India. However,Drainage and Embankments, are the two measuresspecifically mentioned in entry 17 of List II (StateList), reproduced below:‘Water, that is to say, water supplies, irrigationand canals, drainage and embankments, waterstorage and water power subject to the provision ofentry 56 of List I (Union List).’Entry 56follows:of List I (Union List) reads as‘Regulation and development of inter-Staterivers and river valleys to the extent to which suchregulation and development under the control ofthe Union is declared by Parliament by law to beexpedient in the public interest.’The primary responsibility for flood control thuslies with the states.2.2 National Institutions/Agencies2.2.1 National Disaster Management AuthorityThe Disaster Management Act, 2005 (DMAct,2005) lays down institutional, legal, financialand coordination mechanisms at the national,state, district and local levels. The new institutionalframework will ensure operationalisation of thenational desire for a paradigm shift in DM from apost event and relief-centric syndrome to a regimethat lays greater emphasis on preparedness,prevention and mitigation, leading to a more promptand effective response to disasters.The NDMA, as the main body under the GOI,has the responsibility of laying down policies,plans and guidelines for DM and coordinating theirenforcement and implementation for ensuring atimely and effective response to disasters. It willapprove the national DM plan prepared by theNational Executive Committee (NEC) and plans ofthe central ministries and departments. The NDMAmay take such other measures, as it may considernecessary, for the prevention of disasters, ormitigation, or preparedness and capacity building,for dealing with a threatening disaster situationor disaster. Its statutory functions include theresponsibility to:a) lay down policies on DM;b) approve the national plan and the plansprepared by the central ministries/departments in accordance with thenational plan;c) lay down guidelines to be followed by thestate authorities in drawing up the stateplans;d) lay down guidelines to be followed by thedifferent central ministries/departments forthe purpose of integrating the measuresfor prevention of disaster or the mitigationof its effects in their development plansand projects;14

Institutional Fr a m e w o r k a n d Fin a n c i a l Ar r a n g e m e n t se) coordinate the enforcement andimplementation of the policy and plan forDM;f) recommend provision of funds for thepurpose of mitigation;g) provide such support to other countriesaffected by major disasters as may bedetermined by the central government;h) take such other measures for theprevention of disaster, or its mitigation, orpreparedness and capacity building fordealing with a threatening disaster situationor disaster as it may consider necessary;i) lay down broad policies and guidelines forthe functioning of the National Institute ofDisaster Management(NIDM);j) authorise the concerned department orauthority to make emergency procurementof provisions or materials for rescue andrelief in a threatening disaster situation ordisaster;k) exercise general superintendence,direction and control of the NationalDisaster Response Force (NDRF),constituted under the Act for the purposeof specialist response to a threateningdisaster situation or disaster;l) recommend guidelines for the minimumstandards of relief to be provided to thepersons affected by disasters.In essence, the NDMA will concentrate onprevention, preparedness, mitigation, rehabilitation,reconstruction and recovery and also formulateappropriate policies and guidelines for effectiveand synergised national disaster response andrelief. It will also coordinate the enforcement andimplementation of policies and plans.2.2.2 National Executive CommitteeThe National Executive Committee (NEC)comprises the secretary to the GOl in the ministryor department having administrative control ofthe subject of DM, as the chairperson and thesecretaries to the GOl in the ministries/departmentsof Agriculture, Atomic Energy, Defence, DrinkingWater Supply, Environment and Forests, Finance(Expenditure), Health, Power, Rural Development,Science and Technology, Space, Communications,Urban Development, Water Resources and theChief of the Integrated Defence Staff to Chairman ofthe Chiefs of Staff Committee as members. It is theexecutive committee of the NDMA, and is statutorilymandated to assist the Authority in the dischargeof its functions and ensure compliance of thedirections issued by the central government, apartfrom preparing the National Plan and securing itsapproval by the NDMA and performing such otherfunctions as required by the NDMA. Based on thepolicy and guidelines, the NEC will be responsiblefor preparing the national plan, getting it approvedby the NDMA and then operationalising it. The NECwill also require any department or agency of thegovernment to make available such men or materialresources for the purposes of handling threateningdisasters, emergency response, rescue and relief,as required by the NDMA. It will coordinate theresponse in the event of any threatening disastersituation or disaster. It will also perform such otherfunctions as the NDMA may require it to perform.2.2.3 National Disaster Response ForceFor the purpose of specialised response to athreatening disaster situation or disasters both naturaland man-made, the DM Act, 2005 has mandatedthe creation of a National Disaster Response Force(NDRF). The general superintendence, direction andcontrol of this force shall be vested in and exercisedby the NDMA and the command and supervisionof the NDRF shall vest in an officer to be appointed15

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sby the central government as the Director Generalof the NDRF.2.2.4 Central GovernmentIn accordance with the provisions of the DMAct 2005, the central government will take all suchmeasures, as it deems necessary or expedient, forthe purpose of DM and will coordinate actions of allagencies. It will ensure that central ministries anddepartments integrate measures for the preventionand mitigation of disasters into their developmentalplans and projects, make appropriate allocationof funds for pre-disaster requirements and takenecessary measures for preparedness to effectivelyrespond to any disaster situation or disaster. As FMis a multi-disciplinary process, all central ministriesand departments concerned will play a key role inassisting the NDMA in the discharge of its functions.The nodal ministry for the disaster managementis the Ministry of Home Affairs (MHA), the MOWRalong with other department is responsible forthe technical aspects of FM besides others. TheMinistries of Agriculture, Civil Aviation, Environmentand Forests, Health, Space, Earth Sciences,Mines, Railways etc. also have important role inmanagement of floods in their respective fields.2.2.5 National Institute of Disaster ManagementThe National Institute of Disaster Management(NIDM), which functions within the framework ofthe broad policy and guidelines laid down by theNDMA, has capacity development as one of itsmajor responsibilities, along with training, research,documentation and the development of a nationallevel information base.It will network with other knowledge-basedinstitutions and assist in imparting training to trainers,DM officials, etc. It will also be responsible forsynthesising research activities and will be gearedtowards emerging as a ‘centre of excellence’ at thenational and international levels.2.2.6 The Central Flood Control Board(CFCB)/Irrigation Ministers ConferenceIn 1954, when for the first time the floodprogramme in the country attracted the seriousattention of the GOI, the Central Flood Control Board(CFCB) was constituted to draw up a comprehensiveplan of flood control with the following functions: -(i) to lay down general principles andpolicies in connection with flood controlmeasures;(ii) to consider and approve master plans forflood control submitted by the states/rivercommission; and(iii)to arrange for necessary assistance inconnection with planning and execution offlood control works.As a follow-up to a decision of the CFCB in1954, a Flood Wing was added to the then CentralWater and Power Commission; the Flood Wingserved as the Secretariat of the CFCB.In 1977, it was decided to merge the CFCBwith the Conference of State Ministers of Irrigation.The first meeting after the amalgamation of theCFCB with the ministers’ conference was held inFebruary 1979; thereafter the meeting has beenheld almost every year.2.2.7 Central Water CommissionThe Central Water Commission (CWC) is anapex agency in the field of water resources includingflood management in India. The River ManagementWing headed by the Member (RM) and ex-officio16

Institutional Fr a m e w o r k a n d Fin a n c i a l Ar r a n g e m e n t sAdditional Secretary to the Government of Indialooks after FM in the country excepting the Gangaand the Brahmaputra river basins for which theGOI has created separate organisations. Member(RM) is required to advise the MOWR and also lookafter policy issues and other aspects of the FMin the whole country including the Ganga and theBrahmaputra basins. This wing is also responsiblefor flood forecasting and the hydrologicalobservations’ network in the country. It has officesunder its control throughout India for performingthese functions.The MOWR will strengthen and equipappropriately the RM wing of CWC.2.2.8 Ganga Flood Control Commission/Ganga Flood Control BoardThe Ganga Flood Control Commission (GFCC)was set up by GOI in 1972 for the preparation ofcomprehensive plan of flood control for Ganga basinand to draw out a phased coordinated programmefor the implementation of works. It has also beenassigned the work of monitoring and appraisal ofFM schemes of Ganga basin states. The Task Forceon Flood Management/Erosion control – 2004 hasrecommended its strengthening to enable it to playa more effective role in FM in the Ganga basin.The MOWR will take steps for strengtheningthe GFCC appropriately.2.2.9 Brahmaputra Board/High PoweredReview BoardFloods and erosion in the Brahmaputra andBarak basins are regional problems. Both, theBrahmaputra and the Barak and most of their majortributaries are inter-state as they flow in more thanone state. The Brahmaputra Board was set up bythe GOI as a statutory body, under the BrahmaputraBoard Act, 1980. The Board was to perform suchfunctions and exercise such powers as the centralgovernment may specify from time to time bynotification in the official Gazette. It has been giventhe task of carrying out surveys and investigationsin the Brahmaputra valley and preparing a MasterPlan for control of floods, bank erosion andimprovement of drainage, planning and integratedimplementation of measures for control of floodsand bank erosion in the Brahmaputra and Barkvalleys. The Board, with the approval of the centralgovernment, is also to take up the construction ofmultipurpose dams and works connected therewithproposed in the Master Plan and operate suchdams and works. The Board consists of four fulltimemembers i.e chairman, vice-chairman, generalmanager and financial advisor to be appointed by theGOI and part-time members one each to representrespectively the state governments of Assam,Meghalaya, Nagaland, Mizoram, Sikkim, Manipur,Tripura, Arunachal Pradesh and West Bengal andthe central ministries dealing with Water Resources,Transport, Agriculture, Power and Finance and thecentral government departments namely the CWC,the Central Electricity Authority(CEA), the GeologicalSurvey of India(GSI) and the IMD. The Task Forceon Flood Management/Erosion control – 2004 hasrecommended its restructuring/strengthening.The MOWR will take immediate action forrestructuring/strengthening of the BrahmaputraBoard.2.2.10 India Meteorological DepartmentThe IMD established in 1875, is responsiblefor the National Meteorological Service and theprincipal government agency in all matters relatingto meteorology, seismology and allied subjects.The IMD is mandated as follows:• To take meteorological observationsand to provide current and forecast17

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d smeteorological information for optimumoperation of weather-sensitive activities likeagriculture, irrigation, shipping, aviation,offshore oil explorations, etc.• To warn against severe weather phenomenalike tropical cyclones, northwesterly duststorms, heavy rains and snow, cold andheat waves, etc., which cause destructionof life and property.• To provide meteorological statisticsrequired for agriculture, water resourcemanagement, industries, oil explorationand other nation building activities.• To conduct and promote research inmeteorology and allied disciplines.• To detect and locate earthquakes and toevaluate seismicity in different parts of thecountry for development projects.For the convenience of administrativeand technical control, there are six RegionalMeteorological Centres (RMCs) located atMumbai, Chennai, New Delhi, Kolkata, Nagpur andGuwahati. Under each RMC, there are differenttypes of operational units such as meteorologicalcentres at state capitals, forecasting offices, agrometeorologicaladvisory service centres, floodmeteorological offices (FMOs) and area cyclonewarning centres.2.2.11 National Centre for Medium RangeWeather ForecastingThe National Centre for Medium RangeWeather Forecasting (NCMRWF) is the premierinstitution in India under the Department of Scienceand Technology (DST) to provide medium rangeweather forecasts through deterministic methodsand to render agro advisory services (AAS) to thefarmers. The centre offers research opportunities innumerical weather prediction, diagnostic studies,crop weather modeling and computer science.2.2.12 National Remote Sensing AgencyThe Department of Space has establisheda Decision Support Centre (DSC) at NationalRemote Sensing Agency (NRSA) under the IndianSpace Research Organisation’s (ISRO) disastermanagement support (DMS) programme. DSC isan operational service provider for space-enabledinputs together with other important data layers for itsuse in disaster management by the central ministriesand departments and the state governments in predisaster,during disaster and post-disaster phases.A VSAT based satellite communication networkhas been put in place for online transfer of spaceenabledinputs to the concerned state and centralgovernment user departments. The DSC has theprovision to mobilise aircraft for obtaining aerialdata. At present, the DSC is addressing naturaldisasters viz. floods, cyclone, drought, forest fires,earthquakes and landslides. Besides these, it alsoprovides support services for specific events suchas tsunami impact assessment, monitoring oflandslide and manmade lakes in the remote areasof India and adjoining areas of other countries. Nearreal information on the extent of flood inundationderived from space data are made available to theNDMA, MHA, CWC and state agencies for planningrelief and rescue operations.The DSC is also working on preparation of mapsshowing hazard zonation. Flood hazard zone mapsfor the Brahmaputra river in Assam were prepared.Similar maps are also being prepared for Bihar. TheNRSA also prepares maps in river configurationand bank erosion. It also maps flood controls workssuch as embankments and spurs along selectedriver reaches and provides this information theconcerned departments.The DSC aims at building a comprehensivegeo-spatial database of the disaster vulnerable18

Institutional Fr a m e w o r k a n d Fin a n c i a l Ar r a n g e m e n t sregions of the country. As for the 60 odd flood andcyclone prone districts a digital database on a scaleof 1:50,000 was developed.Capability has been established for acquisitionof close contour information. Planning is being donefor systematic acquisition, in a phased manner, ofclose contour information over chronic flood proneareas.2.2.13 National Flood Management InstituteVarious Institutes and academic institutionsdeal with different aspects of water resources. TheMOWR has established the National Water Academy(NWA) at Pune under the administrative control ofthe CWC for training the working professionals ofCWC and the states in different aspects of waterresources including FM.There is, however, no national or state levelinstitution dealing with all facets of FM exclusivelyand in a holistic and comprehensive manner.Such an Institute is required as it can serve thepurpose of imparting training to the engineers andadministrators of the central government and thestate governments in all fields of FM. It can, in asubsequent phase, train personnel belonging to thepolice departments, civil defence, home guards, theSDMAs, non-governmental organisations(NGOs) andalso public representatives in flood fighting, rescueand relief. It can also undertake activities to createawareness among all the stakeholders about theirrole in handling flood events and promote adaptiveresearch relating to FM measures including FF&W.It will work in close collaboration with other Institutesof the central government and state governments,especially the institutes proposed for managementof cyclone disasters and training of NDRF.The MOWR in close collaboration with theNDMA will establish a National Flood ManagementInstitute (NFMI) as a centre of excellence with expertsas its faculty and having state-of-the-art equipmentat an appropriate location, in one of the flood pronestates. The institute will be functional by the end ofDecember 2010. Till then the NWA will undertakethese activities in addition to its current functions.2.2.14 River Basin Organisations-InterstateCoordinationFM being a state subject, each stategovernment has naturally been dealing withit separately and in its own best interests.Implications of the measures taken by one state forthe states located in the upstream or downstreamhave not often been taken into cognisance. Ithas been felt that FM needs to be dealt with in acomprehensive way especially on rivers that areinternational/interstate in nature. The rivers Ganga,Brahmaputra, Indus etc. originate in neighboringcountries and information is required from thesecountries for the effective management of floodrelateddisasters. These rivers, after enteringIndia, flow through many states before out fallinginto the sea. In between, they are joined by manytributaries, flowing through more than one state.The rivers, which are confined within India, alsooriginate in one state and then flow through otherstates before out falling into the sea.Various committees/task forces/workinggroups appointed by the GOI to look into the problemof floods and FM have highlighted the need for basinapproach to FM. The RBA, the Experts Committeeon the implementation of the recommendationsof the RBA, the sub-group on FM for the EleventhFive-Year Plan, etc. have expressed the need for theestablishment of a central organisation to deal withthe problem of floods in a comprehensive manner.The MOWR has set up the Brahmaputra Boardand GFCC to look after FM in Brahmaputra and19

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sthe Ganga river basins respectively. The MOWR inconsultation with the state governments, will takeappropriate action in regard to the establishment ofsuch organisations in other flood prone river basinsand in strengthening of the CWC, BrahmaputraBoard and GFCC.2.3 State-level Organisations2.3.1 Disaster Management Departments/CommissionersDisaster Management departments/Commissioners in the states deal with rescue/reliefoperations during floods.2.3.2 State Disaster Management AuthorityAt the state level, the State Disaster ManagementAuthority (SDMA), headed by the chief minister willbe established by the state governments to laydown policies and plans for DM in the state. It will,inter-alia, approve the state plan in accordance withthe guidelines laid down by the NDMA, coordinatethe implementation of the state plan, recommendprovision of funds for mitigation and preparednessmeasures and review the developmental plans ofthe different departments of the state to ensurethe integration of prevention, preparedness andmitigation measures.2.3.3 State Executive CommitteeAll state governments will appoint expertsin FM in the faculty of their administrative traininginstitutes, which will collaborate with the NFMI inorganising the training of personnel in the field of FM.Every state government will constitute a StateExecutive Committee (SEC) to assist the SDMAin the performance of its functions. The SECwill be headed by the chief secretary to thestate government and coordinate and monitorthe implementation of the national policy, thenational plan and the state plan. It will also provideinformation to the NDMA relating to differentaspects of DM.2.3.4 State Flood Control Boards/StateFlood Control Technical AdvisoryCommitteesFlood being a state subject, FM schemes areplanned and executed by the State governments.The role of the central government is advisory,catalytic and promotional in nature. The states haveto investigate, plan, construct, maintain and operateall flood works. Flood Control Boards were set up insome of the states along with the CFCB.2.3.5 Irrigation/Water Resources/FloodControl DepartmentsThe nodal organization is the IrrigationDepartment, which may or may not have a separatewing dealing with flood control in some states.The Public Works Department (PWD) deals withall the public works including flood control. In thestate of West Bengal the Irrigation and WaterwaysDirectorate under the Irrigation and WaterwaysDepartment, deals with irrigation, waterways andflood control. The Ministers’ Committee on FloodControl, 1964, had stated ‘that at least in the Stateswith serious flood problems, proper flood controldepartments should be organized under a ChiefEngineer with appropriate number of regular fieldcircles and divisions to look after investigations,construction and maintenance of flood controlworks as distinct from the regular Department’.2.3.6 District Disaster Management AuthorityAt the cutting edge level, the District DisasterManagement Authority (DDMA) headed by theDistrict Magistrate, with the elected representativeof the local authority as the co-chairperson, will act20

Institutional Fr a m e w o r k a n d Fin a n c i a l Ar r a n g e m e n t sas the planning, coordinating and implementingbody for DM and take all necessary measures forthe purposes of DM in the district in accordance withthe guidelines laid down by the NDMA and SDMA. Itwill, inter-alia prepare the district DM plan includingthe response plan for the district, coordinate andmonitor the implementation of the national policy,the state policy, the national plan, the state plan andthe district plan and ensure that the guidelines forprevention, mitigation, preparedness and responsemeasures laid down by the NDMA and the SDMAare followed by all departments of the governmentat the district level and the local authorities in thedistrict.2.3.7 Local AuthoritiesThese include Panchayati Raj Institutions(PRIs) and Urban Local Bodies (ULBs), such asmunicipal corporations, municipalities, district andcantonment boards and town planning authoritiesfor control and management of civic services.PRIs and ULBs will ensure capacity building oftheir officers and employees in DM, carry outrelief, rehabilitation and reconstruction activitiesin the affected areas and will prepare DM plans inconsonance with the guidelines of the NDMA, SDMAsand DDMAs.2.3.8 State Disaster Response ForceFor the purpose of a specialised response toa threatening disaster situation or disasters bothnatural and man-made, the DM Act, 2005 hasmandated the creation of a NDRF . To augmenttheir capacities, all state governments/SDMAs willorganise, from within their armed police force,adequate personnel for the constitution of StateDisaster Response Force (SDRF) with appropriatedisaster response capabilities. Under the aegis ofthe NDMA, the states will raise the SDRF.2.3.9 Intra-state Multi-sectoral CoordinationWhile the state irrigation/water resources/floodcontrol departments are responsible for planning,implementation and operation and maintenanceof structural measures of FM in the state, civilauthorities at the district/taluka/block/village levelare responsible for search, rescue and relief.Further, the activities of one department, such as theconstruction of roads by the PWD, or railway linesby the Ministry of Railways (MOR), urbanisation/industrialisation regulated by the ULBs and townand country planning organisations etc can affectthe vulnerability of an area to floods and drainagecongestion. The floods in the Krishna basin in2005 are a case in point. It is therefore importantthat a mechanism is established for ensuringcoordination among the various departments ofstate governments. In most of the flood prone states,State Flood Control Advisory Committees havebeen constituted with representatives of the variousdepartments of the state governments and centralorganisations concerned, where the FM schemesproposed by the state irrigation/water resources/flood control departments are considered andapproved. There is no multi-disciplinary authoritywherein the schemes of other departments forconstruction of irrigation works, roads, railway linesand development of residential, commercial andindustrial estates etc., are considered with respectto their impact on the vulnerability of the areas tofloods/drainage congestion and approved forimplementation.Therefore, the state governments/SDMAswill establish appropriate multi-disciplinarymechanisms, whose clearance of the proposalsof various departments with respect to theFM angle will be mandatory, before the worksare sanctioned by them and taken up forimplementation by the departments concerned.The mechanisms will be empowered to makerecommendations for making the works flood21

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d ssafe as well as ensuring that they do not lead toincrease in vulnerability of the areas to floods anddrainage congestion.2.4 Techno-economic Appraisal ofFlood Management SchemesMost of the state governments affected byfloods have set up multi-disciplinary State FloodControl Technical Advisory Committees (TAC) forclearance of FM schemes before approval as per theprocedure laid down by the Planning Commission.The TACs have representatives from the concerneddepartments/organisations of the state as well asthe central government.2.5 Funding of Flood ManagementSchemes2.5.1 Plans of Central Ministries/DepartmentsMainstreaming of DM concerns into thedevelopmental plans and underlying specialmitigation projects at various levels is a majorfeature of the regime that has been ushered in, withthe passage of the DM Act 2005. A working groupon DM, constituted for the first time by the PlanningCommission, has made several recommendationsin this regard, whose incorporation in the EleventhFive Year will significantly facilitate the funding of theplans (as also the mitigation projects) that will bemade by the central ministries/departments and thestate governments based on these guidelines.The various measures for FM recommendedin the guidelines will be funded respectively bythe central ministries and departments and stategovernments concerned by making provisions intheir annual and Five Year plans. Funding will alsobe available through special mitigation projectsto be formulated and implemented by the stategovernments/SDMAs under the overall guidanceand supervision of the NDMA. In addition 10 per centof Calamity Relief Fund (CRF) can also be utilisedfor purchase of equipment for flood preparedness ,mitigation, rescue and relief .2.5.2 State PlansFlood control is a state subject and thus floodcontrol schemes are planned, funded, executedand maintained by state governments themselvesas per their own priorities. Central plan assistanceis in the form of block loans and grants and is nottied to any sector or project. Allocations for theflood sector within the overall plan outlay are madeby the state governments themselves.The various measures for FM recommendedin these guidelines will accordingly be included bythe state governments in their state plans.2.5.3 Centrally sponsored/Central SectorSchemesThe role of the central government is advisory,promotional and catalytic in nature. The CWC andthe GFCC, besides being responsible for technoeconomicappraisal of flood control schemesabove a certain cost, also inspect critical reachesand suggest remedial measures as and whenrequired. The MOWR is operating a few centrallysponsored/central sector schemes for assistingthe states in taking up critical anti river erosionworks in the Ganga basin and north-easternstates, improvement of drainage in critical areas,flood proofing etc. The overall allocation for theseschemes is far too small to make an impact on FMin the country. The funding pattern of the centrallysponsored schemes is not uniform. It varies from75:25 (Centre: State) for the Ganga basin states to90:10 for the northeastern states.The MOWR on the request of the stategovernments and subject to availability of funds22

Institutional Fr a m e w o r k a n d Fin a n c i a l Ar r a n g e m e n t swill include some of the schemes recommended inthe guidelines for funding under these schemes.2.5.4 District Planning and DevelopmentCouncil FundsCertain percentage of funds available to DistrictPlanning and Development Council in the floodprone areas will be allocated for implementation ofFM schemes in the districts.2.5.5 Calamity Relief FundMany of the state governments haverepresented that the guidelines for the utilisationof the money under CRF envisage that immediaterepairs to infrastructure damaged in floods mustbe completed within a period of 30 days afteroccurrence of the damage. They consider this periodto be inadequate as the assessment of the damageand preparation and approval of the estimates ofcost for repairs and award of works after call oftenders etc., take considerable time. There is a viewthat this period be extended to at least 90 days.The representative from the government of Punjabrequested for revision of guidelines so that the CRFis also available for drainage improvement works inwaterlogged areas.These issues of extending duration by whichthe state governments are required to completerepair of damaged infrastructure and inclusion ofdrainage improvement works within the ambit ofCRF, will be resolved after the deliberations of theThirteenth Finance Commission.2.5.6 National Flood Mitigation ProjectThe NDMA has proposed to take up a NationalFlood Mitigation Project in the Eleventh Five Yearplan whose aims and objectives will be evolved indue course. Broadly, it will address the followingissues:(i) assessment of the risk and vulnerabilitiesassociated with various flood disasters;(ii) mitigation and reduction of the risk, severityor consequences of floods;(iii) capacity development including enhancingthe capabilities of communities and trainingfunctionaries.(iv) effective preparedness to deal withfloods;(v) improving the promptness and efficacy ofresponse to impending threats of floods oractual occurrence;(vi) ensuring that arrangements are in place toorganise rescue, relief and rehabilitation;(vii) improving the quality and increasing thespeed of rehabilitation and reconstructionprocesses;(viii) creating awareness and preparednessand providing advice and training to theagencies involved in flood DM and thecommunity.Tentatively the component-wise activitiesincluding structural and non-structuralmeasures (e.g. infrastructural, equipment,stores, capacity–building, etc.) that will befunded under the project include:• Carrying out special studies on threatperception/vulnerability analysis/flooddisaster risk assessment of the flood proneareas.• Facilitating the establishment of state-leveltraining institutions for imparting trainingfor flood disaster preparedness/mitigationetc creating awareness of flood disaster,23

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sand training and educating people to copeup with floods at district/block levels.• Securing prompt and people-friendlydissemination of information to the public.• Establishing a dedicated communicationnetwork that can remain functional duringfloods.• Setting up of Flood shelters.• Suitably locating flood disaster reliefcentres/basic infrastructure like hospitals,stores, etc., on high ground, so that theyremain functional during floods.• Creating and maintaining an adequatelytrained disaster response force.• Identifying road transport/rail/communication networks that connectflood disaster relief/supply centres to floodprone areas and including construction ofnew rail/road infrastructure that may bereliably used during floods.• Identifying suitable high grounds wherepeople can be shifted during floods.• Strengthening the flood forecasting andwarning network.The NDMA will take action to expeditepreparation of DPR and its approval forimplemantation by the central minstries anddepartments and state governments.2.6 Flood InsuranceThe CRF provides for gratuitous relief forsurvival of people affected by floods. It does notcompensate them for the losses suffered by themduring floods. Insurance against losses of livesand property in the flood is an important tool fortransfer of risk compensating them for the lossessuffered by them in floods. Flood insurance hasnot been adopted widely in India. Though flood riskhas been included in ‘cover’ issued by the generalinsurance companies in India, it is more popularin urban areas and big towns where damage dueto inundation caused mostly by excessive rainfallis taken care of. The insurance companies havenot been able to arrive at the different rates ofinsurance premiua for different flood prone regionsin the country. As such, they continue to chargeuniform rate irrespective of the fact that a propertymay be located in a high flood risk area or otherareas. The problem being faced by the insurancecompanies is with regard to the collection of basicdata for working out a fair and equitable premiumfor all areas according to flood risk. The insurancecover works successfully for a class of people whoare subjected to such risks more or less equally. Incase of floods, the risk of loss even in areas liableto flood is not equal. Comprehensive studies in thisregard are required to be taken up by insurancecompanies in association with experts.The Ministries of Finance, Agriculture andWater Resources, the state governments and theinsurance companies will jointly take up studies fora graded system of insurance premium accordingto flood risk in flood prone areas of the country. TheMOWR in consultation with the state governmentswill explore the possibility of introducing schemeswhere insurance of structures, buildings and cropsin flood plains is made compulsory. Consultationson the proposal will be held with all the players andstakeholders and the scheme implemented in afew selected areas on experimental basis. Oncesuccessful, the scheme will be implemented on alarger scale. The value of such scheme can not beover-stated.24

Institutional Fr a m e w o r k a n d Fin a n c i a l Ar r a n g e m e n t s2.7 Action Plan25

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s3Flood Prevention,Preparedness and Mitigation3.1 IntroductionOn account of frequent occurrence of floodssince time immemorial, people have learnt to livewith them. They have generally set up settlementsaway from frequently flooded areas, which havebeen used for less important activities such asagriculture, grazing of cattle etc. The crops that cansustain submergence, are grown in the flood proneareas, during monsoon. The crops grown in theareas that were inundated during floods, result inbumper yields. Traditional methods based on locallyavailable resources have been used to minimisethe damage during floods. With the increase inpopulation, these areas have been occupied and asa result floods cause huge damage to lives, cattle,property and infrastructure. The FM measures canbe categorised into structural and non-structuralmeasures. Structural measures for FM are physicalin nature and aim to prevent flood waters fromreaching potential damage centres, whereas nonstructuralmeasures strive to keep the people awayfrom flood waters.3.2 Structural Measures for FloodManagementThe main thrust of the flood protectionprogramme undertaken in India so far has been onstructural measures.3.2.1 Embankments/Banks, Flood Walls,Flood LeveesThe embankment system in the river restrictsthe river to its existing course and prevents itfrom overflowing the banks. Embankments areconstructed generally with earth easily availablefrom nearby areas. In developed areas whereadequate space is not available or land is veryexpensive, concrete or masonry floodwallsare constructed. Embankments (including ringbundsand town-protection works) are the mostpopular method of flood protection and have beenconstructed extensively in the past. Embankmentsare designed and constructed to afford a degreeof protection against floods of a certain frequencyand intensity or against the maximum recordedflood depending upon the location protected andtheir economic justification.In the nineteenth century a number of wellplannedembankments were constructed on someof the rivers to provide protection to the commandareas of the canal systems in northern India and thedeltaic tracts of east-flowing rivers in Orissa, AndhraPradesh and Tamil Nadu.Divergent views have however emerged onthe utility of embankments as a means for floodprotection. While some NGOs have voiced seriouscriticism of existing embankments and advocatedtheir removal, others favour construction of additionallengths of embankments as the only practicalmedium/short-term solution for the flood problem.Embankments have provided positive benefits byensuring protection against floods and river spills.Embankments with proper roads have provideduseful communication link in the area. These aregenerally the only means of communication duringfloods and thereafter. They also provide shelter to26

Flo o d Pr e v e n t i on, Pr e pa r e d n e s s a n d Mitigationthe villagers during floods. However, breaches inthem have resulted in large-scale flooding in theprotected areas. Poor drainage in the protectedarea also leads to drainage congestion. Theembankments may lead to deposition of silt andrise in bed levels, thus decreasing the carryingcapacity of the river and aggravating drainagecongestion. They interfere with natural drainageand deprive protected areas of fertile soil andgroundwater recharge. They are also generallyunable to withstand erosion unless adequatelyprotected. These concerns can, however, be takencare of while designing the embankments i.e. bylocating them away from active river edge, keepingsufficient space between the embankments ontwo banks of the river, keeping height, width,side slopes and slope protection to withstand thedesign flood, providing required number of sluicesof adequate size for drainage and spilling sections/breaching sections for allowing water to spill/floodthe protected area after water level in the riverreaches a certain stage etc.The circumstances, in which embankments/flood walls/flood levees will be constructed forprevention of flooding, can only be decided aftercarrying out detailed hydrological and morphologicalstudies regarding their favourable and adverse effects.State governments/SDMAs will evolve date lines andpriorities for carrying out studies in their States. It isonly then that embankments with properly designedand located drainage sluices, spilling sections andanti-erosion measures in combination with otherworks such as reservoirs, channel improvementworks, drainage improvement structures, etc, willbe planned and implemented as a short-term and/or long-term solution to the flood problem. Ongoingembankment projects will also be reviewed withrespect to their location and designs.3.2.2 Dams, Reservoirs and other WaterStoragesLakes, low lying depressions, tanks, damsand reservoirs store significant proportions offlood water and the stored water can be releasedsubsequently when the flood has receded. Thestored water can also be used subsequently forirrigation, power generation, and meeting industrialand drinking water needs. In the case of large multipurposereservoirs, a proper reservoir regulationschedule can be worked out for optimum benefitfrom the project as a whole. Keeping the importanceof these measures in view, a separate chapter hasbeen devoted to these works.3.2.3 Channel ImprovementA channel can be made to carry flood dischargeat levels lower than its prevailing high flood level byimproving its discharge carrying capacity. Channelimprovement aims at increasing the area of flow orthe velocity of flow (or both) to increase its carryingcapacity. Channel improvement has not beenresorted to widely in India mainly because of thehigh costs involved and topographical constraints.However, it is of advantage to take up such work forlocal reaches.Therefore wherever required and subjectto techno-economic considerations, the stategovernments will identif y the locations and takeup appropriate channel improvement works toincrease the velocity and/or the area of flow andreduce the flood level in the river depending uponsite-specific conditions.3.2.4 Desilting/Dredging of RiversThe studies carried out so far indicateaggradation/degradation of riverbeds in certainreaches, but they do not confirm the commonbelief of a general rise in river beds. Silting atplaces where the rivers emerge from the hillsinto the plains, at convex bends and near theiroutfall into another river or lake or sea, is a naturalphenomenon. Accordingly, rivers exhibit a tendency27

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sto braid/meander/form deltas. Various committees/experts appointed to look into this problem have notrecommended desilting/dredging of the rivers as aremedial measure. Selective desilting/dredging atoutfalls/confluences or local reaches can, however,be adopted as a measure to tackle the problemlocally.The MOWR, CWC and the state governments/SDMAs will study the problem of rise in riverbedsin a scientific manner with the help of science andtechnology, academic institutions and reputedcorporate sector firms and explore the technoeconomicviability of desilting/dredging as aremedial measure to mitigate the effects of rise inthe riverbeds.3.2.5 Drainage ImprovementSurface water drainage congestion due toinadequacy of natural or manmade drainagechannels results in flooding in many areas. In suchcases constructing new channels and/or improvingthe capacity of existing channels constitute aneffective means of flood control. However, thepossibility of drainage congestion and flooding inthe downstream area is to be kept in mind whileformulating such schemes.The system of ‘dhars’ or ‘old channels’, efficientlyserve the function of draining away the spillageand surface flows generated by local rains. Theblocking of these natural drainage channels, whichis normally done in the name of ‘reclamation fordevelopment’, may result in drainage congestion/water- logging.The state governments/SDMAs will review theadequacy of existing sluices and drainage channelsin areas suffering from drainage congestion. If thecapacities of existing sluices in embankments anddrainage channels are inadequate, they will beimproved by increasing the vents and improvingoutfall conditions. State governments/SDMAs willprohibit the blocking of the natural drainage channelsand sluices by an appropriate law and improve theircapacity and construct new channels and sluices toensure flow of excess rainwater in the area.3.2.6 Diversion of Flood WaterDiverting all or a part of the discharge into anatural or artificially constructed channel, lyingwithin or in some cases outside the flood plains isa useful means of lowering water levels in the river.The diverted water may be taken away from the riverwithout returning it further downstream or it may bereturned to the river some distance downstream orto a lake or to the sea.This measure can be used successfully toprevent flooding around cities. The flood spill channelskirting Srinagar city and the supplementary drainin Delhi are examples of diverting excess water toprevent flooding of the urbanised areas.Therefore, wherever the capacity of riverchannels passing through the towns and cities isinadequate and cannot be improved to the requiredextent, state governments/SDMAs will studythe feasibility of implementing the schemes fordiverting excess water to existing or new channelsby bye-passing them to prevent flooding.3.2.7 Catchment Area Treatment/Af forestationWatershed management measures such asdeveloping the vegetative cover i.e. afforestation andconservation of soil cover in conjunction with structuralworks like check dams, detention basins etc. serveas an effective measure in reducing flood peaks andcontrolling the suddenness of the runoff. This, howeveris not very effective during a large flood although, itdoes help in reducing the siltation of reservoirs and tosome extent, silt load in the rivers as well.28

Flo o d Pr e v e n t i on, Pr e pa r e d n e s s a n d MitigationThe state governments/SDMAs will, therefore,take up appropriate watershed managementmeasures including afforestation, check dams,detention basins etc. in the catchment of rivers toprevent soil erosion, enhance water conservationand minimise water and sediment runoff.3.2.8 Anti-erosion WorksAlluvial rivers are usually meandering in natureand, therefore, raise problems of erosion and siltingat various locations. This is a natural phenomenonand results in loss of land at one location and gainat some other. Generally, there is a tendency of themeander to shift progressively downstream. Theprocess of bank erosion is, therefore, consistentlyactive and measures for protection of banks are arecurring necessity.Anti-erosion works are normally takenup only for protection of towns, industrial areas,groups of thickly populated villages, railway linesand roads where re-location is not possible onsocio-techno-economic grounds, long lengths ofvital embankments benefitting large areas in caseretirement is not technically or otherwise feasibleand agricultural lands where the cost-benefit ratiojustifies such works.Bank erosion can be minimised by adoptingmeasures that aim at deflecting the current awayfrom the river bank or which aim at reducing thecurrent along the bank of the river and induce silt.The anti- erosion measures in the form of revetmentor pitching along with launching apron and spursof earth protected by armour of stones or spurs ofloose stones or stones in wire-mesh crates aim atincreasing resistance of the bank to erosion anddeflecting the current away from the bank. Thesegenerally shift the problem in the upstream orthe downstream and necessitate further works tosafeguard the land against erosion. Measures suchas permeable spurs, porcupine spurs made ofbamboos or of reinforced cement concrete elementsreduce the velocity of flow and thus prevent erosionand induce siltation in the vicinity of the bank.Geo-synthetic material (woven geotextile)available in various forms like big bags andtubes etc. can be filled in-site with riverbed sandto form the groynes, spurs and revetments. Thedredging of the channels in the selected reacheswhich have silted up can be tried. Geo web filledwith concrete overlaid on geo-fabric filters in lieu ofstone revetment and launching apron is also a newdevelopment. Pilot schemes using these and othernew technologies will be taken up to evaluate theirperformance and techno-economic viability.Since it is not techno-economically feasible toprevent river erosion completely, national and staterehabilitation and resettlement (RR) policies will berevisited to include provision for resettlement andrehabilitation of victims of river erosion.Therefore, the state governments/SDMAs/DDMAs, wherever required and if relocation isnot possible on social, technical and economicalconsiderations, will plan and implement appropriateanti-erosion measures such as revetments, slopepitching, permeable and impermeable spurs usingconventional materials and/or geo-synthetics forprotection of towns, cities, industrial areas, groupsof thickly populated villages, railway lines, roads andembankments from erosion by rivers in a time-boundmanner. They will also review Rehabilitation andResettlement (RR) policies for including provision forRR of people who cannot be protected against rivererosion on techno-economic considerations. Uponreceipt of specific requests from the state governments,the CWC, the GFCC and the Brahmaputra Boardwill assist them in survey, planning, design andimplementation of these measures.29

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s3.2.9 Sea Walls/Coastal Protection WorksThe erosion of land by the sea waves in coastalareas is a serious problem. Sea walls/coastalprotection works in the form of groynes etc. areconstructed to prevent flooding erosion in coastalareas by sea water.Sea walls/coastal protection works willbe planned and executed by the respectivecoastal states/port authorities, keeping in viewthe complexity of sea behaviour and otherenvironmental aspects.3.2.10 Alignment, Location, Design andProvision of Waterway i.e. Vents,Culverts, Bridges and Causeways inNational Highways, State Highways,District and Other Roads and RailwaysEmbankments.Roads and railway embankments cut acrossthe drainage lines and may lead to increase invulnerability of the area, through which they pass,to flooding and drainage congestion, if they arenot properly aligned, located and designed. Inadequatewaterway in the form of vents/culverts/bridges/causeways is another cause of increasein vulnerability to floods. Further, breaches inthem may result in huge loss of life and properties.Insufficient height of embankments may result inovertopping and breaches.The Ministry of Shipping, Road Transportand Highways (MOSRTH), MOR, MOD, NHAI, BRO,state governments/SDMAs will ensure that nationalhighways, state highways, district and other roadsare aligned, located and designed properly withrespect to height and width and provided withadequate waterway in the form of vents, culverts,bridges and causeways so as to make them floodsafe and not increase the vulnerability of the areato flooding and drainage congestion.The safety of existing roads/railwayembankments against floods will also be checkedby the MOSRTH, MOR, MOD, NHAI, BRO andstate governments/SDMAs/DDMAs, and if foundinadequate, measures by way of increasing heightand width and augmenting waterway by constructingadditional bridges/culverts/causeways or by addingmore spans to existing ones, will be taken up.3.3 Inspection, Rehabilitation andMaintenanceStructural works require a periodic andsystematic inspection, rehabilitation andmaintenance programme to ensure that thedesign capabilities are maintained. For example,embankments and levees may be subjected toweakening due to erosion during a flood event andduring post-flood period by the action of burrowinganimals, or the construction of utility lines suchas water and gas pipelines, power cables etc. Ofparticular importance is an inspection programmeand restoration/strengthening of vulnerable spots.The state governments/SDMAs will draw aprogramme of inspection of all structural measurestwice a year, once before the commencement ofthe monsoon and again after the monsoon haswithdrawn and ensure that restoration/strengtheningmeasures of vulnerable spots are carried out beforethe commencement of monsoon every year.They will earmark adequate funds for the same intheir annual budgets and assign responsibility toindividual officials for completing the same.Dams, flood embankments, levees and theworks taken up for their protection against erosionetc. will be regularly inspected during floods foridentification of vulnerable spots and immediatemeasures to strengthen them will be implemented.In case of apprehension of any breach orovertopping, people living in the area will bewarned of the danger and the civil administration,30

Flo o d Pr e v e n t i on, Pr e pa r e d n e s s a n d Mitigationwith the help of NDRF, SDRF and/or the army willtake steps for evacuation, rescue and relief.The NDMA/MHA will take up with the ThirteenthFinance Commission the issue of earmarkingadequate funds for maintenance of the dams,embankments, levees and town protection worksunder appropriate heads of account in plan/nonplanbudgets.3.4 Action Plan for Structural Measures431

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s3.5 Non-Structural MeasuresNon-structural measures strive to keep peopleaway from flood waters. It contemplates the use offlood plains judiciously, simultaneously permittingvacating of the same for use by the river wheneverthe situation demands. This technique allowsthe use of flood plains by reducing the disasterdimension, while retaining its beneficial effects.3.5.1 Flood Plain ZoningIt is natural for a river to overflow its banks inthe event of heavy rainfall in its upper catchmentsand spill into the flood plains, which are basicallyits domain. Extensive and often unplanned use offlood plains by man disregarding the basic fact thatit is part and parcel of the river leads to damage.This is one of the main factors responsible for theflood damage reported from different parts of thecountry in spite of substantial investments in theflood sector.The basic concept of flood plain zoning is toregulate land use in the flood plains in order torestrict the damage due to floods, while derivingmaximum benefits from the same. Keeping itsimportance in view, this has been dealt with in aseparate chapter.3.5.2 Flood ProofingFlood proofing measures help greatly inthe mitigation of distress and provide immediaterelief to the population in flood prone areas. It isessentially a combination of structural change andemergency action, not involving any evacuation.The techniques adopted consist of providing raisedplatforms for flood shelter for men and cattle,raising the public utility installation especially theplatforms for drinking water hand pumps and borewells above flood level, promoting construction ofdouble-storey buildings wherein the first floor canbe used for taking shelter during floods.The state governments/SDMAs will provideadequate number of raised platforms/floodshelters at suitable locations in the flood plains withbasic amenities such as drinking water, sanitation,medical treatment, cooking, tents, lantern etc. forthe people to take shelter during floods.In case of urban areas, certain measures thatshould be taken up as soon as flood warning isreceived, are installation of removable covers suchas steel or aluminium bulk heads over doors andwindows, permanent closure of low level windowsand other openings, keeping store counters onwheels, closing of sewer wells, anchoring andcovering machinery and equipment with plasticsheets, etc.In the existing developed areas, possibilities ofprotecting against submergence or relocating to saferareas vital installations like electricity sub-stations/power houses, telephone exchanges, the pumpingstations meant for drinking water supply etc., will beseriously examined and appropriate measures willbe undertaken by the state governments/SDMAs,to make them safe against floods.The state governments/SDMAs will take stepsto make all public utility installations flood safe.3.5.3 Flood Forecasting and WarningFlood forecasting enables us to be forewarnedas to when the river is going to use its flood plain,to what extent and for how long. A separate chapterhas been devoted to the subject of flood forecastingand warning.3.6 Integrated Water Resources ManagementIntegrated water resources management32

Flo o d Pr e v e n t i on, Pr e pa r e d n e s s a n d Mitigation(IWRM) is an alternative to the dominant sector-bysector,top-down management style of the past.IWRM aims at integrating management of waterresources at the basin or watershed scale.IWRM looks outside the narrow ‘watersector’ for policies and activities to achievesustainable water resources development. Focusareas for IWRM are water resources assessment,socio-economic assessment, water resourcesplanning, implementation of action plans, day-todaywater resources management (adjustmentsof the plans) and water resources protection andconservation. Flood and water-related DM is across-cutting issue that touches upon all of theseaspects. Given its holistic approach, IWRM takesinto consideration several aspects besides watergovernance. These include:• Water supply and health, e.g., sanitationsystems and water-borne diseases;• water and agriculture, e.g. waterproductivity and agricultural practicesdegrading water sources;• water and bio-diversity, e.g. wetland lossand the need of water for eco-systems;• water and energy, e.g. hydropowerpotential;• water-related disaster reduction andresponse, e.g. floods and droughts.State governments/SDMAs with thecooperation of the CWC and other states willimplement the IWRM system for all the river basinsand sub-basins.3.7 Action Plan for Non-structural Measures33

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s3.8 Medical Preparedness3.8.1 After-ef fects of Floods Requiring MedicalAttentionFloods as a natural disaster have a high potentialof precipitating the incidences of mass casualties.There is the risk of drowning and physical traumaalong with the threat of diseases associated withcontamination of water and the creation of mosquitobreedingsites. Direct health effects of a floodmay include: drowning; injuries like cuts, sprains,fractures, electric shocks; diarrhoea, vector-androdent-borne diseases like malaria, leptospirosis;skin and eye infections; and psychological stress.The indirect health consequences of floods areusually due to damage caused to health careinfrastructure and loss of essential drugs, damageto water and sanitation infrastructure, damage tocrops and disruption of food supplies, destructionof property causing lack of shelter that may lead toincreased exposure to disease-vectors.Adverse effects of floods on health can beprevented by medical preparedness. Medicalpreparedness for floods constitutes the followingcomponents.3.8.2 Creating AwarenessThe state governments/SDMAs will takesteps to create awareness to the type of illnessesand other health problems that can result in theaftermath of floods, to all the medical teams andthe community at large. Hygienic practices suchas hand washing with soap and use of the toilet fordefecation, use of boiled water or adding chlorineto water and safe food cooking by disease-freepersons will be promoted.3.8.3 Creation of Trained Medical First RespondersThe state governments/SDMAs will ensurethe creation of trained medical first responders forfirst aid and resuscitation measures for drowningcases. Medical staff must know how to take outwater from the respiratory tract and how to carryout cardiopulmonary resuscitation. A list of trainedmedical and paramedical staff must also be madeavailable.3.8.4 Medical StoresMedical kits will be prepared for themanagement of flood casualties. Intravenous(IV) fluid, ventilators, oxygen, dressing materials,tetanus toxoid, antibiotics, vaccines, anti-snakevenom and anti-diarrhoea drugs will be the mostcommonly needed medical resources. Largescalemedical stores from where these materialscan be procured will be identified.3.8.5 Patient Evacuation PlanState governments/SDMAs will make availableemergency medical equipment and drugs forresuscitation. Paramedical staff must be trainedfor resuscitation, triage and to maintain vitalparameters like pulse, blood pressure, respirationand intravenous drip during evacuation. Heliambulancesneed to be deployed to aid in theevacuation of flood casualties collected at highpoints. The ambulances should have StandardOperating Procedures (SOPs) for treatment .3.8.6 Disaster Management PlansDisaster Management Plans need to beprepared by all hospitals. Medical facilities, trainingof medical personnel, creating awareness aboutdrowning and its management will be a part ofthe plan. Hospitals must nominate an officer forcoordinating management for flood casualties.Contingency plans will be made ready for providingadditional beds. Oxygen cylinders, continuouspositive air pressure (CPAP) ventilators, dressing34

Flo o d Pr e v e n t i on, Pr e pa r e d n e s s a n d Mitigationmaterials, blood and IV fluid for transfusion willbe stocked. The hospital casualty room is tobe equipped with resuscitation equipment likesuction apparatus, airways laryngoscope, pulseoxymeter, defibrillator and life saving drugs. In theaftermath of a flood, public health response is oneof the prime responsibilities of medical authorities.They will ensure safe water supply and clean foodavailability along with maintenance of hygiene andsanitation by proper bio-waste disposal. Watertesting and food inspection is required to be carriedout regularly to prevent outbreak of any epidemic.An effective communication system is an essentialrequirement for prompt medical response.35

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s4Flood Forecasting andWarning in India4.1 ConceptFlood forecasting (FF) enables us to beforewarned as to when the river is going to use itsflood plain, to what extent and for how long. Theforecast of a flood may be for the water level (stageforecast), discharge (flow forecast) and area likelyto be submerged (inundation forecast) at variouspoints/particular stations at a specific time.Of all the non-structural measures for FM,which rely on the modification of susceptibility toflood damage, the one which is gaining sustainedattention of the planners and acceptance of thepublic is flood-forecasting and warning. A nationwideflood forecasting and warning system coveringmajor inter-state rivers has been established by theCentral Water Commission (CWC). The systemunder CWC is often supplemented by the statesthat make arrangements for advance warning atother stations strategically important to them. TheCWC also extends FF services to such stations atthe request of the states concerned. With reliableadvance information/warning about impendingfloods, loss of life and property can be reduced toa considerable extent. People, cattle and valuableassets can be shifted in advance to safer places.4.2 MethodologyFlood forecasting services include the followingphases:4.2.1 Data CollectionReal time hydrological data viz. gauge anddischarge and meteorological data, viz. rainfall,are the basic requirements for the formulation ofa flood forecast. The hydrological and hydrometeorologicaldata from over 945 stations in the62 river sub-basins are daily collected, analysedand utilised for formulation of flood forecasts. Whilemost of the hydro-meteorological data are observedand collected by the field formations of CWC, FMOsof the IMD supply the daily rainfall data of their raingauge stations besides synoptic situation includingheavy rainfall warning for next 24 hours and rangeof quantitative precipitation forecasts for variousriver basins to the respective FF centres of theCWC. The CWC provides communication facilitiesto the FMOs in transmission of rainfall data of raingauge stations located at the various CWC gaugeand discharge stations.4.2.2 Transmission of Data to the ForecastingCentersTransmission of data on a real-time basis fromthe hydrological and hydrometeorological stationsto the flood forecasting centers is a vital factor inthe FF system. Landline communication i.e., bytelephone/telegram was the commonly used modefor data transmission in FF services till the beginningof the 1970s. The communication is mainly by VHF/HF wireless sets at the data observation/collectionsites and at the FF centers. There are over 500wireless stations of the CWC all over the countryfor communication of real-time data related to floodforecast.In addition to wireless communication,telephone/telex/fax/V-SAT/Internet facilities are36

Flo o d Fo r e c a s t in g a n d Wa r n in g in In d i aalso being utilised. During the Tenth Five-Year Plan,automatic water level/rainfall sensors with satellitebasedtransmitters were installed in the Chambaland lower Mahanadi basins. Installation of suchequipment in the Krishna, Godavari, Brahmaputra,Damodar, Sutlej and Yamuna river basins is inprogress. The system will be extended to otherriver basins in the Eleventh Plan period.During the flood season, the data iscommunicated two to three times in a day. Thefrequency of transmission is increased to an hourlybasis, if the flood situation so demands.Thus, the CWC is maintaining a reliable andquick system of data transmission .4.2.3 Data Processing and Formulation ofForecastsHistorical data like gauge, discharge andrainfall are utilised for the development of techniquesfor formulation of forecasts on a real-time basis.Forecasts are formulated at the FF stations bypredicting river stage/inflow with time of occurrence.After receipt of the hydrological and meteorologicaldata from field formations, the data is processed inFF centers/control rooms to check its consistencyand the data is modified, if any inaccuracy isfound, before using in forecast formulation. All theforecasting centres of the CWC have been providedwith computer facilities for data processing.The inflow forecasts are mainly formulated byusing rainfall runoff correlation developed for theparticular catchment. Computer-based watershedmodel MIKE-11, developed under CWC-DHIcollaboration, is being used for inflow forecasts.Computers enable frequent updating of predictionsbased on the observed part of the flood hydrographsof FF and base stations during the flood period.The forecasts obtained from the coaxialcorrelation diagram or mathematical models/computerised watershed models are modified,if required, to obtain the final forecast based onthe prevailing conditions in the river and heavyrainfall warnings etc. In the CWC, the forecasts areformulated by a dedicated and experienced team ofhydro-meteorologists and hydrologists.Forecasts (stage/inflow) are issued wheneverthe river stage at the FF site exceeds or is likely toexceed a specified level called warning level of thesite which is fixed in consultation with the concernedstate government. The warning level is generally 1m below the danger level of the site, although thereis no- common format designed for issuing floodforecasts by various field divisions, as forecastsare issued according to the users convenience. Inthe forecast, the current date and time of issue offorecast, present water level/inflow and anticipatedwater level/inflow with corresponding date and timeare normally included.4.2.4 Dissemination of Flood Forecasts andWarningsThe final forecasts are then communicatedto the user agencies such as the concernedadministrative and engineering authorities of thestate/central governments including railways,defence and other agencies connected withflood protection and DM by special messenger/telegram/wireless/ telephone/fax/e-mail etc. Floodforecasts are also passed on to the All India Radio(AIR), Doordarshan and local newspapers for widepublicity in the affected area.A flowchart for FF and warning is given inAnnex-IV/I.4.3 The Central Water Commission’sFlood Forecasting Network inIndiaThe CWC’s FF network covers most of theflood prone inter-state river basins in the country.The CWC is presently issuing flood forecasts for37

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s175 stations of which 147 stations are for river stageforecast and 28 for inflow forecast.River Basin- wise Distribution of FFStationsSl.NoRiver SystemNo. of FFstations1. Ganga and its tributaries 872. Brahmaputra, and itstributaries273. Barak and its tributaries 054. Eastern rivers 095. Mahanadi basin 046. Godavari basin 187. Krishna basin 098. West flowing rivers 159. Pennar 01Total 175State-wise Distribution of FF StationsSl.No.StatesNo. of FFstations1. Andhra Pradesh 162. Assam 243. Bihar 334. Jharkhand 055. Gujarat 116. Haryana 017. Karnataka 048. Madhya Pradesh 039. Chhattisgarh 0110. Maharashtra 0911. Orissa 1212. Tripura 0213. Uttarakhand 0314. Uttar Pradesh 3515. West Bengal 1416. Dadra and Nagar Haveli 0117. NCT of Delhi 02Total 1754.4 Expansion and Modernisation ofFlood Forecasting ServicesExpansion and modernisation is a continuousprocess. The CWC has undertaken variousexpansion and modernisation schemes to covermore areas and to make forecasting moreefficient and reliable. The IMD has also taken upthe expansion of its network of Automatic RainGauges. The Ministry of Earth Sciences (MOES) ismaking efforts for the procurement of 12 DopplerWeather Radars (DWRs) for continuous monitoringof evolving extreme weather phenomena includingheavy rainfall events along the coastal areas apartfrom tracking cyclones. Gradually, the DWR networkwould cover the whole country and in the processall the major river basins as well.The CWC, IMD and the state governments willincrease the density of the basin-wise network ofrain gauge and river gauge stations and establishbasin-wise system of FF and early warning. VariousFF initiatives, as listed below, will be taken by theCWC, IMD and the states.a) Data collection: Data will be collectedusing IMD, CWC and Bureau of IndianStandards (BIS) approved automaticsensors for rainfall and river flowmeasurements. A centralised mechanismfor collection, archival and distribution ofhydrological data from various river basinswill be established on priority basis.b) Data transmission: Data will be transmittedusing modern automatic telemetry datatransmission techniques e.g. satellite,VSAT, Internet/e-mail, mobile phones etc.c) Flood forecast and impact assessmentmodels: Computer- based comprehensivecatchment scale hydrological andhydrodynamic models interfaced withflood plain inundation mapping tools willbe developed.38

Flo o d Fo r e c a s t in g a n d Wa r n in g in In d i ad) Forecast dissemination: Forecast will bedisseminated using computer networksand satellite e.g. Internet, e-mail, VSAT,the terrestrial communication network,connectivity of the National InformaticsCentre (NIC) etc.e) Flood hazard mitigation model: Basinwiseflood hazard mitigation models willbe developed.f) Damage assessment and quantificationmodels: Damage assessment andquantification models will be developedon priority.g) Advisories for flood relief routes: Advisoriesfor facilitating flood relief routes will beformulated and issued.h) Value addition: Flood forecasts andwarnings will be formulated, preferably,in the local language, in a format which issimple and easily understandable by theadministrators and common people aswell. CWC will also improve the usefulnessof the forecasts and warnings by markingthe area likely to be inundated, location offlood shelters etc. on the map of the area.4.5 Coordination among the CentralWater Commission, India MeteorologicalDepartment and theStatesThe state governments will, as soon aspossible, and not later than March 2008, establisha mechanism wherein representatives of the CWC,IMD, NRSA and the states interact with each other,exchange data on a real-time basis and formulatethe flood forecasts and warnings, which are morereliable and understandable by the forecasters,administrators and the public to minimise loss oflives and property on account of floods. The CWCwill also forecast the area likely to be inundatedcorresponding to the expected river water level.4.6 International Cooperation4.6.1 International DimensionsA number of rivers originate beyond the bordersof India in Nepal, Bhutan and China and flow intothe country due to its geographical position. Someof these rivers constitute boundary between twocountries over a part of their length. Therefore thecooperation of these countries in establishing a FFand W system that is reliable and gives enough leadtime to the state governments for planning relief andrescue measures is required.4.6.2 Cooperation with NepalThe rivers Ghaghra, Sarda, Rapti, Gandak,Burhi-Gandak, Bagmati, Kamla, Kosi andMahananda, which create flood situations inthe states of Uttar Pradesh and Bihar in India,originate in Nepal. In order to make FF andadvance warning in the flood plains of the aboverivers flowing from Nepal, a scheme titled, ‘FloodForecasting and Warning System on RiversCommon to India and Nepal’ which includes 42hydro-meteorological sites in Nepal and 18 in India,has been in operation since 1989. To make it moreeffective and purposeful, a plan for modernisationof the system has been recently accepted byboth countries. However, even this plan does notinclude installation of automatic water level, rainfalland climatic sensors and the transmission of datais either through wireless or post.The system of hydro-meteorologicalobservations and transmission of data will bemodernised by installing automatic sensorsand satellite-based transmitters. Negotiations in39

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sthis regard with the government of Nepal will beexpeditiously concluded by the MOWR/MEA.4.6.3 Cooperation with BhutanPresently, 35 hydro-meteorological stationsare located in Bhutan. These are being maintainedby the government of Bhutan and their data istransmitted to India through a network of wirelessstations. A Joint Experts’ Team consisting ofofficials from the GOI and the government ofBhutan was set up during 1979. It monitors thisnetwork through regular inspections and meetings.The hydro-meteorological observations and datatransmission network are manual and the data areliable to have observational errors apart from delayin transmission of data.The system will be modernised by the CWCwith the installation of automatic sensors forobservation of data and satellite-based transmittersfor its transmission on a real-time basis.4.6.4 Cooperation with ChinaAs a result of landslides, the debris eithernaturally occurring or activated by variousdevelopmental activities, partially or fully block theriver courses. The subsequent collapse of theseblockages results in flash floods in the states ofJammu and Kashmir, Arunachal Pradesh, Assamand Himachal Pradesh. The sudden release ofwater from reservoirs constructed on the Sutlej andTsangpo (Brahmaputra) and their tributaries alsoresults in flash floods. This, combined with heavyrainfall in the area aggravates the problem. By wayof cooperation with China in the field of exchangeof information on flood management, India hassigned an agreement for data transmission inrespect of the Tsangpo Siang/Brahmaputra during2002 under which India has been receiving waterlevel data from China with regard to three sites onthe river, twice a day. This has helped to a certainextent in improving the warning time of floodforecasts in respect of the Brahmaputra basin.Another Memorandum of Understanding ( MOU)was signed during April 2005 for establishinghydrological station on the Sutlej river in Tibetby China and hydro-meteorological data of thissite will be received twice a day by India afterthe signing of an Implementation Plan. This willhelp India to establish a FF and W system onthe river Sutlej in Himachal Pradesh. However, withthe travel time of the water from the observationcenter to the damage centre in India, being small,more hourly exchange of information is required.The data on some more tributaries of these riversand the river Indus is also required. Also a systemof informing India of blockages in rivers’ coursesand advance warning about releases from thereservoirs is also required.Negotiations with China will be expedited bythe MOWR and MEA for extending cooperationwith respect to exchange of hydro-meteorologicaldata of rivers common to China and India onmore rivers and by increasing the frequency oftransmission to an hourly basis. The ongoingeffort for reaching an understanding for passinginformation on blockages in rivers and releaseof water from the reservoirs constructed on therivers and their tributaries will also be expeditedand a mechanism for exchange of information putin place at the earliest.40

Flo o d Fo r e c a s t in g a n d Wa r n in g in In d i a4.7 Action Plan for Flood Forecasting and Warning41

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s5Dams, Reservoirs andOther Water Storages5.1 IntroductionNatural lakes, low-lying depressions, swampsetc., store substantial amount of water flows resultingfrom rains and help in reducing the dischargeinto the rivers and flood inundation. The waterstored in these depressions etc., can be used forirrigation, power generation, industrial and drinkingwater needs. Their capacities can be improved bydesilting and constructing embankments aroundthem. Some of the water stored in these waterbodies percolates below the ground thereby addingto the groundwater storage. Thus, in addition toflood moderation, these water storages also help inwater conservation and groundwater recharge.5.2 Natural Detention BasinsDetention basins are usually formed by utilisingnatural depressions/swamps and lakes by improvingtheir capacity through construction of encirclingembankments and providing suitable devices forregulating the release of stored water. Since the landunder the marshes or low depressions may hardlyrequire much compensation and rehabilitationmeasures, this method is relatively inexpensive.The Ghaggar diversion scheme in Rajasthan is agood example where water has been diverted intodepressions. Depressions on the left bank of theriver Jhelum, upstream of Srinagar city in Jammuand Kashmir; the Mokama Tal area in Bihar; the Ottu,Bhindawas and Kotla lakes in Haryana and variousbeels/hoars on the banks of the Brahmaputra andBarak rivers in Assam are a few examples of naturaldetention basins .Moderation of floods by utilising naturaldepressions, swamps and lakes to which a portionof floodwater can be diverted, is an effective methodof protection from floods depending on topographyof the particular area. It is an economical alternativeto construction of dams and reservoirs especiallyfor flood moderation.Therefore the state governments/SDMAswill study the availability of natural depressions,swamps and lakes in the vicinity of the rivers andwherever required and feasible, utilise them fortemporary storage of floodwaters.5.3 Dams and ReservoirsDams and reservoirs store water during floodsthe quantum of which depends on the availabilityof space in the reservoir thereby reducing the floodpeak downstream. The stored water is releasedfrom the reservoir for meeting water requirementsfor irrigation, power generation, and drinking andindustrial purposes. The water is also released intothe river downstream subject to its safe carryingcapacity to make space in the reservoir foraccommodating future floods as per the reservoirregulation manual.Reservoirs provide a good long-term solution tothe problem of floods. They are more effective for floodcontrol if a designated space is reserved. The NationalWater Policy 2002 has recommended the provision ofan adequate flood cushion in water storage projectsand that flood control be given overriding considerationin the reservoir regulation policy.42

Da m s, Re s e r v o i r s a n d Ot h e r Wat e r St o r a g e sReservoirs themselves may not offer completeflood protection for various reasons. Embankmentsalong the river in the downstream reaches areoften required as a supplementary measure tocontain the residual floods. Reservoirs, to theextent technically and economically feasible, are animportant component in any package of measuresfor FM. Reservoirs also ensure optimum utilisationof water resources.The state governments/SDMAs/central agencies,wherever feasible, will therefore plan all the new damsand reservoirs with specific flood cushion provisions,prepare their Detailed Project Reports (DPRs) andcomplete the works in India by the year 2020 and inNepal and Bhutan by the year 2025.5.4 Regulation of ReservoirsReservoirs in general have a beneficial effect onthe flood problems of a basin. Their effectivenessin moderating flood would depend on the capacityavailable for absorbing flood runoff.Reservoirs can, however, also accentuate theflood problem in the downstream areas if the rulesfor their regulation are not prepared consideringthe flow-carrying capacity of the rivers and thesafety of the dams. Similarly, if the reservoirs arenot operated according to the operation manualand the reservoir is filled at the beginning of themonsoon season for meeting water demands forirrigation, hydropower, drinking and industrial watersupply, a large quantity of water may suddenly haveto be released to prevent the crossing of MaximumWater Level (MWL) and for ensuring the safety ofthe dam which may lead to flooding downstream.The inability on the part of the agency in charge ofoperating the reservoir to anticipate intense rainfallin the catchment, and consequent large inflows intothe reservoir, may also necessitate the release ofa large quantity of water resulting in large-scaleflooding.The Experts’ Committee to review theimplementation of the recommendations of theRBA studied the working of five major storage damsviz., Bhakra, Hirakud, Rengali, Nagarjunasagar andSrisailam, especially with regard to flood control.Among them, only the Rengali dam has a speciallyallocated flood reserve. The others are multipurposeprojects with flood control as one of thebenefits. The general conclusions drawn by theCommittee are:(i) The Hirakud dam moderated all the floodpeaks that passed through it.(ii) The Bhakra dam also moderated the floodpeaks excepting the flood peak in 1988.(iii) The other dams too generally helped inmoderation of the floods peaks.(iv) The importance given to flood moderationas originally envisaged got diluted overthe years by giving higher importance tohydropower generation and irrigation.(v) Reservoir regulation schedules could bevastly improved by revising the existingprocedures and guidelines, and by givingFM its due importance.(vi) The flood plains downstream of the Damhave been encroached upon withoutconsidering the consequences.(vii) For each reservoir, the feasibility ofimprovement in operation manual shouldbe studied by an expert group which willgo into the past operations, priorities in theapproved project and the manner in whichthe flood moderation can be improvedupon without undue compromise on otherbenefits. In highly flood prone areas, inaccordance with the provisions of theNational Water Policy (2002), flood control43

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d shas to be given overriding considerationin the reservoir operation policy even atthe cost of sacrificing some irrigation andpower benefits.A case study of Hirakud dam in order toillustrate these points is given in Annex-V/I.It can be concluded that reservoirsdo moderate floods. The extent of moderationdepends upon available space in the reservoir forstorage of water during floods. Full reservoir levelis required to be achieved, as early as possible, formeeting water demands for irrigation, hydropowergeneration, drinking and industrial water supply.Reservoir operation manuals/rule curves areformulated to optimise flood moderation as well asother benefits.Every state government/SDMA will:(i) draw up an action plan by June 2008 forcompleting the review/modification of rulecurves and operation manuals within aperiod of three years.(ii) set up experts committees/reviewcommittees by September 2008 with theCWC’s representative as a member forreview of rule curves/operation manualsfor each of the major reservoirs.(iii) review the operation rules of all the existingreservoirs and modify them by December2009 making them appropriately consistentwith the safety requirements of the structure,flood moderation and other uses.(iv) make arrangements of forecast of inflowsinto the reservoirs incorporating latesttechnology for collection of real-time data,and analysis and mathematical modellingfor formulation of forecast either on theirown or through the CWC.(v) install automatic water level sensors withsatellite-based transmitters at all thereservoirs and share real-time data duringthe monsoon period among the basinstates.(vi) once the protocols are worked out and putin place, set up an appropriate mechanismfor ensuring strict enforcement, without anydeviation of the operational rules so thatlocal compulsions do not cause avoidableloss of life and property elsewhere.The state governments/SDMAs will beassisted by the CWC and the IMD in implementationof the above measures.5.5 Dam Safety AspectsDams will be subject to a dam safetyprogramme, both at the national and state levels toensure that the specialised expertise required forthe inspection of all structures is available.Dam safety programmes will be carriedout strictly in accordance with the standardsand guidelines laid down by the Dam SafetyOrganisation of the CWC. Dam Safety Reviewinvolves review of design flood, spillway capacity,structural soundness of the dam, spillway andappurtenant works and, if required, taking up ofremedial measures in the form of augmentingthe capacity of spillway by appropriate works orconstructing additional spillways, strengtheningof the dam, spillway and appurtenant works andcompleting the same in a fixed time frame.Pre-monsoon and post-monsoon inspectionsof dams will be carried out by experts andsubsequent recommendations implemented bythe state governments/SDMAs in a fixed time frameto ensure continued service and safety.44

Da m s, Re s e r v o i r s a n d Ot h e r Wat e r St o r a g e s5.6 Action Plan45

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s6Regulation and Enforcement6.1 Flood Plain Zoning6.1.1 ConceptThe basic concept of flood plain zoning is toregulate land use in the flood plains to restrict thedamage caused by floods. Flood plain zoning,therefore, aims at determining the locations andthe extent of areas for developmental activitiesin such a fashion that the damage is reduced toa minimum. It, therefore, envisages laying downlimitations on development of both the unprotectedas well as protected areas. In the unprotectedareas, boundaries of areas in which developmentalactivities will be banned, are to be established toprevent indiscriminate growth. In the protectedareas, only such developmental activities can beallowed, which will not involve heavy damage in casethe protective measures fail. Zoning cannot remedyexisting situations, although, it will definitely help inminimising flood damage in new developments.Flood plain zoning is not only necessaryin the case of floods by rivers but it is also usefulin reducing the damage caused by drainagecongestion particularly in urban areas where, ongrounds of economy and other considerations,urban drainage is not designed for the worstconditions and presupposes some damage duringstorms whose magnitude frequently exceeds thatfor which the drainage system is designed.6.1.2 Pre-requisites for the Enforcement ofFlood Plain ZoningThe basic requirements to be taken care ofbefore implementing flood plain zoning are asfollows:(i) Broad demarcation of areas vulnerable tofloods.(ii) Preparation of a large-scale maps(1:10,000/1:15,000) of area vulnerable tofloods with contours at an interval of 0.3m or 0.5 m.(iii) Marking of reference river gauges withrespect to which, the areas likely to beinundated for different magnitudes offloods will be determined.(iv) Demarcation of areas liable to inundationby floods of different frequencies, e.g., likeonce in two, five, ten, twenty years and soon. Similarly, demarcation of areas likelyto be affected on account of accumulationof rainwater for different frequencies ofrainfall like 5, 10, 25 and 50.(v) Marking of likely submersion areas fordifferent flood stages or accumulation ofrainwater on the maps.6.1.3 Regulation of Land Use in Flood ProneAreasThere can be different considerations forsuch regulations. For example, the area likely tobe affected by floods up to a 10-year frequencyshould be kept reserved only for gardens, parks,playgrounds, etc. Residential or public buildings,or any commercial buildings, industries, and public46

Re g u l at i on a n d En f o r c e m e n tutilities should be prohibited in this zone. In arealiable to flooding in a 25-year frequency flood,residential buildings could be permitted with certainstipulation of construction on stilts (columns),minimum plinth levels, prohibition for constructionof basements and minimum levels of approachroads, etc. In urban areas there should be doublestoreyedbuildings. Ground floors could be utilisedfor schools and other non-residential purposes.6.1.4 Categorisation and Prioritisation ofStructures in Flood Plains ZoningIn the regulation of land use in flood plains,different types of buildings and utility services canbe grouped under three priorities from the point ofview of the damage likely to occur and the floodplain zone in which they are to be located:Priority 1: Defence installations, industries,public utilities like hospitals, electricity installations,water supply, telephone exchanges, aerodromes,railway stations, commercial centres, etc.-Buildings should be located in such a fashion thatthey are above the levels corresponding to a 100-year frequency or the maximum observed floodlevels. Similarly they should also be above thelevels corresponding to a 50-year rainfall and thelikely submersion due to drainage congestion.Priority 2: Public institutions, governmentoffices, universities, public libraries and residentialareas. -Buildings should be above a levelcorresponding to a 25-year flood or a 10-yearrainfall with stipulation that all buildings in vulnerablezones should be constructed on columns or stiltsas indicated above.Priority 3: Parks and playgrounds.-Infrastructure such as playgrounds and parkscan be located in areas vulnerable to frequentfloods. Since every city needs some open areasand gardens, by restricting building activity in avulnerable area, it will be possible to develop parksand play grounds, which would provide a properenvironment for the growth of the city.On the same analogy, certain areas oneither side of the existing and proposed drains(including rural drains) should be declared as greenbelts where no building or other activity should beallowed. This will not only facilitate improvementof these drains in future for taking discharges onaccount of growing urbanisation, but will also help inminimising the damage due to drainage congestionwhenever rainfall of higher frequency than designedis experienced. These green belts, at suitablelocations, can also be developed as parks andgardens.6.1.5 Flood Plain Zoning RegulationsThe CWC has been continuously impressingupon the states the need to take follow-up actionto implement the flood plain zoning approach. Amodel draft bill for flood plain zoning legislation wasalso circulated by the union government in 1975 toall the states. A copy of the model draft bill is atAnnex-VI/IThere has been resistance on the part ofthe states to follow-up the various aspects of floodplain management including possible legislation.The state of Manipur had enacted the floodplain zoning legislation way back in 1978 but thedemarcation of flood zones is yet to be done. Thestate of Rajasthan has also enacted legislation forflood plain management in the state. It has not takenany action to enforce it though. The governmentsof Assam, Goa, Himachal Pradesh, Sikkim andthe Union Territories (UTs) of Chandigarh, Delhiand Lakshadweep have stated that they have notconsidered enactment of any type of legislation intheir states. The government of Uttar Pradesh hasdecided to take suitable measures for regulating theeconomic/development activities in the flood plains.The government of Bihar initiated action to prepare47

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sflood plain zoning maps, which are essential beforeany executive measures could be undertaken. Thegovernment of West Bengal had intimated that adraft bill on flood plain zoning was under process.The government of Madhya Pradesh had intimatedthat they had demarcated 36 towns affected byfloods and that necessary administrative measureswere taken towards the demarcation of flood zones.Other state governments have not even spelt outtheir approaches. The reluctance of the states toenact flood plain zoning regulation is mainly dueto population pressure and want of alternativelivelihood systems.The lukewarm response of the states towardsthe enactment and enforcement of the flood plainregulations has fuelled a significant increase in theencroachments into the flood plains, sometimesauthorised and duly approved by the town planningauthorities.The state governments/SDMAs will enact andenforce appropriate laws for implementing floodplain zoning regulations by March 2009.6.2 Incentives and Disincentives toStates for Enactment and Enforcementof Flood Plain ZoningRegulationsThe MOWR will, in consultation with the stategovernment and the CWC evolve a scheme ofincentives and disincentives with respect to thecentral assistance to encourage the states forenactment and enforcement of flood plain zoningregulations.6.3 Encroachment into the Waterwaysand Natural Drainage LinesThe possibility of removing buildings/structures obstructing existing natural drainage lineswill be seriously considered by state governments/SDMAs. In any case, and with immediate effect,unplanned growth will be restricted by stategovernments/SDMAs so that the construction ofstructures obstructing natural drainage or resultingin increased flood hazard is not allowed.6.4 Bye-laws for Buildings in FloodProne AreasThe following provisions will be incorporatedby the state governments/SDMAs/local bodies inthe building bye-laws for buildings in flood proneareas:(a) Plinth levels of all buildings should be 0.6m above the drainage/flood submersionlines.(b) In the areas liable to floods, all the buildingsshould preferably be double and multiplestoreys.Wherever there are single storey buildings, astairway will invariably be provided to the roofs sothat temporary shelter can be taken there. The rooflevels of the single storey buildings and the firstfloorlevel in double-storey buildings will be above100-year flood levels so that the human beings andmovable property can be temporarily sheltered thereduring periods of danger on account of floods.6.5 Legal Framework for Making InfrastructureFlood ResilientThe infrastructural activities by the differentorganisations, such as the Indian Railways, NationalHighway Authority of India (NHAI) the State PublicWorks Department, BRO etc. in the flood proneareas need to be carried out duly consideringthe requirements for making them flood resilient.While constructing railway lines and roads, careis sometimes not taken in aligning, locating anddesigning with respect to height and width of48

Re g u l at i on a n d En f o r c e m e n tembankments and providing adequate waterway i.ebridges, culverts, vents and causeways for passageof storm water. The top level of the railway/roadembankments is also often not kept above the floodlevels in the area. It may be mentioned here thatflood levels are likely to increase with developmenttaking place in the catchment such as reduction invegetative cover, deforestation, paving of areas forsettlements etc. as well as due to the afflux causedby obstruction to the flow due to inadequate size ofbridges, culverts, vents and causeways. The resultis increased vulnerability of the area to flooding anddrainage congestion, submergence of roads andrailway embankments and breaches in them.An appropriate legal framework will bedeveloped by the state governments/SDMAs soas to make it mandatory for obtaining clearancefor the plans for construction of the infrastructurein flood prone areas from states’ irrigation/floodcontrol/water resources departments with respectto their safety against floods and effects thereof onthe vulnerability of the area to floods and drainagecongestion, who will process the cases in a fixedtime frame.6.6 Survey of Flood Prone AreasOne of the main requirements forimplementation of flood plain zoning measure isthe availability of survey maps, on a suitably largescale, to enable proper zoning of vulnerable areasand preparation of flood risk maps. The CWC hadinitiated, in 1978, a programme for surveying areasprone to floods under the central sector through theSurvey of India (SOI) as a pilot scheme, to assist thestate governments in preparing flood risk maps. Ofthe 106,000 sq km of area identified in the countryas prone to frequent floods, about 55,000 sq. km.had been surveyed in the states of Bihar, Assam,Uttar Pradesh, West Bengal, Punjab, Haryanaand Jammu and Kashmir. Maps on the scale of1:15,000 with contour interval of 0.3 m/0.5 m weremade available to the states. These maps coverareas along the main river Ganga and its tributaries- the Yamuna, Ramganga, Roopnarayan, Jalangiand other flood prone rivers of West Bengal, thetributaries of the Brahmaputra like Burhi Dihing,Desang and Dikhoo, the rivers Sutlej and Ravi,which had been earlier identified by the stategovernments concerned and work taken up in aphased manner as per the priorities indicated bythe states. A total of 570 maps (109,267 sheets) tothe scale 1:15,000 were prepared and sent to therespective state governments as well as to the GFCCand Brahmaputra Board for preparation of floodrisk zone maps. However, no progress has beenmade by any of the states to finalise and publicisesuch maps. It is felt that each state should selectat least one basin for preparation of these mapson pilot basis and come out with a factual reportgiving the benefits of these and also the difficultiesencountered by them in the task. In the event ofmaps of 1:15,000 scale not being available, thesame exercise can be attempted on maps of largerscale 1: 25,000 or 1:50,000, which are available forall regions of India. A MOU was signed in March2006 between the CWC and SOI for digitisation ofthe above maps and this is targeted for completionin two years.The Indian Space Research Organisation(ISRO) has formulated, for the Eleventh Five-YearPlan period, a programme for DMS services wherein“creation of digital, thematic and cartographic database for hazard zonation and risk assessment andrealization of national data base for emergencymanagement have been identified as one of theprogramme elements. Under this programme, ISROand NRSA have planned to cover about 1 lakh sqkm (10 million ha) every year for development ofclose contour information of ground using the AirborneLaser Terrain Mapping (ALTM) system therebyenvisaging to cover all the priority flood prone areasin a period of five years. Phasing of the area to besurveyed will be done by them in consultation with49

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sthe CWC so that the most vulnerable areas arecovered first.6.7 Wetlands: Conservation and RestorationWetlands provide effective flood moderationby being available to accommodate the floodwater. The existing wetlands should be revived andmaintained properly. The flow of fresh water intothese wetlands must be ensured.The reclamation of the existing wetlands/natural depressions will be prohibited by stategovernments/SDMAs and they will formulate anaction plan for using them for flood moderation.6.8 Watershed Management includingCatchment Area Treatmentand Af forestationWatershed management though not veryeffective in the case of large floods, helps in themoderation of small and medium floods. It isalso very effective in the overall land and watermanagement. It also leads to reduction in soil erosionand overall reduction in sediment load of the rivers.A watershed is identified as the ideal geophysicalunit for planning and executing developmentprogrammes aimed at achieving rational utilisationof all natural resources for sustainable developmentwith least damage to the environment. It is essentialto ensure efficient utilisation of rainfall and safedisposal of runoff and the watershed approachis best suited to meet this goal. The watershedapproach can help enhance local and regionaleconomic viability of the FM objective in ways thatare environmentally sound and consistent withwatershed objectives. The watershed approachstrengthens teamwork between the public andprivate sectors at the national, state and local levelsto achieve the greatest environmental improvementswith the resources available. This emphasis givesthose people who depend on water resources fortheir health, livelihood or quality of life, a meaningfulrole in the management of the resources. Throughsuch active and broad involvement, the watershedapproach can help in developing a sense ofcommunity, reduce conflicts, increase commitmentto the actions necessary to meet the goals of thesociety and, ultimately, improve the likelihood ofsustaining long-term environmental improvements.The Ministry of Agriculture (MOA) andMinistry of Environment and Forests (MOEF)will, in collaboration with the NDMA, MOWRand state governments, implement watershedmanagement including catchment area treatmentand afforestation programmes to improve land andwater management which will, in turn, result in floodmoderation and sediment management in rivers.6.9 Coordination and EnforcementIt is important that an appropriate technolegalregime is put in place for the regulationof developmental activities in the flood plains,preventing blocking and encroachment ofwaterways, prohibiting reclamation, conservationand restoration of existing wetlands and depressionsetc. Provisions are required in the bye-laws ofULBs and PRIs to ensure that buildings and theinfrastructure in flood plains are flood resilient.The state governments will put in placemechanisms for the enforcement of the acts, lawsand rules made by them and identif y the officerswho will be responsible for their implementation andmake them accountable for any lapses/violations.The NDMA will coordinate the establishmentof the mechanisms and enforcement by thecentral ministries and departments concernedand the state governments/SDMAs/DDMAson the basis of these guidelines. The mainobjective of this effort will be to enable the50

Re g u l at i on a n d En f o r c e m e n tDM structures at various levels to expand theircapacities and refocus their activities to enablethem to respond rapidly and effectively to aflood situation.6.10 Action Plan51

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s7Capacity Development7.1 Flood EducationThe state governments will strengthen FMeducation by facilitating the incorporation of thebest available technical and non-technical inputson FM in educational curricula. This effort willaddress the multi-faceted aspects of FM coveringthe pre- and post-flood situations that include theinculcation of a culture of prevention, mitigationand preparedness as well as effective and promptresponse, relief, rehabilitation and recovery. Casehistories of major flood events will be used asvaluable inputs in the process.The MHA and MOWR in consultation with theMinistry of Human Resource Development (MHRD)and the state governments will promote the effortsof flood education based on the development ofhigh-quality education materials, textbooks andfield training.Disaster-related curricula have already beenintroduced by the Central Board of SecondaryEducation (CBSE) for classes VIII, IX and X.The MHA and MOWR, in consultation with the MHRD,will encourage the CBSE to introduce modules of FMin classes XI and XII as well. The state governments/SDMAs will encourage their school boards todevelop similar content in their school curriculum.The MHA and MOWR in consultation with theMHRD, All India Council of Technical Education(AICTE), University Grants Commission (UGC),Council of Architecture (COA), Institution ofEngineers (IE) and the state governments will developsuitable modules for inclusion in the curricula ofarchitecture and engineering courses in the IndianInstitutes of Technology (IITs), National Institutes ofTechnology (NITs) and other universities, collegesand polytechnics of engineering and architecture toequip the students with the requisite knowledge offlood-proof design and construction techniques.The subject of disaster medicine coversaspects such as trauma care, epidemic control,emergency medical care by paramedics andemergency medical technicians, and telemedicine.Disaster Management related aspects of medicaleducation will receive detailed attention at theundergraduate level, so that graduating doctorsare able to handle emergencies with a betterunderstanding of the issues involved.The MHA will, in consultation with the Ministryof Health and Family Welfare (MOHFW), MOWR andother related agencies, facilitate the introduction ofsubjects related to the management of diseasescaused by disasters including floods in theundergraduate medical curriculum.The state governments will be encouragedto introduce a five-year quality improvementprogramme for teachers and professionals engagedin teaching the subjects related to FM. The ongoingtechnical education programmes for collegeteachers, will be strengthened and expanded toaddress the gap between the requirement andavailability of quality teachers conversant withflood proof design and construction. All suchtraining programmes will incorporate testing andcertification of trainees.52

Ca pa c i t y De v e lo p m e n t7.2 Target Groups for Capacity DevelopmentThe target groups for capacity developmentwill include elected representatives and governmentofficials, concerned with the national and state levelDM functions, professionals in visual and printmedia, urban planners, infrastructure developmentexperts, engineers, architects and builders, NGOs,community-based organisations (CBOs), socialactivists, social scientists, youth organisations suchas National Cadet Corps (NCC), National ServiceScheme (NSS), Nehru Yuvak Kendra Sangathan(NYKS), school teachers and school children.Specially designed public awarenessprogrammes will be developed by the stategovernments/SDMAs/DDMAs for addressing theneeds of physically handicapped and mentallychallenged people, women and the elderly. Thestates Police Force, Civil Defence, Home Guardsand SDRFs will also be covered by such efforts.The people will be made aware of the need to keepspecial kits containing medicines, torch, identitycards, ration card and non- perishable eatablessuch as dry fruits, roasted chana etc. ready beforecommencement of monsoon so that, they cancarry the same with them, in case, they have tobe evacuated .The community will also be trainedfor preparation and utilisation of improvised floodrescue devices with household articles.7.3 Capacity Development of ProfessionalsThe NIDM will, in consultation with reputedknowledge institutions, develop comprehensiveprogrammes and a national plan for creating a poolof trainers from among trained faculty membersof engineering and architecture colleges as alsoamong professionals. State governments/SDMAswill identify potential trainers to develop trainingprogrammes at basic, intermediate and advancelevels. These training programmes will be pilottested,critically evaluated, upgraded, documented,and peer-reviewed. Training modules will bedeveloped and continuously upgraded based onthe evaluation and feedback from participants.7.4 TrainingIn order to increase the thrust towards FMeducation in India, the MOWR will identify a numberof leading institutes and universities and encouragethe creation of dedicated chaired positions forfaculty members working in the area of FM relatededucation and research. Such institutions will alsooffer the services of such experienced facultymembers to participate in the activities specified inthese guidelines.The NIDM and NFMI (when set up) under theguidance of the NDMA at the national level, and stategovernments/SDMAs and Administrative TrainingInstitutes (ATIs) at the State level, will organisetraining of elected representatives MPs, MLAs andCounsellors, members at the district, taluka, cityand village levels, administrative personnel fromall central ministries and departments and stategovernments. Members of the police force, CivilDefence, Home Guards, SDRFs and the schoolteachers and NGOs will also be provided trainingin DM.In accordance with these guidelines, the NIDMand NFMI will evolve action plans and nationalstrategy, in collaboration with the ATIs and othertechnical institutions, to offer a comprehensivecurriculum related to flood mitigation management,preparedness and response in the form of trainingmodules for the various target groups and initiatethe design, development and delivery of the sameat the earliest by June 2008. The NDRF, SDRF andCivil Defence coordinated by state governments/SDMAs/DDMAs, will impart training to public in floodpreparedness, flood mitigation and response.53

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s7.5 Research and DevelopmentThe state governments will proactively supportapplication oriented research and developmentalactivities to address contemporary challenges,generate solutions, and develop new techniquesto improve their sustainability in floods.Scenario analysis and simulation modellingare extremely useful for undertaking long-termDM programmes and for strengthening floodpreparedness, mitigation and response efforts.Risk assessment and scenario projectionsrequire data on the existing built-environment,infrastructure, and economic activities. Absence ofsuch data can lead to assumption-based scenarios.The MOWR will, with the support of the CWC, NRSAand the state governments arrange for systematiccollection of data and incorporate the same inits data bank with an efficient retrieval system.It will encourage the development of standardisedmethods for flood risk assessment and scenariodevelopment. It will also evolve in collaborationwith the NDMA, a procedure for undertaking pilotprojects in risk assessment and scenario analysisand develop state-of-the art reports.The quantification of flood risk for a specifiedarea requires detailed information on a numberof factors, such as rainfall, river flow, catchmentcharacteristics, topography of the area includingclose contour large scale maps and DigitalElevation Model (DEM). Information on the typeof construction with economic value of buildings,structures, infrastructure, industries etc. is alsorequired. Flood studies will be carried out to guidethe development of appropriate land-use zoningregulations for important urban areas and areaswith critical structures and vital installations. Thesestudies will follow a multidisciplinary approach,with the requirements of the end-users (e.g., urbanplanners, design engineers, and emergencymanagers), and peer-reviewed before publication.The MOWR and the CWC will provide necessaryassistance to the state governments in this regard.All currently available maps are small-scalemaps unsuitable for hazard and risk analyses atthe district and local levels. The MOWR will, incollaboration with nodal scientific agencies andinstitutions such as the NRSA, SOI, etc., ensure thepreparation of large-scale hazard maps of floodprone areas of high vulnerability. The reliability offlood hazard maps will depend on the accuracyof base maps and the approach followed intheir GIS-based integration and subsequentvalidation. Unplanned urbanisation, neglect ofslope maintenance, poor surface and subsurfacedrainage network in the area, deforestation andpoorly planned and substandard constructionsgreatly increase the damage potential. Floodhazard maps will be the basis for a strategy to bedeveloped to minimise loss of life and property infloods. The MOWR will, in collaboration with thestate governments, CWC, Brahmaputra Board andGFCC, undertake this activity and complete thesame by the 31 January 2010.An important component of preparednessfor floods is the construction of suitable shelters forthe flood-affected people during the relief period.The state governments will design such shelters,keeping in mind the climatic conditions of theaffected area and the functional needs of theaffected people. Appropriate locations forconstructing shelters in the event of floods willbe identified and data collected on the minimumhealth and hygiene standards that need to beensured in such shelters. Maintenance of sheltersis a major issue. The MOWR will, in consultationwith the CWC, Brahmaputra Board, GFCC, CentralBuilding Research Institute (CBRI) and the stategovernments, evolve a model design of the sheltersfor flood prone areas in different regions. TheState governments/ SDMAs will ensure use of theshelters through the district and local authorities forpurposes such as running schools, anganwadis or54

Ca pa c i t y De v e lo p m e n tother facilities to promote proper maintenance sothat these are available in good condition duringfloods as and when required.The state governments in collaboration withthe MOWR and CWC will carry out studies aimedat developing watershed models suitable for usingremotely sensed information as inputs, in order topredict flood flow under ‘inadequate’ or ‘no data’situations. Efforts will be intensified to evolve more andmore mathematical models and use them to introducebetter rationality in decision-making processes.The state governments/SDMAs will undertakemathematical model studies for long reachescomplemented by physical model studies forproblem reaches for FM works of a permanentnature e.g. embankments, spurs, revetments, etc.involving huge costs and having significant impacton river behaviour. They will also upgrade thefacilities in their respective research stations.The MOWR and CWC will, in collaborationwith the state governments, and other Institutionssuch as Central Water and Power Research Station(CWPRS), National Institute of Hydrology (NIH), IITs,universities, and expert organisations/consultancyfirms, undertake comprehensive morphologicalstudies on international and inter-state rivers causingerosion and flooding to predict river behavior overshort, medium and long periods, identif y spots/reaches vulnerable to erosion and evolve ecofriendlyand cost-effective measures having no orlittle impact on river regime to prevent erosion andflooding. It will encourage the state governmentsto enhance the capability of their institutes andundertake more such studies through them onother rivers within their territories.The MOWR will also sponsor visits in Indiaand abroad for equipping the officials of relatedorganisations and the state governments with theknowledge and skills necessary to undertake suchstudies.7.6 DocumentationThe MOWR will facilitate the preparation of films,manuals and other documents targeting variousstakeholders to inculcate a culture of flood safety.State governments will make available flood relatedinformation in multiple formats, so that differentgroups of stakeholders can gather the informationrelevant to them. State governments/SDMAs willset up websites and portals to disseminate all floodrelated information to stakeholders groups.This information will include specific details onflood risk and vulnerability of the areas, flood riskmitigation measures and their effects on safety ofthe built environment.The state governments will encourage andassist subject matter specialists from academiaand industry to prepare technical documents onthe concepts of flood behaviour. Fine-tuning thetechnical specifications for making new and oldbuildings and structures flood proof will be a priorityarea. National and regional libraries and informationcentres will be encouraged to build significantrepositories of technical resources (books, reports,journals, electronic documents, and others) relatedto FM.The implementation of these guidelinesrequires participation of a wide spectrum ofprofessionals. The NIDM and knowledge institutionslike the IITs, NITs and other professional bodies willcreate and maintain a directory of professionals inIndia, who have experience in flood-related fields,architecture and engineering and who are interestedin contributing to the national effort for ensuringflood safety in India and make these available tothe SDMAs and ATIs.The MOWR will undertake the documentationof the history of flood- related activities in India. Anumber of documents on floods that have beenauthored in the past have now become difficult to55

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d saccess or are out of print. The MOWR will launcha special initiative to digitise these documents fromvarious sources and save the archives on electronicformats.The documentation will be used in learning lessonsfrom past experiences and factoring improvements intofuture planning of preventive, preparatory, mitigative,relief and response measures for FM.7.7 Action Plan for Capacity Building56

Flo o d Re s p o n s e8Flood Response8.1 Introduction8.1.1 Response SystemManagement and control of the adverseconsequences of floods will require coordinatedand effective response systems at all levels-national,state, district, local and community. Many of thecomponents of response initiatives will remain thesame for different types of disasters. These systemsneed to be developed considering the multi-hazardscenario of the region to optimally utilise availableresources.8.1.2 InstitutionalisationThe scale of response for floods and thecorresponding role players will be identified andmobilised at the district, state or national levelsdepending on the magnitude and the severity of theevent. Systems will be institutionlised by the DMAs,at various levels, for coordination between thevarious agencies like central government ministriesand departments, state governments, districtadministration, ULBs, PRIs and other stakeholdersfor effective post-flood response.8.1.3 Evacuation Planout as a precautionary measure based on warningindicators, prior to impact, in order to protectflood-threatened persons from the full effects ofthe disasters. Evacuation may also be necessaryafter the area has been flooded in order to movepersons from a flood-affected area to safer andbetter surroundings. For carrying out successfulevacuation, the threat perception on the part ofDM officials is essential. Continuous dialogue withstakeholders such as, early warning providers,transportation authorities, health-care authorities/personnel, food and essential commodity suppliers,civil societies, NGOs and last but not the least,the communities including the Decision SupportSystem (DSS) and inputs based on GeographicalInformation System (GIS) platform are essential forcarrying out successful evacuation. Responsibilitiesof each organisation need to be fixed beforehand inthe form of SOPs. Other important points that needto be considered for the development of evacuationplan including the action points, are listed below:i) Designing department-specific customisedaction plans to save lives immediately followingor before an emergency as per the local scaleflood risk profile of the region and to respond toany eventuality/emergencyEvacuation of human population and livestockis the only prescribed means to save them fromthe fury of floods. Evacuation of flood affectedcommunities can be one of the most difficultresponse operations, especially, when it involveslarge population. Evacuation needs to be carriedii)Preparing plans of all the organisationsinvolved in the emergency evacuation forall types of emergencies; validating plans;evaluating staff competency; testingthe established emergency operationalprocedures57

Nat i o n a l Di s a s t er Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d siii) Making on-line inventory of emergencyrelief resources available with the localgovernment, public and corporateinstitutions for possible accessing duringthe emergency.iv) Evolving coordinated EEP institutionalmechanism and triggering actions withjoint partnership at the state/district levelinvolving all concerned departments andagencies, armed forces, paramilitaryforces, NDRF, SDRF, civil society, CBOs,PRIs, ULBs, Civil Defence (CD), etc.v) Building confidence among the populacethat their belongings will be protected whenthey are away from their own houses.8.1.4 Estimation of the Severity of a FloodAs the local communication infrastructure oftenfails, the severity of a flood cannot be estimatedimmediately after its occurrence. The preliminaryassessment of the severity of a flood should bebased on water level and the estimate of the areaflooded as assessed from satellite imageries.Field observation data will be used to modify thisassessment once available.8.1.5 Flood Management PlansFlood Management Plans (FMPs) preparedby all agencies will incorporate detailed guidelinesfor prioritised implementation of various activitiesdepending on magnitude and the severity of floods.Response component of DM plans will involve rapiddeployment of supplies and logistics, along with theduration of potential deployment. These plans willprescribe appropriate coordination mechanism withother agencies working in the affected areas.8.2 Emergency Search and Rescue8.2.1 Neighbourhood CommunityThe local community in the affectedneighbourhood is always the first responder aftera disaster. Experience has shown that over 80per-cent of search and rescue is carried out bythe local community before the intervention of thestate machinery and specialised search and rescueteams. Thus trained and equipped teams consistingof local people will be set up in flood prone areas torespond effectively in the event of floods.8.2.2 Search and Rescue TeamsCommunity level teams will be developedin each district with basic training in search andrescue. Training modules will be developed fortrainers of community level search and rescueteams by the NDRF training institutes. On theground, besides others, the NDRF battalions willalso assist the state government/district authoritiesin training communities. They will be furtherassisted by the ATIs, CD, Home Guards and NGOs.The state governments, through the ATIs, willdevelop procedures for formally recognising andcertifying such trained search and rescue teammembers; they will also provide suitable indemnityto community level team members for their actions inthe course of emergency response following a flood.Youth organisations such as the NCC, NSS andNYKS will provide support services to the responseteams at the local level under the overall guidanceand supervision of the local administration.8.3 Emergency ReliefTrained community level teams will assist inplanning and setting up emergency shelters, distributingrelief among the affected people, identifying missingpeople, and addressing the needs of education,58

Flo o d Re s p o n s ehealth care, water supply and sanitation, food etc.of the affected community. Members of these teamswill be made aware of the specific requirement of thedisaster-affected communities. It will be ensured bythe concerned authorities that the stockpiling of theessential commodities has been carried out. Theseteams will also assist the government in identifyingthe most vulnerable people who may need specialassistance following floods.8.4 Incident Command SystemAll response activities will be undertakenat the local level through a suitably devisedIncident Command System (ICS) coordinatedby the local administration through the EOCs.State governments will commission and maintainEOCs at appropriate levels for the coordination ofhuman resources, relief supplies and equipment.Standard Operating Procedures (SOPs) for theEOCs will be developed by state governments andintegrated within the framework of the ICS, whichwill take advantage of modern technologies andtools, such as GIS maps, scenarios and simulationmodels for effectively responding to disasters. GISmaps available from other sources, such as the cityplanning departments will be compiled consideringtheir potential application after a disaster. The stategovernments/SDMAs will undertake the training ofpersonnel involved in the ICS. Some of the stategovernments have already adopted this system.8.5 Community-based Disaster Preparednessand Response Coordinationamong Various Organisations8.5.1 Institutionalising the Role of CommunityBased Organisations, Non-governmentalOrganisations etc. in IncidentCommand SystemA number of organisations, like NGOs, selfhelpgroups, CBOs, youth organisationssuch as NCC, NYKS, NSS etc., women’sgroups, volunteer agencies, CD, HomeGuards, etc. normally volunteer their servicesin the aftermath of any disaster. Villagelevel task forces will also be constituted onvoluntary basis for better preparedness ofthe community. The state governments/SDMAs and DDMAs will coordinate theallocation of these human resources forperforming various response activities.State governments will work with these agenciesto understand and plan their roles in thecommand chain of the ICS, and incorporatethem in the DM plans.8.5.2 Support of StakeholdersLarge scale natural disasters draw overwhelminghumanitarian support from different stakeholders.The relief and response activities carried out bysuch stakeholders must comply with the normsprescribed by the appropriate authorities.8.5.3 Dissemination of InformationSoon after a flood, accurate information willneed to be provided on the extent of the damageand other details of the response activities throughelectronic and print media. The state governmentswill utilise different types of media, especially print,radio, television and internet, to disseminate timelyand accurate information.8.6 Involvement of the CorporateSectorState governments will facilitate the involvementof the corporate sector in making available theirservices and resources to the government duringimmediate aftermath of flood. The corporate sector,as part of the Corporate Social Responsibility(CSR) effort, can provide, inter alia, the services59

Nat i o n a l Di s a s t er Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d sof hospitals, power and telecommunication, reliefsupplies, search and rescue equipment, waterpumps and transport and logistics for movementof relief supplies to the extent possible. Forinstance the Construction Federation of India (CFI)has set up the India Disaster Response Network(IDRN), which can also be associated with thetask of emergency response. State governmentsand district authorities will develop appropriatemechanisms to receive and optimally utilise allsuch assistance.8.7 Specialised Teams for Response8.7.1 National Disaster Response ForceIn terms of the DM Act, 2005, eight battalionsof the NDRF are being set up to provide specialisedresponse to any threatening disaster situation ordisaster. Out of these seven battalions are alreadyin position. Each of these battalions will have 18teams with high skill training and latest equipmentfor water rescue. In order to ensure prompt responseto any flood situation, each of these battalions willalso have Regional Resource Centres (RRCs) inhigh vulnerability areas, where boats and otherwater rescue equipment will be pre-positioned.The NDRF units will maintain close liaison with thestate administration and will be available to themproactively, thus avoiding long procedural delays indeployment in the event of any serious threateningdisaster situation. The NDRF battalions will alsobe provided with communication equipment forestablishing last mile connectivity.8.7.2 Fire and Emergency Services in theUrban Local BodiesThe fire and emergency services in the ULBsof various states are being used as an emergencycum-fireservices force. The fire and emergencyservices in the flood prone areas will developadequate capacity to respond to serious floodsituations, in addition to managing fires.8.7.3 Police ForceThe police plays an important role in theaftermath of floods in maintaining law andorder, assisting in search and rescue, and in thetransportation and certification of casualties. It isequally important that the police forces are properlyequipped and trained.8.7.4 Home GuardsThe Home Guards serve as an auxiliaryarm of the police force and support the districtadministration in various tasks. They will be trainedfor carrying out search, rescue and relief operationson occurrence of floods.8.7.5 Civil DefenceThe community has a major role to play bothas a victim and necessarily as a first responder.Integration of the CD organisation into disastermanagement can work as a great catalyst fororganising community capacity building. CDhas been authorised in 225 designated towns inthe country out of which 121 have already beenactivated where volunteers have been recruited andtrained. There is a plan to revamp CD, extendingits coverage to all the districts in the country andassigning it an important role in DM framework.According to the proposal for revamping, theprimary role of CD will be community capacitybuilding and creating public awareness in predisasterphase. The proposal envisages convertingthe town specific setup of CD to a district specificset up. It is proposed to have 18 persons employedon full time basis in each district-specific set up, outof which eight will be the trainers and their duty willbe to train volunteers. Till the revamping is finalised,states should start using the existing set up for60

Flo o d Re s p o n s etraining more and more volunteers and spreadingawareness on the different aspects of DM. Thestate governments will also activate the remainingnon-activated towns in a phased manner.The state governments/SDMAs and DDMAs willcoordinate the human resources of the CD set upas well as those of other agencies for performing/responding to various disaster-related activities.8.8 Improving Flood Response8.8.1 State Disaster Response ForceTo augment the capacities of the states, allstate governments will constitute, from withintheir armed police force, adequate strength ofpersonnel for the SDRF with appropriate disasterresponse capabilities. In addition, the police, fireand emergency services, Home Guards andCD are being strengthened and upgraded tohave adequate capacity to respond effectively todisasters. Deployment of the Indian Armed Forcesfor post-flood response work will be resorted toonly as the last option.8.8.2 National ReservesThe National Reserves (NRs) will becreated by procurement and stockpiling ofitems commonly required to provide immediateand emergency relief to victims of major naturaland man-made disasters. The NRs will provideessential and life-saving materials to meet theurgent needs of victims or survivors. The storeswill be stocked within the campuses of the NDRFbattalions and their mobilisation to the relief sitewill take place from the nearest locations. Thesemitigation reserves will primarily be utilised torender relief in the aftermath of Level 3 disasterswhose magnitude and geographical spreadcause destruction beyond the immediate copingcapabilities of states.8.9 Emergency Logistics8.9.1 EquipmentMotor launches, country boats, inflatablerubber boats, life jackets, life buoys and otherequipments will be required immediately afterfloods to carry out search and rescue of trappedpeople. State governments will compile a list ofsuch equipment, identify suppliers thereof andenter into long-term agreement for their quickmobilization and deployment in the event offloods. The IDRN, which is a web-based resourceinventory of information on emergency equipmentand response personnel available in every district,will also be used for this purpose. The informationon IDRN will be revised and updated frequently.The state governments may avail of CRF for thispurpose to the extent of 10 per-cent as provided inthe existing rules and guidelines for disbursement.8.9.2 Relief CampsThe setting up of relief camps for the peoplewhose houses have been damaged by floods and theprovision of basic amenities in such camps involvescomplex logistics of mobilising relief supplies, tents,water supply and sanitation systems, transport andcommunication systems, and medical supplies. Thepanchayat buildings in the villages in flood proneareas will be made flood proof as by raising theirplinth level at least 0.6 m above the drainage/floodsubmergence line and making them at least doublestoreyed or constructing ring bunds around them.Wherever the panchayat building is single storey,a stairway will invariably be provided to the roofso that people can take shelter there temporarily.The DM plans at the state and district levels willaddress this issue in detail.8.9.3 Identification of the DeceasedIn the event of mass casualties, states will61

Nat i o n a l Di s a s t er Ma n a g e m e n t Gu i d e l i n e s - Ma n a g e m e n t o f Flo o d sdevelop systems for proper identification of thedeceased, recording the details of victims, andmaking use of DNA fingerprinting.8.10 Emergency Medical Response8.10.1 Emergency Treatment at Site ofFloodsPrompt and efficient emergency medicalresponse will be provided by Quick Reaction MedicalTeams (QRMTs), mobile field hospitals, includingfloating hospitals for riverine islands and areasinaccessible by roads, Accident Relief Medical Vans(ARMVs) and heli-ambulances. They will be activatedto reach the flood-affected areas immediately,along with dressing material, splints, portableX-ray machines, mobile operation theatres,resuscitation equipment and life-saving drugs,etc. Resuscitation, triage and medical evacuationof victims who require hospitalisation will be donein accordance with SOPs.8.10.3 Mortuary Facilities and disposal ofDead BodiesThe state will develop contingency plans tohave sufficient mortuaries to preserve the deadbodies. After proper identification, dead bodieswill be immediately disposed through districtauthorities, to prevent outbreak of an epidemic andenvironmental pollution.8.10.4 Public Health Issues in Aftermath ofFloodsSafe and sufficient drinking water will beensured. Protecting existing water sources fromcontamination, adding chlorine tablet in the water forresidual disinfection effect and provision of latrineand proper waste disposal to avoid contaminationthrough flies and other insects are important stepsrequired immediately in the aftermath of a flood.Vector control will be done by spraying of shelterswith residual insecticides. Provision of insecticidestreated mosquito nets are recommended.8.10.2 Medical Facilities and Medical Treatmentat HospitalA well-rehearsed medical preparedness plan isrequired to provide intensive care to cases rescuedfrom drowning. An emergency medical plan willbe triggered immediately on receiving informationabout imminent threat of flood. The action will beimmediately initiated for crisis expansion of requirednumber of beds. The medical superintendentshould be able to forecast the requirement ofenhanced manpower and medical stores afterknowing the number of causalities likely to bereceived at the hospital. Special efforts will be madefor the availability of IV fluid, antibiotics vaccinesetc. Children, women, elders and other vulnerablecasualties will be attended to on priority basis.8.10.5 Psychosocial AspectsA large number of victims will suffer frompsychosocial effects in the aftermath of a flood. Thepsychosocial impact of floods will be manifested aspsychosocial reaction in the form of post-traumaticstress disorders (PTSD) and other psychosocialailments in displaced people due to flood.A team comprising a social worker, a psychologistand a psychiatrist will provide counselling to them.8.10.6 Documentation of Medical ResponseDocumentation of the medical responseprovided after a flood will be done by a medicaladministrator. This documentation will be used asfeedback for future improvement of the responsestrategies.62

Flo o d Re s p o n s e8.11 Action Plan for Strengthening Flood response63

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s9Implementation of Guidelines-Preparation of Flood Management Plans9.1 Flood Management Plans9.1.1 National Disaster Management PlanThe NEC will prepare and get it approved bythe NDMA the national Disaster Management Plan(DMP). This plan will also include FM aspects.9.1.2 Plans of Central Ministries/Departments,State Governments and OtherAgenciesImplementation of these guidelines on FMwill result in formulation of FMPs by the centralministries/departments, the state governments, thedistrict authorities, the rural and urban local bodiesand other stakeholders. The salient activities to becovered in the FMPs will include:• Identification of flood prone areas: village/block/tehsil or taluka/district wise anddelineation thereof on maps.• Preparation of flood vulnerability/flood risk/flood hazard maps.• Putting in place DSS for FM includingpreparedness, rescue, relief, rehabilitationand recovery.• Developing reliable and country-wide FFand W systems in the public domain for allthe flood prone areas with sufficient leadtime and giving information on prevailingwater levels, area inundated, expectedwater levels and area likely to be inundatedwith depth and duration of flooding in amanner easily understood by all.• Implementation of adequately designed,maintained and sustained structuralmeasures for prevention of flooding andimprovement of drainage, leading tofeeling of security against floods andoverall development in the flood proneareas.• Operation of reservoirs optimising benefitsof flood moderation, irrigation, hydropower,drinking and industrial water supply.• Enactment and enforcement of laws forregulating developmental activities in floodplains and prevention of encroachmentsinto flood plains and waterways, therebyreducing flood vulnerability/risk.• Making the existing and new buildingsand infrastructure such as roads, railwaylines, bridges, canals, etc. capable ofwithstanding the fury of the floods and notenhancing flood vulnerability/risk.• Preparation of states and districts FMPs.• Training of trainers in professional andtechnical institutions on FM issues.• Training of professionals like engineersand architects for incorporating measuresthat can sustain the structures and provideshelter to people during floods in floodprone areas.64

Im p l e m e n tat i on o f Gu id e l in e s- Pr e pa r at i on o f Flo o d Ma n a g e m e n t Pl a n s• Implementing demonstration projects onflood-proofing in flood prone areas.• Launching public awareness campaignson flood safety and risk reduction andsensitising all stakeholders to floodproblems and mitigation in flood proneareas.• Undertaking regular inspections ofstructural works such as embankments,drainage channels, protection works,etc. and implementation of requiredrestoration/strengthening measures priorto and emergency measures during floodsin the flood prone areas by the respectiveagencies/departments.• Developing an inventory of the existingbuilt environment.• Assessing the flood risk and vulnerabilitythereof.• Developing guidelines for flood-proofingmeasures and for all existing critical lifelinestructures and major public buildings inflood prone areas in a phased manner.• Preparation of FMPs plans by schools,hospitals, industries, entertainmenthouses, major shopping complexes etc. inflood prone areas and carrying out mockdrills for enhancing preparedness.• Strengthening the EOCs network.• Streamlining the mobilisation ofcommunities, NGOs, civil society partners,police force, CD, the corporate sectorand other stakeholders on occurrence offloods.• Preparing community and village levelFMPs.• Creating an inventory of resources foreffective response to floods in flood proneareas.• Strengthening research capability ofvarious academic and research institutionsfor takingup development of cost effectiveFM measures.• Preparing documentation on lessonsfrom previous floods and their widedissemination.• Preparing an action plan for theupgradation and integration/interlinking ofthe FM capabilities of the CWC, IMD andthe state governments in flood forecastingwith clear roadmaps and milestones.• Developing appropriate scheme forinsurance of lives, crops and private andpublic properties in flood prone areas bycollaborating with insurance companiesand financial institutions.• Operationalising the NDRF battalions.• Operationalising the SDRF battalions inthe states.• Allotment for land for the RegionalResponse Centres.• Strengthening the medical preparednessfor effective response to prevent spread ofepidemics especially water-borne diseasesafter floods.The time lines proposed for the implementationof various activities in the guidelines are consideredboth important and desirable, especially in caseof those non-structural measures for which noclearances are required from central or otheragencies. Precise schedules for structural measures65

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d swill, however, be evolved in the FMPs that will followat the central ministries/state level duly takinginto account the availability of financial, technicaland managerial resources. In case of compellingcircumstances warranting a change, consultationwith NDMA will be undertaken, well in advance, forany adjustment, on a case to case basis.9.2 Flood Management Plans of CentralMinistries and DepartmentsAll central ministries/departments will preparetheir FMPs which will cover all aspects of thedisaster cycle of every disaster, including floods.These plans will clearly indicate the actions to betaken, the allocation of tasks among the variousfunctionaries, the SOPs to be followed, themethodology for carrying out the tasks specified andthe timelines for their execution. Mock drills will becarried out to test the efficacy of the implementationof these plans by various agencies falling withinthe purview of various ministries/departments andother stakeholders at regular intervals.The FMPs will necessarily address theworst case scenarios and cover various aspectsof management of response, risk, situation,information and communication. Since somedisasters may transcend geographic boundaries,these plans will also recognise the importance ofeffective networking and coordination of differentlevels of response mechanisms.9.3 Flood Management Plans of StateGovernmentsAll state governments/SDMAs will preparetheir FMPs in accordance with these guidelines.They will also encourage preparation of communitypreparedness plans to address their own specialfeatures and outline the linkages of the variousstate support systems and the jurisdiction of eachof these departments. The GOl has initiated theGOl-United Nations Development Programme(UNDP) Programme on Disaster Risk Management(DRM) to encourage the development ofdistrict, block, taluka and village FMPs, whichwill be further strengthened. The existing planswill be modified, where required, in order tostreamline and optimise the response systems.These FM plans will be widely disseminated amongvarious stakeholders for creating greater publicawareness. These plans must indicate the officerresponsible for carrying out specific tasks alongwith timelines for implementation.Authorities in charge of educationalinstitutions will prepare their flood preparednessplans and conduct mock drills. Using schoolbuildings as temporary relief camps during disastersdisrupts the education of children for long periods.These buildings, if not made flood safe, cannot beused for sheltering people, cattle and their movableproperties in a flood. Alternative arrangements forhousing relief camps in flood prone areas will be putin place through various mitigation projects.All hospitals in flood prone areas willdevelop their emergency plans, conduct mockdrills and update themselves from time to time withrelevant information on DM preparedness. Stategovernments/SDMAs will monitor the preparationand testing of these plans. State governmentswill ensure that all government offices are able towithstand floods and are fully prepared with DMplans.The FMPs will incorporate all the featuresof the EOCs including their establishment andoperations.The efforts made by the government ofMaharashtra for preparing DM plans at state, district,village and school levels and the government ofMadhya Pradesh for preparing a FMP will be sharedwith other states for useful inputs in this regard.66

Im p l e m e n tat i on o f Gu id e l in e s- Pr e pa r at i on o f Flo o d Ma n a g e m e n t Pl a n s9.4 Flood Management Plans ofNodal AgenciesThe MOWR and CWC are the nodal agencies forthe monitoring of floods in India through their networkof hydro-meteorological and flood forecastingstations. They record the rainfall, river gauge anddischarge on all important, inter-state/internationalrivers. The IMD has established flood meteorologicaloffices and a network of climatological/rain guagestations in various parts of the country. It givesinformation and forecast on rainfall in the countryto the CWC. The CWC also collects informationon floods from various states. Based on this, theCWC, through its regional offices formulates floodforecasts and flood bulletins and transmits the sameto various designated functionaries in the GOl andthe state governments.The Bureau of Indian Standards (BIS) is thenodal agency for preparing codes for buildings andother structures related codes. For water resourcesrelated structures like dams, flood, embankments,river training works etc., the CWC has been entrustedwith the responsibility of preparing various codes foradoption by the BIS. The BIS will ensure finalisatonof all pending revisions within the next two years.The MOES has been set up by the GOlbringing together the Earth Commission, the IMD,the Earthquake Risk Evaluation Centre (EREC),and other key institutions to facilitate effectivecoordination of the various aspects related tothe ocean, meteorology, seismology, marineenvironment, atmosphere and earth sciences,not specifically allotted to any other departmentor ministry. As the nodal ministry/agency for FM,the MOWR and CWC, in close collaboration withthe MOES will prepare their FMPs based on theguidelines laid down by the NDMA. The variousaspects of the FMPs prepared by the other centralministries/departments and state governmentsand other stakeholder groups will be included inthat plan. The MOWR and CWC will also preparea comprehensive plan for the upgradation of theircapabilities with a clear roadmap and milestones.They will also coordinate with the MOES andIMD for upgradation of their capability for reliableprecipitation forecasts and development of closecontour maps for flood prone areas.9.5 Implementation of Flood ManagementPlans9.5.1 Implementation and MonitoringThe FMPs prepared by the central ministries,departments concerned, state governments, districtauthorities, rural bodies, urban local bodies and thestakeholders in accordance with these guidelineswill be implemented by them in accordance with inbuiltschedules. These plans will indicate clearly thestructure of the monitoring system and the reportsto be generated at various levels together with theagency to which the report is to be sent, its formatand the frequency/timing.9.5.2 Financial ArrangementsThe various activities of FMPs will bemainstreamed into the developmental plans ofthe respective ministries, departments, stategovernments and they will be responsible formaking adequate provisions in their annual plans/budgets. The specific activities can be fundedunder the centrally sponsored/central sectorschemes and the flood mitigation projects as well.67

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s9.6 Action Plan68

Su m m a r y o f Ac t i o n Po i n ts10Summary of Action PointsCHAPTER I: Floods - Status & Context1. Flash Floodsi) Flash floods forecasting and warningsystems using Doppler radars will beinstalled by the India MeteorologicalDepartment (IMD) by September 2009.ii)As a preventive measure, the inhabitationof low-lying areas along the rivers, nallasand drains will be regulated by the stategovernments/State Disaster ManagementAuthorities (SDMAs)/ District DisasterManagement Authorities (DDMAs).iii) Landslides and blockages in rivers will bemonitored by the Central Water Commission(CWC)/National Remote Sensing Agency(NRSA)/state governments/SDMAs withthe help of satellite imageries and in caseof their occurrence, warning systems willbe set up to reduce losses. If possible,appropriate structural measures to eliminatethe damage in case of sudden collapse ofthe blockages will also be taken up.2. Areas Prone to Floods(para 1.4)The Ministry of Water Resources (MOWR) andthe state governments/SDMAs/DDMAs concernedwill urgently undertake identification of areas proneto floods along with names of villages/talukas ortehsils/districts in a scientific manner in collaborationwith the NRSA and Survey of India ( SOI).3. Damages Caused by Floods(para 1.5)There is lack of documentation on floodsand flood damage. The state governments willensure that each and every flood event is properlydocumented and flood damage assessment ismade on a scientific basis with the help of latesttechnological advancements in the field of remotesensing through satellites etc.(para 1.6)4. Drainage Congestion and Water-loggingThe MOWR along with the MOA and the stategovernments will, by the end of March 2008, makea scientific assessment of the area suffering fromdrainage congestion and water-logging.5. River Erosion(para 1.7)The MOWR along with the state governmentswill undertake river-wise studies of the problem oferosion and estimate the area liable to erosion byrivers, identity vulnerable spots and plan remedialmeasures to protect such areas. Latest technologicaldevelopments for low cost measures, such asreinforced cement concrete (RCC) porcupines, willbe considered while planning such measures.(para 1.8)69

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d s6. Littoral Drift in River EstuariesStraight cuts into the sea with a view to makethe slope steeper in outfall reaches are sometimesconsidered as one of the effective measures toovercome the problem. These measures mustbe taken only after an intensive study on themathematical and hydraulic models is carried outso as to avoid the risk of increased flooding in caseof high tides, cyclonic storms and tsunamis.(para 1.10)7. Snow-melt / Glacial Lake Outbursts,Formation and Subsequent Bursting ofLandslide DamsWhile the guidelines for landslides will beissued by the NDMA separately the MOWR/CWCand the state governments will, in collaborationwith NRSA, monitor the hilly areas liable to snowavalanches, blockages in rivers due to landslidesetc. for such events and in the case of theiroccurrences, install warning systems for reducingthe loss of life and property in the areas likely tobe affected. They will also take remedial structuralmeasures, if feasible, for averting the danger.8. Cloudbursts(para 1.11)The IMD and CWC in association withstate governments will develop forecasting andwarning systems in areas prone to floods causedby cloudbursts.(para 1.13)9. International Dimensions of the FloodHazardNegotiations upon issues such asestablishment of hydro-meteorological stationsand transmission of their data to India on a realtime basis, afforestation, catchment area treatment(CAT) works and construction of reservoirs will beexpedited by the MOWR and Ministry of ExternalAffairs (MEA).(para 1.14)10. Implementation of the Recommendationsof the Experts’ Committees/WorkingGroups/Task Forces.The MOWR and the CWC will, in collaborationwith the state governments, closely monitor theimplementation of the recommendations of theExperts Committee to review the implementation ofthe recommendations of the RBA-2003 and the TaskForce on Flood Management/Erosion Control-2004.(para 1.16)CHAPTER II: Institutional Frameworkand Financial Arrangements11. National Institute of Disaster ManagementIt will network with other knowledge-basedinstitutions and assist in imparting training totrainers, DM officials, etc. It will also be responsiblefor synthesising research activities and will begeared towards emerging as a ‘centre of excellence’at the national and international levels.12. Central Water Commission(para 2.2.5)The MOWR will strengthen and equipappropriately the RM wing of CWC.(para 2.2.7)70

Su m m a r y o f Ac t i o n Po i n ts13. Ganga Flood Control Commission/Ganga Flood Control BoardThe MOWR will take steps for strengtheningthe GFCC appropriately.(para 2.2.8)14. Brahmaputra Board/High Powered ReviewBoardThe MOWR will take immediate action forrestructuring/strengthening of the BrahmaputraBoard.(para 2.2.9)15. National Flood Management InstituteThe MOWR in close collaboration with theNDMA, will establish a National Flood ManagementInstitute (NFMI) as a centre of excellence with expertsin its faculty and having state-of-the-art equipmentat an appropriate location, in one of the flood pronestates. The institute will be functional by the end ofDecember 2010. Till then the NWA will undertakethese activities in addition to its current functions.16. River Basin Organisations(para 2.2.13)The MOWR has set up the BrahmaputraBoard and GFCC to look after FM in Brahmaputraand the Ganga river basins respectively. The MOWRin consultation with the state governments, will takeappropriate action in regard to the establishment ofsuch organisations in other flood prone river basinsand in strengthening of the CWC, BrahmaputraBoard and GFCC.(para 2.2.14)Management Authority (SDMA), headed by the chiefminister will be established by the state governmentsto lay down policies and plans for DM in the state.18. State Executive Committee(para 2.3.2)All state governments will appoint expertsin FM in the faculty of their administrative traininginstitutes, which will collaborate with the NFMI inorganising the training of personnel in the field ofFM. Every state government will constitute a StateExecutive Committee (SEC) to assist the SDMA inthe performance of its functions.(para 2.3.3)19. District Disaster Management AuthorityAt the cutting edge level, the District DisasterManagement Authority (DDMA) headed by theDistrict Magistrate, with the elected representative ofthe local authority as the co-chairperson, will act asthe planning, coordinating and implementing bodyfor DM and take all necessary measures for thepurposes of DM in the district in accordance with theguidelines laid down by the NDMA and SDMA.20. Local Authorities(para 2.3.6)PRIs and ULBs will ensure capacity buildingof their officers and employees in DM, carry outrelief, rehabilitation and reconstruction activitiesin the affected areas and will prepare DM plansin consonance with the guidelines of the NDMA,SDMAs and DDMAs.(para 2.3.7)17. State Disaster Management AuthorityAt the state level, the State Disaster21. State Disaster Response ForceTo augment their capacities, all state71

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d sgovernments/SDMAs will organise, from withintheir armed police force, adequate personnelfor the constitution of State Disaster ResponseForce (SDRF) with appropriate disaster responsecapabilities. Under the aegis of the NDMA, thestates will raise the SDRF.(para 2.3.8)22. Intra-state Multi-sectoral CoordinationThe state governments/SDMAs will establishappropriate multi-disciplinary mechanisms, whoseclearance of the proposals of various departmentswith respect to the FM angle will be mandatory,before the works are sanctioned by them andtaken up for implementation by the departmentsconcerned. The mechanisms will be empowered tomake recommendations for making the works floodsafe as well as ensuring that they do not lead toincrease in vulnerability of the areas to floods anddrainage congestion.(para 2.3.9)23. Plans of Central Ministries/DepartmentsThe various measures for FM recommendedin the guidelines will be funded respectively bythe central ministries and departments and stategovernments concerned by making provisions intheir annual and Five-year Plans. Funding will alsobe available through special mitigation projectsto be formulated and implemented by the stategovernments/SDMAs under the overall guidanceand supervision of the NDMA. In addition 10 per centof Calamity Relief Fund (CRF) can also be utilisedfor purchase of equipment for flood preparedness,mitigation, rescue and relief.(para 2.5.1)24. State PlansThe various measures for FM recommendedin these guidelines will accordingly be included bythe state governments in their state plans.(para 2.5.2)25. Centrally sponsored/Central SectorSchemesThe MOWR, on the request of the stategovernments and subject to availability of funds,will include some of the schemes recommended inthe guidelines for funding under these schemes.(para 2.5.3)26. District Planning and DevelopmentCouncil FundsCertain percentage of funds available toDistrict Planning and Development Council in theflood prone areas will be allocated for implementationof FM schemes in the district.27. Calamity Relief Fund(para 2.5.4)The issues of extending duration in which thestate governments are required to complete repairof damaged infrastructure and inclusion of drainageimprovement works within the ambit of CRF, will beresolved after the deliberations of the ThirteenthFinance Commission.28. National Flood Mitigation Project(para 2.5.5)The NDMA will take action to expeditepreparation of DPR and its approval for72

Su m m a r y o f Ac t i o n Po i n tsimplementation by the central minitries anddepartments and state governments.(para 2.5.6)problem. Ongoing embankment projects will also bereviewed with respect to their location and designs.(para 3.2.1)29. Flood InsuranceThe Ministries of Finance, Agriculture andWater Resources, the state governments and theinsurance companies will jointly take up studies fora graded system of insurance premium accordingto flood risk in flood prone areas of the country. TheMOWR, in consultation with the state governmentswill explore the possibility of introducing schemeswhere insurance of structures, buildings and cropsin flood plains is made compulsory. Consultationson the proposal will be held with all the players andstakeholders and the scheme implemented in afew selected areas on experimental basis. Oncesuccessful, the scheme will be implemented on alarger scale. The value of such scheme can not beover stated.(para 2.6)CHAPTER III: Flood Prevention, Preparednessand Mitigation30. Embankments/Banks, Flood Walls,Flood LeveesThe circumstances, in which embankments/flood walls/flood levees will be constructed forprevention of flooding, can only be decided aftercarrying out detailed hydrological and morphologicalstudies regarding their favourable and adverseeffects. State governments/SDMAs will evolvedate lines and priorities for carrying out studies intheir States. It is only then that embankments withproperly designed and located drainage sluices,spilling sections and anti-erosion measures incombination with other works such as reservoirs,channel improvement works, drainage improvementstructures, etc. will be planned and implemented asa short-term and/or long-term solution to the flood31. Channel ImprovementWherever required and subject to technoeconomicconsiderations, the state governmentswill identify the locations and take up appropriatechannel improvement works to increase the velocityand/or the area of flow and reduce the flood level inthe river depending upon site-specific conditions.32. Desilting/Dredging of rivers(para 3.2.3)The MOWR, CWC and the state governments/SDMAs will study the problem of rise in river bedsin a scientific manner with the help of science andtechnology, academic institutions and corporatesector firms of repute and explore the technoeconomicviability of desilting/dredging as aremedial measure to mitigate the effects of rise inthe river beds.33. Drainage Improvement(para 3.2.4)The state governments/SDMAs will review theadequacy of existing sluices and drainage channelsin areas suffering from drainage congestion. If thecapacities of existing sluices in embankments anddrainage channels are inadequate, they will beimproved by increasing the vents and improvingoutfall conditions. State governments/SDMAswill prohibit the blocking of the natural drainagechannels and sluices by an appropriate law andimprove their capacity and construct new channelsand sluices to ensure flow of excess rainwater inthe area.(para 3.2.5)73

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d s34. Diversion of Flood WaterWherever the capacity of river channelspassing through the towns and cities is inadequateand cannot be improved to the required extent,state governments/SDMAs will study the feasibilityof implementing the schemes for diverting excesswater to existing or new channels by bye-passingthem to prevent flooding.(para 3.2.6)35. Catchment Area Treatment /Af forestationThe state governments/SDMAs will, take upappropriate watershed management measuresincluding afforestation, check dams, detentionbasins etc in the catchment of rivers to prevent soilerosion, enhance water conservation and minimisewater and sediment runoff.36. Anti-erosion Works(para 3.2.7)The state governments/SDMAs/DDMAs,wherever required and if relocation is not possible onsocial, technical and economical considerations, willplan and implement appropriate anti-erosion measuressuch as revetments, slope pitching, permeable andimpermeable spurs using conventional materialsand/or geo-synthetics for protection of towns, cities,industrial areas, groups of thickly populated villages,railway lines, roads and embankments from erosionby rivers in a time-bound manner. They will also reviewRR policies for including provision for RR of people whocannot be protected against river erosion on technoeconomicconsiderations. Upon receipt of specificrequests from the state governments, the CWC, theGFCC and the Brahmaputra Board will assist them insurvey, planning, design and implementation of thesemeasures.(para 3.2.8)37. Sea Walls/Coastal Protection WorksSea walls/coastal protection works will beplanned and executed by the respective coastalstates/port authorities, keeping in view the complexityof sea behaviour and other environmental aspects.(para 3.2.9)38. Alignment, Location, Design and Provisionof Waterway i.e. Vents, Culverts,Bridges and Causeways in NationalHighways, State Highways, District andOther Roads and Railways EmbankmentsThe Ministry of Shipping, Road Transportand Highways (MOSRTH), MOR, MOD, NHAI, BRO,state governments/SDMAs will ensure that nationalhighways, state highways, district and other roadsare aligned, located and designed properly withrespect to height and width, and provided withadequate waterway in the form of vents, culverts,bridges and causeways so as to make them floodsafe and not increase the vulnerability of the area toflooding and drainage congestion.The safety of existing roads/railwayembankments against floods will also be checkedby the MOSRTH, MOR, MOD, NHAI, BRO andstate governments/SDMAs/DDMAs and if foundinadequate, measures by way of increasing heightand width and augmenting waterway by constructingadditional bridges/culverts/causeways or by addingmore spans to existing ones, will be taken up.(para 3.2.10)39. Inspection, Rehabilitation and MaintenanceThe state governments/SDMAs will draw aprogramme of inspection of all structural measurestwice a year, once before the commencement ofthe monsoon and again after the monsoon has74

Su m m a r y o f Ac t i o n Po i n tswithdrawn and ensure that restoration/strengtheningmeasures of vulnerable spots are carried out beforethe commencement of monsoon every year. Theywill earmark adequate funds for the same in theirannual budget and assign responsibility to individualofficials for completing the same.Dams, flood embankments, levees and theworks taken up for their protection against erosionetc. will be regularly inspected during floods foridentification of vulnerable spots and immediatemeasures to strengthen them will be implemented.In case of apprehension of any breach orovertopping, people living in the area will be warnedof the danger and the civil administration, with thehelp of NDRF, SDRF and/or the army will take stepsfor evacuation, rescue and relief.The NDMA/MHA will take up with theThirteenth Finance Commission the need forearmarking adequate funds for maintenance of thedams, embankments, levees and town protectionworks under appropriate heads of account in plan/non-plan budgets.40. Flood Proofing(para 3.3)The state governments/SDMAs will provideadequate number of raised platforms/flood sheltersat suitable locations in the flood plains with basicamenities such as drinking water, sanitation,medical treatment, cooking, tents, lantern etc. forthe people to take shelter during floods.The state governments/SDMAs will takesteps to make all public utility installations floodsafe.(para 3.5.2)41. Integrated Water Resources ManagementState governments/SDMAs with thecooperation of the CWC and other states willimplement the IWRM system for all the river basinsand sub-basins.42. Creating Awareness(para 3.6)The state governments/SDMAs will takesteps to create awareness to the type of illnessesand other health problems that can result in theaftermath of floods, to all the medical teams andthe community at large. Hygienic practices e.g.hand washing with soap and use of the toilet fordefecation, use of boiled water or adding chlorineto water and safe food cooking by disease-freepersons will be promoted.(para 3.8.2)43. Creation of Trained Medical First RespondersThe state governments/SDMAs will ensure thecreation of trained medical first responders for firstaid and resuscitation measures for drowning cases.Medical staff must know how to take out water from therespiratory tract and how to carry out cardiopulmonaryresuscitation. A list of trained medical and paramedicalstaff must also be made available.44. Medical Stores(para 3.8.3)Medical kits will be prepared for themanagement of flood casualties.(para 3.8.4)75

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d s45. Patient Evacuation PlanState governments/SDMAs will makeavailable emergency medical equipment and drugsfor resuscitation.46. Disaster Management Plans(para 3.8.5)Disaster Management Plans need to beprepared by all hospitals.(para 3.8.6)CHAPTER IV: Flood Forecasting andWarning in India47. Expansion and Modernisation of FloodForecasting ServicesThe CWC, IMD and the state governmentswill increase the density of the basin-wise networkof rain gauge and river gauge stations and establishbasin-wise system of FF and early warning. VariousFF initiatives as listed below will be taken by theCWC, IMD and the states.a) Data collection: Data will be collectedusing IMD, CWC and Bureau of IndianStandards (BIS) approved automaticsensors for rainfall and river flowmeasurements. A centralised mechanismfor collection, archival and distribution ofhydrological data from various river basinswill be established on priority basis.b) Data transmission: Data will be transmittedusing modern automatic telemetry datatransmission techniques e.g. satellite,VSAT, Internet/e-mail, mobile phones etc.c) Flood forecast and impact assessmentmodels: Computer-based comprehensivecatchment scale hydrological andhydrodynamic models interfaced withflood plain inundation mapping tools willbe developed.d) Forecast dissemination: Forecast will bedisseminated using computer networksand satellite e.g. Internet, e-mail, VSAT,the terrestrial communication network,connectivity of the National InformaticsCentre (NIC) etc.e) Flood hazard mitigation model: Basinwiseflood hazard mitigation models willbe developed.f) Damage assessment and quantificationmodels: Damage assessment andquantification models will be developed onpriority.g) Advisories for flood relief routes: Advisoriesfor facilitating flood relief routes will beformulated and issued.h) Value addition: Flood forecasts andwarnings will be formulated, preferably, inthe local language, in a format which issimple and easily understandable by theadministrators and common people aswell. CWC will also improve the usefulnessof the forecasts and warnings by markingthe area likely to be inundated, locationof flood shelters etc. on the map of thearea.(para 4.4)48. Coordination among the Central WaterCommission, Indian MeteorologicalDepartment and the StatesThe state governments will, as soon aspossible, and not later than March 2008, establish76

Su m m a r y o f Ac t i o n Po i n tsa mechanism wherein representatives of theCWC, IMD, NRSA and the states interact witheach other, exchange data on a real-time basisand formulate the flood forecasts and warnings,which are more reliable and understandable bythe forecasters, administrators and the public tominimise loss of lives and property on account offloods. The CWC will also forecast the area likelyto be inundated corresponding to the expectedriver water level.49. Cooperation with Nepal(para 4.5)The system of hydro-meteorologicalobservations and transmission of data will bemodernised by installing automatic sensorsand satellite-based transmitters. Negotiations inthis regard with the government of Nepal will beexpeditiously concluded by the MOWR/MEA.50. Cooperation with Bhutan(para 4.6.2)The system will be modernized by theCWC with the installation of automatic sensors forobservation of data and satellite-based transmittersfor its transmission on a real-time basis.51. Cooperation with China(para 4.6.3)Negotiations with China will be expedited bythe MOWR and MEA for extending cooperation withrespect to exchange of hydro-meteorological dataof rivrs common to China and India on more riversand by increasing the frequency of transmission toan hourly basis. The ongoing effort for reaching anunderstanding for passing information on blockagesin rivers and release of water from the reservoirsconstructed on the rivers and their tributaries willalso be expedited and a mechanism for exchangeof information put in place at the earliest.(para 4.6.4)CHAPTER V: Dams, Reservoirs andOther Water Storages52. Natural Detention BasinsThe state governments/SDMAs will studythe availability of natural depressions, swampsand lakes in the vicinity of the rivers and whereverrequired and feasible, utilise them for temporarystorage of floodwaters.53. Dams and Reservoirs(para 5.2)The state governments/SDMAs/centralagencies, wherever feasible, will therefore plan allthe new dams and reservoirs with specific floodcushion provisions, prepare their Detailed ProjectReports (DPRs) and complete the works in India bythe year 2020 and in Nepal and Bhutan by the year2025.54. Regulation of ReservoirsEvery state government/SDMA will:(para 5.3)(i) draw up an action plan by June 2008 forcompleting the review/modification of rulecurves and operation manuals within aperiod of three years.(ii) set up expert committees/reviewcommittees by September 2008 with theCWC’s representative as a member forreview of rule curves/operation manualsfor each of the major reservoirs.77

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d s(iii) review the operation rules of all the existingreservoirs and modify them by December2009 making them appropriately consistentwith the safety requirements of the structure,flood moderation and other uses.(iv) make arrangements of forecast of inflowsinto the reservoirs incorporating latesttechnology for collection of real-time data,and analysis and mathematical modellingfor formulation of forecast either on theirown or through the CWC.(v) install automatic water level sensors withsatellite-based transmitters at all thereservoirs and share real-time data duringthe monsoon period among the basinstates.(vi) once the protocols are worked out and putin place, set up an appropriate mechanismfor ensuring strict enforcement, withoutany deviation of the operational rulesso that local compulsions do not causeavoidable loss of life and propertyelsewhere.The state governments/SDMAs will beassisted by the CWC and the IMD in implementationof the above measures.(para 5.4)55. Dam Safety AspectsPre-monsoon and post-monsoon inspectionsof dams will be carried out by experts andsubsequent recommendations implemented by thestate governments/SDMAs in a fixed time frame toensure continued service and safety.(para 5.5)CHAPTER VI: Regulation and Enforcement56. Flood Plain Zoning RegulationsThe state governments/SDMAs will enact andenforce appropriate laws for implementing floodplain zoning regulations by March 2009.(para6.1.5)57. Incentives and Disincentives to Statesfor Enactment and Enforcement ofFlood Plain Zoning RegulationsThe MOWR will, in consultation with the stategovernment and the CWC evolve a scheme ofincentives and disincentives with respect to the centralassistance to encourage the states for enactment andenforcement of flood plain zoning regulations.(para 6.2)58. Encroachments into the Waterwaysand Natural Drainage LinesThe possibility of removing buildings/structures obstructing existing natural drainage lineswill be seriously considered by state governments/SDMAs. In any case, and with immediate effect,unplanned growth will be restricted by stategovernments/SDMAs so that the construction ofstructures obstructing natural drainage or resultingin increased flood hazard is not allowed.(para 6.3)59. Bye-laws for Buildings in Flood ProneAreasThe following provisions will be incorporatedby the state governments/SDMAs/Local bodies in thebuilding byelaws for buildings in flood prone areas:78

Su m m a r y o f Ac t i o n Po i n ts(a) Plinth levels of all buildings should be 0.6 mabove the drainage/flood submersion lines.(b) In the areas liable to floods, all the buildingsshould preferably be double and multiplestoreys.Wherever there are single storey buildings, astairway will invariably be provided to the roofs sothat temporary shelter can be taken there. The rooflevels of the single storey buildings and the firstfloorlevel in double-storey buildings will be above100-year flood levels so that the human beings andmovable property can be temporarily sheltered thereduring periods of danger on account of floods.(para 6.4)60. Legal Framework for Making InfrastructureFlood ResilientAn appropriate legal framework will bedeveloped by the state governments/SDMAs so asto make it mandatory for obtaining clearance for theplans for construction of the infrastructure in floodprone areas from states’ irrigation/flood control/waterresources departments with respect to their safetyagainst floods and effects thereof on the vulnerabilityof the area to floods and drainage congestion, whowill process the cases in a fixed time frame.61. Survey of Flood Prone Areas(para 6.5)The Indian Space Research Organisation(ISRO) has formulated, for the Eleventh Five-yearPlan period, a programme for Disaster ManagementSupport (DMS) services wherein “creation of digital,thematic and cartographic data base for hazardzonation and risk assessment and realisation ofnational data base for emergency managementhave been identified as one of the programmeelements. Under this programme, ISRO andNRSA have planned to cover about 1 lakh sq km(10 million ha) every year for development of closecontour information of ground using the ALTM systemthereby envisaging to cover all the priority flood proneareas in a period of five years. Phasing of the areato be surveyed will be done by them in consultationwith the CWC so that the most vulnerable areas arecovered first.(para 6.6)62. Wetlands: Conservation and RestorationThe reclamation of the existing wetlands/natural depressions will be prohibited by stategovernments/SDMAs and they will formulate anaction plan for using them for flood moderation.(para 6.7)63. Watershed Management includingCatchment Area Treatment and Af forestationThe Ministry of Agriculture (MOA) andMinistry Of Environment and Forests (MOEF)will, in collaboration with the NDMA, MOWRand state governments, implement watershedmanagement including catchment area treatmentand afforestation programmes to improve land andwater management which will, in turn, result in floodmoderation and sediment management in rivers.64. Coordination and Enforcement(para 6.8)The state governments will put in placemechanisms for the enforcement of the acts, lawsand rules made by them and identify the officerswho will be responsible for their implementation andmake them accountable for any lapses/violations.(para 6.9)79

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d sCHAPTER VII: Capacity Development65. Flood EducationThe state governments will strengthen FMeducation by facilitating the incorporation of thebest available technical and non-technical inputson FM in educational curricula.The MHA and MOWR in consultation with theMinistry of Human Resource Development (MHRD)and the state governments will promote the effortsof flood education based on the development ofhigh-quality education materials, textbooks andfield training.The MHA and MOWR, in consultation withthe MHRD, will encourage the CBSE to introducemodules of FM in classes XI and XII as well. Thestate governments/SDMAs will encourage theirschool boards to develop similar content in theirschool curriculum.The MHA and MOWR in consultation withthe MHRD, All India Council of Technical Education(AICTE), University Grants Commission (UGC),Council of Architecture (COA), Institution of Engineers(IE) and the state governments will developsuitable modules for inclusion in the curricula ofarchitecture and engineering courses in the IndianInstitutes of Technology (IITs), National Institutes ofTechnology (NITs) and other universities, collegesand polytechnics of engineering and architecture toequip the students with the requisite knowledge offlood-proof design and construction techniques.The MHA will, in consultation with theMinistry of Health and Family Welfare (MOHFW),MOWR and other related agencies, facilitate theintroduction of subjects related to the managementof diseases caused by disasters including floods inthe undergraduate medical curriculum.The state governments will be encouragedto introduce a five-year quality improvementprogramme for teachers and professionals engagedin teaching the subjects related to FM.(para 7.1)66. Target Groups for Capacity DevelopmentSpecially designed public awarenessprogrammes will be developed by the stategovernments/SDMAs/DDMAs for addressing theneeds of physically handicapped and mentallychallenged people, women and the elderly. Thestates Police Force, Civil Defence, Home Guardsand SDRFs will also be covered by such efforts.The people will be made aware of the need to keepspecial kits containing medicines, torch, identitycards, ration card and non-perishable eatablessuch as dry fruits, roasted chana etc. ready beforecommencement of monsoons so that, they cancarry the same with them, in case, they have tobe evacuated. The community will also be trainedfor preparation and utilisation of improvised floodrescue devices with household articles.(para 7.2)67. Capacity Development of ProfessionalsThe NIDM will, in consultation with reputedknowledge institutions, develop comprehensiveprogrammes and a national plan for creating a poolof trainers from among trained faculty membersof engineering and architecture colleges as alsoamong professionals.68. Training(para 7.3)In accordance with these guidelines, theNIDM and NFMI will evolve action plans and nationalstrategy, in collaboration with the ATIs and othertechnical institutions, to offer a comprehensivecurriculum related to flood mitigation management,80

Su m m a r y o f Ac t i o n Po i n tspreparedness and response in the form of trainingmodules for the various target groups and initiatethe design, development and delivery of the sameat the earliest by June 2008. The NDRF, SDRF andCivil Defence coordinated by state governments/SDMAs/DDMAs, will impart training to public in floodpreparedness, flood mitigation and response.69. Research and Development(para 7.4)The state governments will proactively supportapplication-oriented research and developmentalactivities to address contemporary challenges,generate solutions, and develop new techniques toimprove their sustainability in floods.The MOWR will, with the support of theCWC, NRSA and the state governments arrangefor systematic collection of data and incorporatethe same in its data bank with an efficient retrievalsystem.The MOWR and the CWC will providenecessary assistance to the state governments inrespect of studies for quantification of flood risk.The MOWR will, in collaboration with nodalscientific agencies and institutions such as theNRSA, SOI, etc. ensure the preparation of largescalehazard maps of flood prone areas of highvulnerabilityThe MOWR will, in collaboration with thestate governments, CWC, Brahmaputra Board andGFCC, undertake the activity of preparation offlood hazard maps and complete the same by the31 January 2010.The state governments will design suchshelters, keeping in mind the climatic conditions ofthe affected area and the functional needs of theaffected people.The MOWR will, in consultation with theCWC, Brahmaputra Board, GFCC, CentralBuilding Research Institute (CBRI) and the stategovernments, evolve a model design of the sheltersfor flood prone areas in different regions. TheState governments/ SDMAs will ensure use of theshelters through the district and local authorities forpurposes such as running schools, anganwadi orother facilities to promote proper maintenance sothat these are available in good condition duringfloods as and when required.The state governments in collaboration withthe MOWR and CWC, will carry out studies aimedat developing watershed models suitable for usingremotely sensed information as inputs, in order topredict flood flow under ‘inadequate’ or ‘no data’situations. Efforts will be intensified to evolve moreand more mathematical models and use them tointroduce better rationality in decision-makingprocesses.The state governments/SDMAs willundertake mathematical model studies for longreaches complemented by physical model studiesfor problem reaches for FM works of a permanentnature e.g. embankments, spurs, revetments, etc.involving huge costs and having significant impacton river behaviour. They will also upgrade thefacilities in their respective research stations.The MOWR and CWC will, in collaborationwith the state governments, and other Institutionssuch as Central Water and Power Research Station(CWPRS), National Institute of Hydrology (NIH), IITs,universities, and expert organisations/consultancyfirms, undertake comprehensive morphologicalstudies on international and inter-state rivers causingerosion and flooding to predict river behavior overshort, medium and long periods, identify spots/reaches vulnerable to erosion and evolve ecofriendlyand cost-effective measures having no orlittle impact on river regime to prevent erosion and81

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d sflooding. It will encourage the state governmentsto enhance the capability of their institutes andundertake more such studies through them onother rivers within their territories.The MOWR will also sponsor visits in Indiaand abroad for equipping the officials of relatedorganisations and the state governments with theknowledge and skills necessary to undertake suchstudies.70. Documentation(para 7.5)The MOWR will undertake the documentationof the history of flood- related activities in India. Anumber of documents on floods that have beenauthored in the past have now become difficult toaccess or are out of print. The MOWR will launch aspecial initiative to digitise these documents fromvarious sources and save the archives on electronicformats.The documentation will be used in learninglessons from past experiences and factoringimprovements into future planning of preventive,preparatory, mitigative, relief and responsemeasures for FM.CHAPTER VIII: Flood Response71. Search and Rescue Teams(para 7.6)The state governments, through the ATIs,will develop procedures for formally recognisingand certifying such trained search and rescue teammembers; they will also provide suitable indemnity tocommunity level team members for their actions in thecourse of emergency response following a flood.(para 8.2.2)72. Incident Command SystemAll response activities will be undertakenat the local level through a suitably devisedIncident Command System (ICS) coordinated bythe local administration through the EOCs. Stategovernments will commission and maintain EOCsat appropriate levels for the coordination of humanresources, relief supplies and equipment.(para 8.4)73. Institutionalising the Role of CommunityBased Organisations, Non-governmentalOrganisations etc. in IncidentCommand SystemA number of organizations, like NGOs, selfhelpgroups, CBOs, youth organizations suchas NCC, NYKS, NSS etc., women’s groups,volunteer agencies, Civil Defence, HomeGuards, etc. normally volunteer their servicesin the aftermath of any disaster. Village leveltask forces will also be constituted, on voluntarybasis, for better preparedness of the community.The state governments/SDMAs andDDMAs will coordinate the allocation of thesehuman resources for performing various responseactivities. State governments will workwith these agencies to understand and plantheir roles in the command chain of the ICS,and incorporate them in the DM plans.74. Dissemination of Information(para 8.5.1)The state governments will utilise differenttypes of media, especially print, radio, televisionand Internet, to disseminate timely and accurateinformation.(para 8.5.3)82

Su m m a r y o f Ac t i o n Po i n ts75. Involvement of the Corporate SectorState governments will facilitate theinvolvement of the corporate sector in makingavailable their services and resources to thegovernment during immediate aftermath of flood.(para 8.6)76. National Disaster Response Force(NDRF)The NDRF battalions will also be providedwith communication equipment for establishing lastmile connectivity.(para 8.7.1)80. EquipmentThe information on IDRN will be revised andupdated frequently. The state governments mayavail of CRF for this purpose to the extent of 10 percentas provided in the existing rules and guidelinesfor disbursement.(para 8.9.1)81. Relief CampsThe DM plans at the state and district levelswill address this issue in detail.(para 8.9.2)77. Fire and Emergency Services in the UrbanLocal BodiesThe fire and emergency services in the floodprone areas will develop adequate capacity torespond to serious flood situations, in addition tomanaging fires.78. State Disaster Response Force(para 8.7.2)To augment the capacities of the states, allstate governments will constitute, from within theirarmed police force, adequate strength of personnelfor the SDRF with appropriate disaster responsecapabilities.79. National Reserves(para 8.8.1)The National Reserves (NRs) will be createdby procurement and stockpiling of items commonlyrequired to provide immediate and emergencyrelief to victims of major natural and man-madedisasters.(para 8.8.2)82. Identification of the DeceasedIn the event of mass casualties, states willdevelop systems for proper identification of thedeceased, recording the details of victims, andmaking the use of DNA fingerprinting.(para 8.9.3)83. Emergency Treatment at Site of FloodsPrompt and efficient emergency medicalresponse will be provided by Quick ReactionMedical Teams (QRMTs), mobile field hospitals,including floating hospitals for riverine islandsand areas inaccessible by roads, Accident ReliefMedical Vans (ARMVs) and heli-ambulances(para 8.10.1)84. Medical Facilities and Medical Treatmentat HospitalAn emergency medical plan will betriggered immediately on receiving informationabout imminent threat of flood. The action will be83

Nat i o n a l Dis a s t e r Ma n a g e m e n t Gu id e l i n es - Ma n a g e m e n t o f Flo o d simmediately initiated for crisis expansion of requirednumber of beds.(para 8.10.2)85. Mortuary Facilities and Disposal ofDead BodiesThe state will develop contingency plans tohave sufficient mortuaries to preserve the deadbodies. After proper identification, dead bodieswill be immediately disposed through districtauthorities, to prevent outbreak of an epidemic andenvironmental pollution.(para 8.10.3)86. Public Health Issues in Aftermath ofFloodsSafe and sufficient drinking water will beensured. Vector control will be done by spraying ofshelters with residual insecticides.87. Psychosocial Aspects(para 8.10.4)A team comprising a social worker, apsychologist and a psychiatrist will providecounselling to victims.(para 8.10.5)88. Documentation of Medical ResponseDocumentation of the medical responseprovided after a flood will be done by a medicaladministrator.(para 8.10.6)CHAPTER IX: Implementation of Guidelines-Preparation of Flood ManagementPlans89. National Disaster Management PlanThe NEC will prepare the National DisasterManagement Plan (DMP) and get it approved bythe NDMA. This plan will also include FM aspects.(para 9.1.1)90. Flood Management Plans of CentralMinistries and Departments PlansAll central ministries/departments will preparetheir FMPs which will cover all aspects of the disastercycle of every disaster, including floods.(para 9.2)91. Flood Management Plans of State GovernmentsAll state governments/SDMAs will preparetheir FMPs in accordance with these guidelines.These FM plans will be widely disseminatedamong various stakeholders for creating greaterpublic awareness.Alternative arrangements for housing reliefcamps in flood prone areas will be put in placethrough various mitigation projects.The FMPs will incorporate all the featuresof the EOCs including their establishment andoperations.(para 9.3)84

Su m m a r y o f Ac t i o n Po i n ts92. Flood Management Plans of NodalAgenciesThe BIS will ensure finalisaton of all pendingrevisions within the next two years.As the nodal ministry/agency for FM, theMOWR and CWC, in close collaboration withthe MOES, will prepare their FMPs based on theguidelines laid down by the NDMA. The variousaspects of the FMPs prepared by the other centralministries/departments and state governments andother stakeholder groups will be included in thatplan.93. Implementation and Monitoring(para 9.4)The FMPs prepared by the central ministries,departments concerned, state governments,district authorities, rural bodies, urban local bodiesand the stakeholders in accordance with theseguidelines will be implemented by them as per inbuiltschedules.94. Financial Arrangements(para 9.5.1)The various activities of FMPs will bemainstreamed into the developmental plans ofthe respective ministries, departments, stategovernments and they will be responsible for makingadequate provisions in their annual plans/budgets.The specific activities can be funded under thecentrally sponsored/central sector schemes andthe flood mitigation projects as well.(para 9.5.2)85

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sAnnexuresAnnex-I/I86

An n e x u r e sAnnex-I/IIState-wise Break-up of Flood Prone Areas(Area in lakh hectares)Sl. No. Name of States/UTs Area prone to floods asassessed by RBAFlood prone area as reported byStates to the 11th PlanWorking GroupSTATES1 Andhra Pradesh 13.90 34.802 Arunachal Pradesh 0.823 Assam 31.50 38.204 Bihar 42.60 68.805 Chattisgarh - -6 Delhi (NCT) 0.50 0.707 Goa - -8 Gujarat 13.90 20.509 Haryana 23.50 23.5010 Himachal Pradesh 2.30 2.3111 Jammu & Kashmir 0.80 5.1412 Jharkhand - -13 Karnataka 0.20 9.0014 Kerala 8.70 14.7015 Madhya Pradesh 2.60 3.3716 Maharashtra 2.30 3.3017 Manipur 0.80 0.8018 Meghalaya 0.20 0.9519 Mizoram - 0.5420 Nagaland - 0.0921 Orissa 14.00 33.4022 Punjab 37.00 40.5023 Rajasthan 32.60 32.6024 Sikkim - 0.2025 Tamil Nadu 4.50 4.5026 Tripura 3.30 3.3027 Uttar Pradesh 73.36 73.4028 Uttarakhand - -29 West Bengal 26.50 37.66UTs30 Andaman & Nicobar Islands - -31 Chandigarh - -32 Dadra & Nagar Haveli - -33 Daman & Diu - -34 Lakshadweep - -87

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s35 Pondicherry 0.10 0.50Total 335.16 453.58Notes:-1. Figures assessed by the RBA for the states of Bihar, Madhya Pradesh and Uttar Pradesh arebefore their bifurcation and as such also include flood prone areas of Jharkhand, Chattisgarh andUttarakhand respectively.2. RBA, taking into consideration that some of the area reported to be protected by the states isalso affected by the floods, estimated area prone to floods as 400 lakh hectares. It did not givestate- wise break up of 400 lakh hectares.3. In respect of the states, which did not report flood prone area to the Working Group (WG) of theEleventh Plan, the figures as reported to RBA or the Working Group of Tenth Plan have beentaken.88

An n e x u r e sAnnex-I/IIIStatement Showing Damage Due to Floods/Heavy RainsSl.NoYear AreaAffected(lakhhectares)Population(crore)Crops damaged Houses damaged Cattle Human Public TotalArea (lakhhectares)Value (Rs.crores)(thousands) Value (Rs.crores)(thousands) Lives utilities(Rs.crores)damages(Rs.crores)1 2 3 4 5 6 7 8 9 10 11 121 1953 22.9 2.428 9.3 42.08 264.92 7.42 47.03 37 2.90 52.402 1954 74.9 1.292 26.1 40.52 199.98 6.56 22.55 279 10.15 57.233 1955 94.4 2.527 53.1 77.80 1666.79 20.94 72.01 865 3.98 102.734 1956 92.4 1.457 11.1 44.44 725.78 8.05 16.11 462 1.14 53.685 1957 48.6 0.676 4.5 14.12 318.15 4.98 7.43 352 4.27 23.376 1958 62.6 1.098 14.0 38.28 382.25 3.90 18.44 389 1.79 43.977 1959 57.7 1.452 15.4 56.76 648.82 9.42 72.69 619 20.02 86.208 1960 75.3 0.835 22.7 42.55 609.88 14.31 13.91 510 6.31 63.179 1961 65.6 0.926 19.7 24.04 533.47 0.89 15.92 1374 6.44 31.3710 1962 61.2 1.546 33.9 83.18 513.79 10.66 37.63 348 1.05 94.8911 1963 34.9 1.093 20.5 30.17 420.55 3.70 4.57 432 2.74 36.6112 1964 49.0 1.378 24.9 56.87 255.56 4.59 4.96 690 5.15 66.6113 1965 14.6 0.361 2.7 5.87 112.96 0.20 7.29 79 1.07 7.1414 1966 47.4 1.440 21.6 80.15 217.27 2.54 9.07 180 5.74 88.4315 1967 71.2 2.046 32.7 133.31 568.00 14.26 5.83 355 7.86 155.4316 1968 71.5 2.117 26.2 144.61 682.70 41.11 130.31 3497 25.37 211.1017 1969 62.0 3.322 29.1 281.90 1268.66 54.42 270.33 1408 68.11 404.4418 1970 84.6 3.183 49.1 162.78 1434.03 48.61 19.20 1076 76.44 287.8819 1971 132.5 5.974 62.4 423.13 2428.03 80.24 12.87 994 129.11 632.4820 1972 41.0 2.669 24.5 98.56 897.30 12.46 58.23 544 47.17 158.1921 1973 117.9 6.408 37.3 428.03 869.80 52.48 261.02 1349 88.49 569.0022 1974 67.0 2.945 33.3 411.64 746.71 72.43 16.85 387 84.94 569.0223 1975 61.7 3.136 38.5 271.49 803.71 34.10 17.35 686 166.05 471.6624 1976 119.1 5.046 60.4 595.03 1745.50 92.16 80.06 1373 201.50 888.6925 1977 114.6 4.943 68.4 720.61 1661.63 152.29 556.33 11316 328.95 1201.8926 1978 175.0 7.045 99.6 911.09 3507.54 167.57 239.17 3396 376.10 1454.7627 1979 39.9 1.952 21.7 169.97 1328.71 210.61 618.25 3637 233.63 614.2028 1980 114.6 5.412 55.5 366.37 2533.14 170.85 59.17 1913 303.28 840.5029 1981 61.2 3.249 32.7 524.56 912.56 159.63 82.25 1376 512.31 1196.5030 1982 88.7 5.601 50.0 589.40 2397.37 383.87 246.75 1573 671.61 1644.8831 1983 90.2 6.103 32.9 1285.85 2393.72 332.33 153.10 2378 873.43 2491.6732 1984 107.1 5.455 51.9 906.09 1763.60 181.31 141.31 1661 818.16 1905.5633 1985 83.8 5.959 46.5 1425.37 2449.88 583.86 43.01 1804 2050.04 4059.2734 1986 88.1 5.550 45.8 1231.58 2049.28 534.41 60.45 1200 1982.54 3748.5635 1987 88.9 4.834 49.4 1154.64 2919.38 464.49 128.64 1835 950.59 2569.7289

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sSl.NoYear AreaAffected(lakhhectares)Population(crores)Crops damaged Houses damaged Cattle Human Public TotalArea (lakhhectares)Value (Rs.crores)(thousands) Value (Rs.crores)(thousands) Lives utilities(Rs.crores)damages(Rs.crores)1 2 3 4 5 6 7 8 9 10 11 1236 1988 162.9 5.955 101.5 2510.90 2276.53 741.60 151.00 4252 1377.80 4630.3037 1989 80.6 3.415 30.1 956.74 782.34 149.82 75.18 1718 1298.77 2405.3338 1990 93.0 4.026 31.8 695.61 1019.93 213.73 134.15 1855 455.27 1708.9239 1991 63.6 3.389 27.0 579.02 1134.41 180.42 41.09 1187 728.89 1488.3340 1992 26.5 1.926 17.5 1027.58 687.49 306.28 78.67 1533 2010.67 3344.5341 1993 114.4 3.041 32.1 1308.63 1926.05 528.32 211.19 2864 1445.53 3282.4942 1994 48.1 2.755 39.6 888.62 914.64 165.21 52.32 2078 740.76 1794.5943 1995 52.5 3.593 32.5 1714.79 2001.90 1307.89 62.44 1814 679.63 3702.3944 1996 80.5 4.473 38.3 1124.49 726.80 176.59 73.21 1803 861.39 3005.7445 1997 45.7 2.966 22.6 692.74 505.13 152.50 27.75 1402 1985.93 2831.1846 1998 108.5 4.744 75.0 2594.17 1932.87 1108.78 107.10 2889 5157.77 8860.7247 1999 77.7 2.799 17.5 1850.87 1613.26 1299.06 91.29 745 462.830 3612.7648 2000 53.8 4.501 35.8 4246.62 2628.86 680.94 123.25 2606 3936.98 8864.5449 2001 61.8 2.646 39.6 688.48 716.19 816.47 32.70 1444 5604.46 7109.4250 2002 70.9 2.632 21.9 913.09 762.49 599.37 21.53 1001 1062.08 2574.5451 2003 * 65.0 3.447 34.3 1424.83 846.92 802.93 16.43 1864 2206.60 4434.3552 2004* 80.3 3.422 26.9 615.07 1492.81 852.66 63.87 1275 1868.87 3336.5953 2005* 33.8 2.968 22.4 958.27 349.62 316.95 113.23 1503 1546.94 2822.16TOTAL 4001.7 174.156 1873.8 37663.35 64549.66 14341.17 5026.49 84207 43499.60 96691.71AVG 75.5 3.286 35.3 710.62 1217.92 270.58 94.83 1588 820.75 1805.18MAX(YEAR)175.0(1978)7.045(1978)101.5(1988)4246.62(2000)3507.54(1978)1307.89(1995)618.2(1979)11316(1977)5604.46(2001)8864.54(2000)90

An n e x u r e sAnnex-I/IVEstimate of Area Suf fering from Drainage Congestion/Water-logging(in lakh hectares)StateIrrigationCommission (1972)National Commissionon Agriculture (1976)Ministry ofAgriculture (1984-85)Latest figures asreported by StatesAndhra Pradesh NR 3.39 3.39 3.39Assam NR NR 4.50 4.50Bihar NR 1.17 7.07 9.41Gujarat NR 4.84 4.84 4.84Haryana 6.5 6.20 6.20 6.20Jammu and Kashmir NR 0.10 0.10 0.10Karnataka 0.07 0.10 0.10 0.10Kerala NR 0.61 0.61 0.61Madhya Pradesh 0.57 0.57 0.57 0.57Maharashtra 0.28 1.11 1.11 1.11Orissa NR 0.60 0.60 2.17Punjab 10.9 10.90 10.90 10.90Rajasthan 3.48 3.48 3.48 3.48Tamil Nadu NR 0.18 0.18 0.18Uttar Pradesh 8.10 8.10 19.80 19.80West Bengal 18.5 18.50 21.80 21.80Delhi NR 0.01 0.01 0.01Total 48.40 59.86 85.26 89.17NR: Not Reported91

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sAnnex-I/VBrief Particulars of Important Committees/Working Groups/Task Forces on FloodManagement Appointed by the Government of India1 The Policy Statement – 1954 and Supplementary Statement-1956Following the unprecedented floods of 1954, the Union Minister for Planning, Irrigation and Power,placed before Parliament, on 3 September 1954, two statements namely, ‘Floods in India - Problems andRemedies’ and ‘The Floods in the country’. The objective, set unequivocally in the policy statements,was to rid the country of the menace of floods by containing and managing floods. In the supplementarystatement placed before the Parliament on the 27 July 1956, the optimistic note changed a little, stating‘We shall, however, be able to curb and confine the floods, more and more and do all that is possibleto save ourselves from the harm and the devastation that they bring’. Another statement on the floodsituation and flood control programme pointed out that absolute immunity from flood damage was notphysically possible even in the distant future.2 The High Level Committee on Floods – 1957 and Policy Statement of 1958The High Level Committee on floods submitted its report in December 1957, and this was consideredby the Central Flood Control Board in its seventh meeting held in May 1958. Some of the importantrecommendations were:(i) Absolute or permanent immunity from flood damage is not physically attainable by knownmethods of flood control. Flood plain zoning, flood forecasting and warning, and like measuresshould, therefore, be given due importance, particularly as these do not require large capitalinvestment.(ii) Flood control schemes should fit in with other water-related plans to the extent feasible.(iii) Future multi-purpose projects should consider flood control aspects simultaneously.(iv) Effects of embankments on river regimes need to be considered before approving suchproposals.(v) In general, embankments are satisfactory means of flood protection when properly designed,executed and maintained, but a suitable combination of this method with other methods such asstorage dams, detention basins, etc. is usually more efficient and should be adopted as resourcespermit.(vi) Priorities for soil conservation work relating to flood control should be as under:(a) Catchment areas of multi-purpose dams.92

An n e x u r e s(b) Himalayas with their foothills.(c) Indo-Gangetic plain(d) Deccan plateau.vii) Works relating to watershed management be prioritised. Work commenced in a catchment shouldnot be left incomplete to take up work in other catchments.(viii) The following order of priority in general is recommended:(a) Emergent schemes.(b) Continuing schemes.(c) Schemes for the protection of important urban and industrial communities.(d) Schemes which would help in augmenting flood protection in the country.(e) Schemes, which combine other beneficial utilisation of waters.Another policy statement tabled in Parliament in 1958 also emphasises that while substantial diminutionof flood-related distress is possible, immunity against flood is impracticable.3 The Ministers’ Committee on Flood Control - 1964A Ministers’ Committee on Flood Control was constituted in February 1964 to review the NationalFlood Control Policy outlined in 1954. The Committee mainly recommended more attention to non-physicalmeasures like flood warning and forecasting, flood plain zoning, flood insurance; studying possibilityof multi-purpose storage dams for flood prevention and sediment detention in regard to major floodproducing catchments; administrative measures for restricting occupancy of flood zones and emphasison flood zones and frequency studies.4 The Working Groups on Flood Control for the Five-year PlansThe Working Groups on flood management, comprising experts and administrators, review the progressand performance of flood management measures undertaken and suggest appropriate strategies toformulate proposals including mobilization of resources for each five year plan and recommend measures,required for effective flood management programme in the country.5 The Rashtriya Barh Ayog – 1980The R.B.A. submitted its comprehensive report in March 1980. This contained a total of 207recommendations covering the entire gamut of the flood problem in the country. Some of the importantrecommendations were:93

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s• Data collection for providing information on their long-term performance and their impact onvarious socio-economic factors.• Legislation and enforcement by states to prevent unauthorised riverbed cultivation andencroachments into drains, etc.• Separate reporting of flood damage for (i) Unprotected areas (ii) Protected areas and (iii) Areassituated between the embankments.• Legislation for management of flood plains.• A comprehensive dynamic and flexible approach to the problem of floods as a part of acomprehensive approach for the utilisation of land and water resources.• Priority for measures to modify the susceptibility of life and property to flood damage.• Priorities for the completion of continuing schemes.• Provision of adequate funds for maintenance.• States to enact legislation amending Section 17 (II) of Land Acquisition Act, to make the existingprovisions for emergent situations, as applicable for flood control works.• Intensifying studies on sedimentation of reservoirs.• Forming a National Council for mitigating the effect of the disaster.A review of implementation status of these recommendations made by the CWC during 1987 andsubsequently during 2003 indicated that there is much to be achieved.6 The Pritam Singh Committee Report - 1980To examine the problem of erosion in West Bengal on both banks of the river Ganga upstream anddownstream of the Farakka Barrage, the government of West Bengal set up a committee in August1978 under the Chairmanship of Shri Pritam Singh, Member (Floods), CWC. The Committee comprisedthe Chairman, GFCC; Director, CWPRS; General Manager, Farakka Barrage Project; Chief Engineer,government of Bihar and Chief Engineer government of West Bengal.The committee identified the priority reaches downstream of Farakka Barrage for taking anti-erosionmeasures.7 The National Water Policy - 1987Important recommendations made in the National Water Policy of 1987 on flood control andmanagement were:94

An n e x u r e s• Basin-wise master plan for FM in each flood prone basin.• Sound watershed management and catchment area treatment.• Providing adequate flood-cushion in water storage projects wherever feasible• Emphasis to be made on measures like flood forecasting and flood plain zoning to minimiseflood damage.8 The Report of the Committee on Flood Management in the North-Eastern States - 1988(Naresh Chandra Committee)During the year 1987, when the failure of the monsoons resulted in an unprecedented drought in mostparts of the country, Assam and the neighbouring states had the misfortune of experiencing large-scaleflooding of the Brahmaputra valley. A committee was set up under the Chairmanship of the Secretary,Water Resources to look into this problem in some detail and to review the efficacy of the current measuresbeing taken and recommend further measures.The Committee suggested that the recommendations of the RBA should be implemented by thestate governments. Anti-erosion works are costly and can be justified only when protection is provided tovital installations. The main cause of erosion in tributaries is impinging of high velocity. To overcome thisproblem, bank revetments, preferably made with boulders, should be used. For drainage improvement theadequacy of existing sluices and drainage channels should be checked in a timely manner.9 The Report of the Committee on Flood Management in the States of Bihar, West Bengal,Uttar Pradesh and Orissa - 1988After the severe floods of 1987 in Bihar, West Bengal, Uttar Pradesh, etc., the GOI set up a committeeunder the chairmanship of Secretary, Water Resources to review the efficacy of the current measuresand recommend measures for urgent implementation. Some specific recommendations of the Committeeinclude• Properly designed, satisfactorily executed and adequately maintained embankments shouldcontinue as a cost-effective and quick measure.• Early completion of partly completed projects.• Construction of raised platforms on government or acquired land and handing over to localbodies/panchayats.• Ensuring adequate waterways to ease out drainage congestion.• Operation of existing reservoirs, keeping flood moderation in mind even if no flood cushion isprovided.95

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s• Provision of flood benefit/reserve storage in new/future reservoir projects to the extent possible.• Implementation of flood plain zoning.• Settling cost sharing among beneficiaries of anti-erosion works executed.• Setting up of Tal Development Authority and arranging special funding for developmental schemessuitable to Tal/Chaur areas.• Allocation of more funds for early completion of unfinished schemes in the Sundarbans of WestBengal.• Evaluation of completed project by states with the assistance of GFCC/CWC.10 The Recommendations of the Regional Task Forces - 1996During the monsoon of 1996, a large number of states including Rajasthan and Haryana, whichwere generally not flood prone, experienced floods of severe intensity causing extensive damage to lifeand property. Certain coastal areas experienced chronic problems of coastal erosion. It was, therefore,considered essential to examine the problem of floods and flood management in the country afresh.Consequent upon this, GOI had constituted five Regional Task Forces namely,(i) Eastern Region Task Force(ii) Northeastern Region Task Force(iii) Northern Region Task Force(iv) Northwestern Region Task Force(v) Southern Region Task Force(vi) The main thrust areas identified for actions by these task forces were• Implementation of main recommendations of the RBA.• Preparing a catalogue of embankments existing in various river systems.• 10 per-cent of annual out lay of flood control sector to be earmarked for maintenance of floodcontrol structures.• Studies on some major reservoirs and review of operation/rule curves.Other important measures recommended in general are the tackling of encroachment of people intoflood plains of the river downstream of the dam and inside embankments, taking up flood plain zoningmeasure especially the preparation of flood risk maps and scientifically analysing the happenings of severe96

An n e x u r e srainfall occurrences, very high flood stages and prolonged heavy drainage congestion in specific years,within a reasonable time of occurrence of such events by state governments, etc.11 The Experts’ Committee for Bank Erosion Problem of River Ganga-Padma in the Districtsof Malda and Murshidabad in West Bengal - 1996 (G.R. Keskar Committee)Considering the gravity of the problem of the bank erosion of the river Ganga in the districts of Maldaand Murshidabad in West Bengal, the Planning Commission constituted an Experts’ Committee under theChairmanship of Shri. G.R. Keskar, Member (RM), CWC in September 1996.Various measures recommended by the Committee are as under:(i) Short-term Measures Recommended for Immediate ExecutionLeft Bank upstream of Farakka Barrage in Malda DistrictThis includes construction of two long spurs at the 29th and 28th km upstream of Farakka Barragenear Manickchak, closing of the gap in left marginal embankment, repair/restoration of existing protectionworks in the district of Maldaand maintenance of Bhutni Diara EmbankmentRight Bank downstream of Farakka Barrage in Murshidabad districtRepair/restoration of existing works, construction of spurs near Bindugram downstream of FarakkaBarrage, afflux bundh with revetment along with nominal launching apron in Fazilpur reach etc.(ii) Long-term MeasuresMonitoring of performance of two long spurs upstream of Farakka, restricting flow through Barragenormal to its axis as possible by gate regulation, extensive river survey before and after floods every yearfor morphological study and creation of data bank for regular analysis, etc.12 The National Commission for Integrated Water Resources Development Plan - 1999The National Commission for integrated water resources development plan in its report (September1999) made interalia, the following recommendations regarding FM.• Since there are no solution for complete protection against floods, the country has to shift itsstrategy towards efficient management of flood plains, flood proofing, flood forecasting, disasterpreparedness and response planning, flood fighting and flood insurance.• Embankments provide reasonable protection against floods. However the performance ofembankments has to be evaluated and suitable changes be made in design, construction andmaintenance for better results.The network of flood forecasting and warning is to be extended to remaining flood prone areas.97

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s13 The Expert Group for Flood Management in Uttar Pradesh and Bihar – 1999 (G.N. MurthyCommittee)An Expert Group was set up under the Chairmanship of Shri G.N. Murthy, the then Chairman, GFCC,Patna to examine and suggest an action plan of an identified and specific FM scheme with inter-se priorityfor implementation. The Group emphasised the need for building a realistic data bank on hydrology,topography, geology, morphology, hydraulics, damages etc. The priority schemes consisted of schemeson closure of gaps in the embankment/extension of existing embankments, embankment schemes, antierosionworks, drainage schemes in Bihar and Uttar Pradesh. As a long-term solution, construction ofstorage reservoirs and watershed management was recommended.14 The Working Group on Flood Control Programme for the Tenth Five- year Plan – 2001(R.Rangachari Working Group)A Working Group on Flood Control Programme was set up by Planning Commission, GOI in November,2000 under the Chairmanship of Shri R. Rangachari, whose terms of reference included the review ofthe performance of the sector during the Ninth Plan period and making suggestions on the appropriatestrategy for the Tenth Plan period, etc.The report submitted in August 2001 had made a review of the flood management works adoptedso far and gave suggestions on the future strategy for flood management. It dealt upon many policyissues and examined the international dimension of the flood management. It had made a review of theimplementation of the RBA recommendations, too.15 Report of the Committee on Silting of Rivers in India – 2002 (Dr. B.K. Mittal Committee)To study and report on the problem of silting in Indian rivers and related aspects including feasibility ofdesilting, the Ministry of Water Resources constituted a committee in October 2001 under the Chairmanshipof Dr. B.K. Mittal, former Chairman, CWC. Its main recommendations were• Catchments afforestation, right practice of land use, catchment area treatment, and others.• In the river itself construction of suitable hydraulic structures that may trap silt.• Embankment along the aggrading river should be constructed, only after proper studies are madeon its behaviour especially due to sedimentation load and resultant morphological changes.• Desilting in general technically not feasible due to non-sustainability, non-availability of vast landfor disposal of dredged material.• Dredging has insignificant effect on flood magnitude.• Selective dredging may be undertaken after a thorough study of each case for desilting of tidalrivers or confluence points and to maintain minimum depth of water for navigation.98

An n e x u r e s16 The Expert Committee to Review the Implementation of the Recommendations Of RashtriyaBarh Ayog – 2003 (R. Rangachari Committee)An Experts Committee under the Chairmanship of Shri R Rangachari was set up by the Ministry ofWater Resources, GOI in October 2001 to review the implementation of recommendation of Rashtriya BarhAyog.The Committee summed up its views as follows:• Flood damage assessment, from year to year, is not done realistically or on scientific basis as perRBA recommendations, due to collateral reasons, which are surmised but not expressed. Thisneeds corrective steps.• Lack of representative, scientific and credible post-project performance evaluations of past floodmanagement works is a serious handicap.• Unabated and unplanned intrusion into the flood plains and riverbeds, sometimes with theapproval or acquiescence of government has now reached alarming dimensions. If this is notmanaged, flood losses will continue to mount.• RBA has made a number of recommendations on the future approach and the planning andimplementation thereof. Most of these have not been implemented or at the best partiallyimplemented. They will have to be kept in view as part of future approach.• The international dimensions of FM as an integral part of Water resource development andmanagement must be proactively addressed.• A number of other issues of importance like adequate funds, legislation, research and people’sinvolvement at all important stages, etc., are very important to effectively manage floods.However, the inter-state issues in multi-state river basins is a very important matter waiting to beeffectively addressed.17 The Committee for Identification of Critical Anti-erosion Schemes of Ganga Basin States forInclusion in CSS to be Implemented during Tenth Plan – 2003 (C. B.Vashistha Committee)Keeping in view the seriousness of river erosion and its associated problems, the Ministry of WaterResources, GOI constituted a Committee to identify the schemes for inclusion in the Centrally SponsoredScheme “Critical Anti-erosion works in Ganga Basin states for Tenth Plan” under the leadership of Shri C.B.Vashistha, Chairman, GFCC.The Committee visited the critical anti-erosion sites of river Ganga in Uttar Pradesh, Bihar andWest Bengal for assessment of the problem and gave its recommendations, which have largely beenimplemented.99

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s18 Report of the Technical Group on Flood and Erosion Problems of North Bengal – July2004 (M.K. Sharma)Rivers like Teesta, Jaldhaka, Torsa, Raidak and Mahananda draining the north Bengal along with theirseveral tributaries cause a serious flood erosion problem in the region. To study the flood and erosionproblem of the region and suggest suitable measures, the Ministry of Water Resources constituted atechnical group comprising representatives from concerned central and state organisations under theChairmanship of Shri M.K. Sharma, Member (RM), CWC.• Design flood estimation may be done in accordance with the sub zonal report of the CWC.• River training/activation of channel may be attempted on selected reaches where feasible.• Maintenance of embankments during the pre-monsoon and the monsoon period may beundertaken in accordance with these guidelines given in the embankment manual.• Considering the magnitude and severity of flood and erosion problems in the north Bengal regionit is suggested that a comprehensive plan for flood management for the north Bengal may beprepared.• Materials such as bamboo, branches of trees, river shingle and boulders which are locallyavailable at comparatively lower cost can be utilised for inducing siltation thus diverting the riverflows and preventing bank erosion.• Implementation of prioritised schemes (listed in the reports) to be taken up during Tenth Plan.19 National Water Policy - 2002• Basin-wise master plan for flood control and management.• Provision of adequate flood cushion in reservoir projects.• Flood control to be given overriding consideration in reservoir regulation policy.• More emphasis on non-structural measures.• Strict regulation of settlements and economic activities in flood plains.• Flood forecasting activities to be modernised and expanded.20 The Task Force on Flood Management/Erosion Control - 2004A Task Force was set up by the Ministry of Water Resources (MOWR) (vide order No. 24/3/2004-ER/2812-48 dated 11 August, 2004) to look into the problem of recurring floods in Assam and neighbouring states aswell as in Bihar, West Bengal and eastern Uttar Pradesh under the chairmanship of Chairman, Central WaterCommission (CWC) and Secretary ex-officio to the GOI. The terms of reference of the task force were100

An n e x u r e s(i) To examine the causes of the problem of recurring floods and erosion in Assam and otherneighbouring states as well as in Bihar, West Bengal and eastern Uttar Pradesh.(ii) To review the measures undertaken so far to combat floods and erosion.(iii) To suggest short-term and long-term measures for management of floods and erosion control.(iv) To examine related international dimensions and suggest future course of action.(v) To suggest institutional arrangements for tackling the problem.(vi) To suggest sources of funding for the future action plan.(vii) To examine any other related matter/issues.The task force submitted its report to the MOWR on 31 December 2004. The broad recommendationswere:i) The role of the central government in the flood control sector be expanded. It has recommendedthat the flood control schemes should be funded through the centrally sponsored scheme inthe ratio of 90 per-cent central and 10 per-cent state from the present 75:25. The task forcehas recommended that the corpus for centrally sponsored scheme also needs to be increasedsubstantially to accommodate all critical flood management and critical anti-erosion works.ii)Schemes worth Rs. 316.14 crore be taken before the coming flood season as an immediatemeasure. The schemes worth Rs. 2030.15 crore have been recommended under short term-Icategory to be executed during the remaining two years of the Tenth Five Year Plan, i.e., duringthe 2005-06 and 2006-07 and Rs. 2635.81 crore under short term-II category to be completed inthe Tenth Plan.iii) The total investment for plan/flood management may be increased from the existing half per-centof the total plan outlay to at least one per-cent.iv) Funds in the state sector be earmarked as additional central assistance for maintenance ofembankments.v) Eligibility criteria of schemes for central funding be reduced to Rs. 1 crore from the existing limitof Rs. 3 crore per scheme.vi) A revolving fund of Rs. 50 crore, which may be available annually to the Ministry of Water Resourcesto take up emergent flood management schemes, be created. The normal requirement of ‘inprinciple’ approval of the Planning Commission is recommended to be waived in this particularcase. The schemes under this fund could be implemented by the states/Boards after inspectionby the CWC/Brahmaputra Board. The task force has further recommended that to mobilise101

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sresources for this revolving fund, a flood cess of say one per-cent to two per-cent could be leviedon new infrastructure like roads, buildings, power plants etc. in the flood prone states.vii) The central government may consider funding the flood control component of the reservoirprojects.viii) Under the institutional arrangements, an authority in the North-east region with all the statutorypowers be set up. In the meantime the Brahmaputra Board be strengthened and restructured.ix) The Sikkim and North Bengal River Management Board be established for planning and integratedimplementation of measures for flood management in Sikkim and North Bengal.x) The Ganga Flood Control Commission be strengthened by addition of the post of Member (Works)and appropriate field formation for investigation and execution of critical flood management worksbe created.xi) The jurisdiction of Farakka Barrage Organisation, be extended.xii) In order to have policy formulation and coordination among various agencies, Flood ManagementOrganisation of the Central Water Commission be strengthened by restoring the post of Member(Floods) abolished earlier and redeployment of posts of Chief Engineer, two Directors and otherlower level functionaries.xiii) The Brahmaputra Board and the proposed Sikkim and North Bengal River Management Boardbe entrusted the techno-economical examination of the schemes upto Rs. 15 Cr. for submissionto the Planning Commission for investment clearance.xiv) The reservoir projects in the north-east as well as in Nepal and Bhutan be expedited under thecategory of long-term measures for flood management.102

An n e x u r e sAnnex-I/VIImportant Recommendations of the RBA as Identified by the Expert Committee andStatus of Their ImplementationEvaluation of Performance1. Recommendation Sl.No.4For the purpose of evaluation of the performance of the existing and future flood controlworks, data has to be collected in an effective manner so as to provide quantitative and dependableinformation on their long term performance and their impact on various socioeconomic factorsThe state governments of Andhra Pradesh, Assam, Bihar, Orissa, Punjab, Uttar Pradesh acceptthe recommendation to take up such studies. The Central Water commission, Ganga Flood ControlCommission, Brahmaputra Board and Assam have got the performance evaluation studies for someschemes done, generally through Water and Power Consulting Services Ltd. (WAPCOS) or other agencies.These reports were then forwarded to concerned state governments for necessary action. Seven schemeshave also been evaluated by the government of Assam.Flood Plain Use2. Recommendation Sl.No.14The states should undertake legislation to prevent unauthorised riverbed cultivation andencroachments into drains etc. and where such laws already exist, the enforcement agenciesshould be strengthened.The cultivation of crops like watermelons, however, be allowed with caution.The practice of cultivation in the abandoned beds of dhars which discharge into main rivers shouldbe stopped.Andhra Pradesh has informed that action has been taken under River Conservation Act. Bihar has BiharIrrigation Act 1997 against encroachment. Punjab uses the Canal &Drainage Act for this purpose. Uttar Pradeshuses the Zamindari Abolition Act. Similarly, Orissa and Himachal Pradesh are proposing to take action.3. Recommendation Sl.No.15Where suitable legislation with a penal clause for unauthorised crossings over drains hasnot been enacted, the same should be done and enforced.Andhra Pradesh, Punjab, Uttar Pradesh, Rajasthan and Bihar report that action is being taken underthe existing acts to enforce this measure. Orissa is taking action in the matter. Himachal Pradesh isconsidering the enactment.103

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s4. Recommendation Sl.No.49Flood plain management measures should be undertaken by the states where necessarylegislation exists. Suitable legislation should be enacted in other states.Manipur state enacted the legislation in 1978. However, the act is not being enforced till now. The stategovernment of Rajasthan passed the legislation in 1990. Details of enforcement are not available. Thestate governments of Andhra Pradesh, Assam, Bihar, Himachal Pradesh, Orissa, Punjab, West Bengal andTripura are still considering this legislation. State government of Madhya Pradesh intimated that they haveno serious flood problem and are not considering any legislation. Uttar Pradesh and Haryana consider thelegislation necessary but are taking administrative measures. The NCT of Delhi reports that the existingDelhi Development Act 1957 has adequate provisions, which has been ignored so far.5. Recommendation Sl.No.51Develop a special flood prone area programme similar to the drought prone area programme ortribal area development of ‘DIARA’ land along with appropriate research and development support.Hardly any progress in the matter has been reported by anyone.Flood Damage Assessment6. Recommendation Sl.No.21Wherever possible, contour maps along with gauge data should be used by the flood controldepartments to derive estimate of area flooded.Surveys for preparing contour maps to a scale of 1:15,000 with 25 cm to 50 cm contour intervals weretaken up under central funding and until March 1992 (when it was terminated), an area of about 54,000 sqkm had been surveyed by the Survey of India. Survey maps of flood prone areas of various reaches ofthe Jhelum, Sutlej, Ganga tributaries of the Brahmaputra have been furnished to the state governments ofAssam, Bihar, Haryana Punjab, Jammu and Kashmir, Uttar Pradesh, West Bengal, etc. for preparing floodrisk maps, There has been, however, poor response/reluctance of the concerned state governments in thefollow-up action.7. Recommendation Sl.No.22Remote sensing techniques operated through artificial satellite(s) may be used in selectedareas to provide a sample check on the extent of area and cropped area affected by floodsAndhra Pradesh, Punjab, Orissa, Uttar Pradesh, Himachal Pradesh are utilising this technique. TheNRSA is now in a position to play a more important role in this regard. Rajasthan and Arunachal Pradeshare exploring the use of this technology.104

An n e x u r e s8. Recommendation Sl.No.28Flood damage may be reported separately for the following three categories of areas:i) Unprotected areasii)Protected areasiii) Areas situated between the embankments and the riverNone of the states, who have responded to the questionnaire, are following this procedure.9. Recommendation Sl.No.29The extent of area affected by drainage congestion should be compiled separately forprotected and unprotected areasNo state that has responded, is currently following this procedure.10. Recommendation Sl.No.30Damage data should be compiled basin and sub-basinwise alsoNo state that has responded, is currently following this procedure.11. Recommendation Sl.No.33At the national level, damage data should be compiled by the CWC with an economics unitadded to it. It should publish data at the national level.The CWC is compiling the national damage data primarily on the basis of information received fromthe respective state revenue authorities and reconfirming the same subsequently before finalisation. Whilefinalizing the data, figures are cross-checked from the NDM division of MOA (now MHA).12. Recommendation Sl.No.36The CWC should aid and encourage research in the methodology of flood damage assessment.The CWC is following this guidelineFuture Approach13. Recommendation Sl.No.81The comprehensive approach to the problem of floods must form part of the overall105

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d scomprehensive approach for the best possible utilisation of our land and water resources foroptimum production on a sustained long term basis.The approach to the Flood problem should remain dynamic and flexible, so as to accommodatefuture improvements in policy if called for, taking into account the state of our economy, oursocial conditions, and the availability of resources.The CWC/GFC/Brahmaputra Board have accepted and are following it in the master plans evolvedthrough their agencies.14. Recommendation Sl.No.82Various alternative measures, physical or otherwise, should be considered for FM and theoptimum combination of the measures available in a given situation, selected.15. Recommendation Sl.No.83There is a need for storage in various forms, which would even out the flow and also conservewater for use during the dry period16. Recommendation Sl.No.84Afforestation and soil conservation measures are recommended as a useful complement toother measures and should be taken up in the watersheds of rivers with heavy silt charge.17. Recommendation Sl.No.85Reservoirs, to the extent technically and economically feasible, must be considered as animportant component in any package of measures for FM.18. Recommendation Sl.No.86Where conditions permit, the use of natural detention basins for flood moderation may beavailed of. However, if reclamation of the detention basin has been carried out, the storage maybe made use of only during abnormal floods.19. Recommendation Sl.No.88While considering the use of embankments, the associated problems and side-effectsshould be kept in view, and minimised to the fullest extent possible.20. Recommendation Sl.No.92Measures attempting to modify the susceptibility of life and property to flood damageshould be adopted to a much more increasing degree than heretofore106

An n e x u r e sThe recommendations at serial no. 14-20 have been accepted by the states of Assam, Andhra Pradesh,Arunachal Pradesh, Chhatisgarh, Orissa, Punjab, Uttar Pradesh, Rajasthan, Himachal Pradesh and Bihar.The NRM Division, MOA, GOI, is implementing catchment area treatment including a soil and waterconservation programme under River Valley Project and Flood Prone River Programme in 45 catchments.The CWC is providing flood forecasting services through 179 stations, Andhra Pradesh, Assam, Orissa,Uttar Pradesh and Bihar are maintaining warning and relief/rescue systems.Planning and Implementation21 Recommendation Sl.No.96Need and feasibility of providing flood space in reservoirs should continue to be examinedand implemented.Andhra Pradesh, Bihar, Punjab, Orissa, and Uttar Pradesh agree.22. Recommendation Sl.No.112Negotiations should be expedited between Nepal and India with regard to the constructionof storage and development of water resources.Uttar Pradesh and Bihar agree.23. Recommendation Sl.No.113Unless adequate maintenance of completed works is assured, it will add to the damagepotential through their deterioration and it would be unwise to undertake new construction at thecost of maintenance of already existing works.Most states that have responded have reported inadequate funds for maintenance being madeavailable to them.24. Recommendation Sl.No.116Completion of continuing schemes should receive priority in allocation of funds, to theextent necessary.The recommendation has been accepted by the states of Andhra Pradesh Assam, ArunachalPradesh, Bihar, Himachal Pradesh, Madhya Pradesh, Orissa, Punjab and Uttar Pradesh. Reportedly, fundconstraints jeopardise the main objective of the schemes.25. Recommendation Sl.No.117Attempts should be made to obtain public participation.107

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sRajasthan, Himachal Pradesh, Bihar, Andhra Pradesh, Punjab, Orissa and Uttar Pradesh state thatthey are implementing this.Financing26. Recommendation Sl.No.122Flood control sector be given preference while making allocations from funds meant forspecial problems in major flood prone statesMost states that have responded have reported that only meagere funds are allocated to floodcontrol.Maintenance27. Recommendation Sl.No.132Adequate funds for maintenance should be assured; amounts for maintenance suggested forvarious types of works may be taken as a guide. These should be reviewed by the state officers on thebasis of actual needs and norms accordingly fixed. These norms should be reviewed periodically.Many states have reported that only insufficient funds are being made available for maintenance.28. Recommendation Sl.No.137Arrangements should be made for connecting by telecommunication links, all points ofimportant flood and drainage works to the headquarters of superior engineering officers andthe control room of state headquarters.The states of Andhra Pradesh, Orissa, Bihar, Madhya Pradesh, Uttar Pradesh, and Rajasthan simplyagree. Himachal Pradesh agree but report its inability to follow due to fund constraint.Organisation29. Recommendation Sl.No.143River basin authorities should be set up for preparing plans by basins/sub-basins of interstaterivers.30. Recommendation Sl.No.149River basin authorities should be constituted as statutory authorities.Central agencies like the GFCC, Brahmaputra Board and CWC agree. But the government has noresponse.108

An n e x u r e sLegislation31. Recommendation Sl.No.152The central government should assume the powers conferred on it by the constitution under Entry56 of the union list and enact suitable legislation for the regulation and development of inter-state rivers.32. Recommendation Sl.No.154The central government should prepare a model bill dealing with all aspects of flood controlto serve as a guide for the state governments.Central agencies like the GFCC, Brahmaputra Board and CWC agree. The state government have notresponded in the matter.Research, Education and Training33. Recommendation Sl.No.167More emphasis should be laid on research, education and training as relevant to waterresources development, river science and control of floodsThe recommendation is being implemented by the states of Andhra Pradesh, Bihar, Punjab, Orissa,Himachal Pradesh, Rajasthan and Uttar Pradesh.34. Recommendation Sl.No.176The existing research organisations should intensify their research investigation to obtainscientific information on river morphology and river response to various hydraulic structuresand encroachments.The state governments of Andhra Pradesh, Bihar and the Brahmaputra Board are implementing thisrecommendation.Cyclones and Sea Erosion35. Recommendation Sl.No.190The recommendations contained in the project report prepared by the IMD for betterforecasting and warning are endorsed.The IMD introduced a 24-hours watch for cyclones and their warning which has been upgraded fromStage 2 to stage 4 in 1999. A satellite-based cyclone warning dissemination system has also been installedand is being operated.109

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s36. Recommendation Sl.No.191Only restricted urbanisation should be permitted in areas vulnerable to sea surges resultingfrom cyclonesThe state government of Andhra Pradesh stated that the recommendation is being followed.37. Recommendation Sl.No.192Disaster prevention policies should be encouraged.38. Recommendation Sl.No.193The general range of land use regulation recommended for flood prone areas may be appliedfor cyclone-hit areas too.39. Recommendation Sl.No.194Casuarina and other plantations, wherever feasible, should be grown as wind breakers fora width of about 2 km along the seacoast.There has been no response from the state governments on recommendations at Sl. No. 37-39.40. Recommendation Sl.No.195.Shelter buildings, especially designed for cyclone conditions should be constructed in thecoastal areas.Andhra Pradesh and Orissa have reported that they are following these recommendations.110

An n e x u r e sS.No. Name of States /UTs AreaState-wise Details of Achievements on Structural MeasuresbenefitedLength ofembankmentsLength ofdrainagechannellakh hectares Kms KmsVillageraised/protectedTown/ villageprotectionworksAnnex-I/VII1 2 3 4 5 6 7 81 Andhra Pradesh 13.11 2230.000 13569.000 23 72 NR2 Arunachal Pradesh 0.55 6.324 4.447 17 0 03 Assam 16.42 4464.180 850.690 0 694 NR4 Bihar 29.49 3430.000 365.000 0 47 585 Chattisgarh 0.00 0.000 0.000 0 0 06 Delhi 0.78 83.000 453.000 0 0 07 Goa 0.03 23.190 32.770 0 2 08 Gujarat 4.83 104.120 271.000 30 805 NR9 Haryana 20.00 1144.000 4385.000 98 448 010 Himachal Pradesh 0.12 58.000 11.000 0 0 011 Jammu and Kashmir 2.17 230.000 14.000 5 12 012 Jharkhand 0.01 14.000 0.000 5 2 013 Karnataka 0.05 73.515 10.000 0 30 014 Kerala 3.46 205.744 31.100 6 4 015 Madhya Pradesh 0.04 26.000 0.000 0 37 016 Maharashtra 0.01 44.500 110.000 0 0 017 Manipur 1.32 577.000 166.000 1 38 018 Meghalaya 0.01 112.000 0.000 2 8 019 Mizoram 0.00 0.000 0.000 0 0 020 Nagaland 6.32 10.519 0.000 0 8 021 Orissa 6.30 6541.000 131.000 14 29 NR22 Punjab 31.90 1370.000 6622.000 0 3 023 Rajasthan 0.82 145.000 197.000 0 25 024 Sikkim 0.17 101.810 64.860 0 18 025 Tamil Nadu 1.22 87.000 19.000 4 46 026 Tripura 0.33 141.740 95.230 0 11 NR27 Uttar Pradesh 17.03 2097.000 3995.000 4511 65 NR28 Uttarakhand 0.02 9.000 0.000 0 6 NR29 West Bengal 25.68 10539.000 7392.760 00 48 NRUnion Territories30 A and N Islands 0.00 0.000 0.000 0 0 031 Chandigarh 0.00 0.000 0.000 0 0 032 Dadra and Nagar Haveli 0.00 0.000 0.000 0 0 033 Daman and Diu 0.00 0.000 0 0 034 Lakshadweep 0.00 0.000 0.000 0 0 035 Pondicherry 0.04 61.000 20.000 0 0 0Total 182.22 33928.642 38809.857 4716 2458 58NR : Not reportedRaisedplatforms111

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sAnnex-IV/IFlowchart for Flood Forecasting and Early Warning112

An n e x u r e sAnnex-V/ICase Study for Ef fectiveness of Hirakud Dam in Flood ModerationHirakud DamThe Hirakud dam was conceived to provide one of a series of three storage reservoirs on theMahanadi river, primarily for flood control of the Mahanadi delta. The scheme was, however, prepared asmultipurpose project with emphasis on flood control with other benefits added to improve revenues andeconomic returns. It is a fact that the flood control function had over a period of time received secondarystatus below hydropower and irrigation.The Hirakud reservoir has a total storage capacity of 66 lakh acre feet (8.14 BCM) upto the fullreservoir level of 630 ft. The live storage capacity between the minimum water level (DSL) of 590 ft and thefull reservoir level is 347.2 lakh acre feet (5.82 BCM). It was originally envisaged that during the monsoonmonths June to September, the reservoir level be kept at 590 ft, so as to make available the capacityabove this level for flood absorption purposes. As the monsoon draws to an end, the reservoir was to befilled in to reach the FRL of 630 ft by first October every year, to meet the lean season needs of irrigation,power, etc. The reservoir has no earmarked flood storage as such. The available capacity during themonsoon season is utilised for flood moderation.In actual operation, over the years since it was commissioned in 1957, many changes have taken place,primarily governed by the requirements of irrigation and power generation. In the early years of operation,it was noted that the irrigation and power interests would be assured with early filling of the reservoir thanoriginally planned. Such changes occurred again and again, as summarised in the Table below.Authority/YearSummary of Hirakud Reservoir Filling SchedulesRecommend Reservoir Level in feet as on1 July 1 Aug 21 Aug 1 Sept 11 Sept 21 Sept 1 Oct1953 Project Report (revised) 590 590 590 590 6201959 reservoir operation manual* 590 590 590 590 6301962 EvaluationCommittee Report 592 590 590 600 615 625 6301970 Hirakud Coord. CommitteeReport(15/9)600 600 600 610 615 625 6301976 Experts Committee Report 600 600 605 617 623 627 6301989 and 1992 Expert Committeereport*General average yearsSource: CWC/Orissa government records595 590 610 toNotes: Dead storage level 590 ft and full reservoir level 630 ft.622619 to627624 to629629.5 to630630630113

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sIt is thus clear that there is constant endeavour to give greater importance to hydropower and irrigationand consequently to fill up the reservoir very early, relegating the FM aspect to low priority. This is contraryto the original project concept. What is even worse, it is found that in actual operation, ‘the reservoiris being kept substantially higher than the latest recommended filling schedule’ and this curtailment inflood control storage was used mostly for power generation purposes. This poses a real threat to floodmoderation aspect as also to the safety of the flood embankments in the delta. Silting in the reservoir willaggravate the problem.The effect of the Hirakud dam in moderating the floods at the delta head, as per the records andanalysis of the government of Orissa, is summarised in the Table given below.Role of Hirakud Dam in Reduction of Flood Peak at Mahanadi Delta HeadYear Peak flow dates Peak flow at Delta Head with and without Hirakud DamActual with Hirakud Dam In positionHypothetical without Hirakud dam inplaceLakh cusec 1000 cumec Lakh cusec 1000 cumec1 2 3 4 5 61961 4-13 July 12.85 36.39 15.15 42.9014.26 July 11.52 32.82 12.65 35.821-11 Sept 11.68 33.07 15.17 44.4914-17 Sept 13.05 36.95 13.80 39.081964 16-19 Aug 8.95 25.34 13.40 37.9522-26 Aug 9.05 25.67 13.90 39.361967 2-5 Aug 8.94 25.32 14.21 40.241973 2-7 July 8.32 23.56 11.50 32.561976 11-18 Aug 9.14 25.88 9.50 37.101978 26 Aug-3 Sept 9.93 28.12 12.53 35.481980 19-30 Sept 12.70 35.96 14.20 40.211982 30 Aug-6 Sept 15.84 44.85 20.90 59.181983 4-13 Sept 9.02 25.54 10.50 29.731985 1-14 Aug 9.30 26.34 11.10 31.431986 25-30 June 8.70 24.64 13.10 37.101991 20 July-4 Aug 7.25 20.53 10.90 30.8712 July-21 Aug 12.71 35.99 16.90 47.861992 8 July-2 Aug 11.34 32.11 14.00 39.6416-30 Aug 11.26 31.89 15.10 42.761994 8-19 July 10.24 29.00 13.20 37.386-11 Aug 10.81 30.61 12.15 31.761995 25 July 9.11 25.80 12.16 34.43Source: 1. Orissa government records taken from the report of the Working Group on Flood Control forthe Tenth Plan2. Article by R Rangachari presented at the Ninth National Water Convention, November 2001 atBangalore, titled ‘Role of Storage Dams in the Management of Floods’114

An n e x u r e sSumming up, every flood that passed through the dam has been moderated.As the uncontrolled catchment, downstream of Hirakud dam is sizeable, Hirakud reservoir alonecannot be depended upon to keep flood peaks in the delta region below safe levels. This underlines theneed for further storages and improvements and strengthening the flood control embankments in the deltaregion.The effectiveness of the Hirakud dam in FM can be enhanced by many ways. These include realtimeinflow and flood forecasts, effective communication links of the dam agency with upstream anddownstream regions, revision of the reservoir regulation manual, independent monitoring and annualreviews of the actual operations.115

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sAnnex-VI/IModel Bill For Flood Plain ZoningA billto provide for the zoning of flood plains of rivers in the state of --------------------Be it enacted by thelegislature of the State of ---------------------in the Twenty-----------year of the Republic of India as follows:CHAPTER 1Short title, Extent andPRELIMINARY1.(1) This Act may be called the Flood Plaincommencement(2) It extends to the whole State of----------(3) This section shall come into force at once and the remaining provisionsof this Act shall come into force on such date as the state governmentmay, by notification in the Official Gazette, appoint:Provided that different dates may be appointed for different provisionsof this Act and for different areas or different rivers.Definition2.(1) In this Act, unless the context otherwise requires-(a) ‘flood plain includes water channel, flood channel and that area ofnearby low land susceptible to flood inundation.(b) ‘flood plain zoning’ means retracting any human activity in the floodplains of a river where the plains are created by overflow of water fromthe channels of rivers and Streams;(c) ‘flood zone’ means the area which is required to carry the flow of themaximum probable floods;(d) ‘Flood Zoning Authority’ in relation to a river, means the authorityappointed by the State Govt. under Section 3;(e) ‘land’ includes interest in lands, benefits arising out of lands and thingsattached to the earth or permanently fastened to anything attached tothe earth;(f) ‘occupier’ in respect of any land, means any person who has an interestin the land and cultivates the land himself or by his servants or byhired labour and includes a tenant;116

An n e x u r e s(g) ‘Owner’ in relation to any land includes any person having interest insuch land;(h) ‘prescribed’ means prescribed by rules made by the State Govt.under this Act;(i) ‘river’ includes its tributaries;‘water channel’ means the channel in which the flows of a river aregenerally confined.CHAPTER IIFLOOD ZONING AUTHORITY AND ITS POWERSDeclaration of flood plain 3.(1) Where the state government considers it necessary or expedient sozoning to do, it may, by notification in the official Gazette and inthe Gazette of every District in which any part of a riverflows, declare that flood plain zoning shall be made in the mannerhereinafter specified.(2) The state government may direct that a survey be made of a riverfor the purpose of determining the limits within which the provisionsof the Act are to be applied and that proper charts and registers beprepared specifying all boundaries and landmarks and any othernecessary matter for the purposes of ascertaining such limits.(3) The state government may by notification in the Official Gazette,appoint the Collector of the District or such other authority as thatgovernment considers necessary, as the Flood Zoning authorityfor the purposes of making a survey of the area as required undersub-section (2) and may specify in such notification, the duties to bedischarged by such authority.Powers and functions of 4. The Flood Zoning authority shall exercise the powers and dischargethe Flood Zoning Authority the duties in accordance with the provisions of this Act and the termsand conditions specified in the notification under sub-section (3) ofsection 3.CHAPTER IIISurveySURVEYS AND DELINEATION OF FLOOD PLAIN AREA5.(1) The flood Zoning Authority shall carry out surveys of flood plains ofthe rivers and determine the nature and the extend of flood plains ofthe rivers.(2) The Flood Zoning authority shall, on the basis of the survey carriedout under sub-section (1), establish flood plain zones and delineate117

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sthe areas which are subject to flooding including classification of landwith reference to relative risk of flood plain use intended to safeguardthe health, safety and property of the general public.(3) The Flood Zoning Authority shall prepare charts and registersindicating the areas delineated under sub-section (2).Power to take up survey6.(a) to enter upon and survey and take levels of any land within its or hisjurisdiction;(b) to mark such levels, boundaries and lines by placing marks orboundary stones;(c) to measure the land;(d) to do all other acts necessary for the purposes of ascertaining thelimits referred to in sub-section (2) of section 3;(e) where otherwise the survey cannot be completed and the levelstaken, to cut down and clear away any part of standing crop, fenceor hudge;Provided that no Flood Zoning Authority or any other officer shall enterinto any building or open any enclosed court or garden attached toa dwelling house (unless with the consent of the occupier thereof)without previously giving such occupier atleast seven days notice inwriting of its or his intention to do so.Payment of damages7.(1) The Flood Zoning Authority or any other officer generally or speciallyauthorised by it in this behalf, who has entered upon any land undersection 5 shall, before leaving, tender compensation to the owner oroccupier of such land for any damage which may have been causedand in case of dispute as to the sufficiency of the amount so tendered,the Flood Zoning Authority or such officer shall refer the matter to the-----------------for his decision.(2) The decision of the officer under sub-section (1) shall be final and nosuit shall lie in a civil court to have it set aside or modified,CHAPTER IVNOTIFICATION OF LIMITS OF FLOOD PLAINSDeclaration of intention of 8.State Govt. to demarcateflood plain areasThe State Govt. may, on the basis of a report from the Flood ZoningAuthority or otherwise, by notification in the Official Gazette, declareits intention to demarcate the Flood Plain areas and either prohibit orrestrict the use of land therein.118

An n e x u r e sPublic Notices9. (1) The Flood Zoning Authority shall, on the issue of notification undersection 8, cause public notice of the substance of such notification tobe given at convenient places in the area.(2) The Flood Zoning Authority shall also give notices individually to theowners of the lands situated in the area.(3) The Flood Zoning Authority shall exhibit records, charts, maps, registersand such other documents showing the river channel, flood channeland the flood plain area, specifying the nature and extent to which theuse of limits of the area is either prohibited or restricted, the office forinspection by the general public at the timings specified therein.Objections10.(1) Any person who desires to raise any objection to the limits andeither the prohibitions or restrictions specified in the public noticereferred to in section 9, may within a period of sixty days from thedate of publication of the notification in the official gazette, forwardto the Flood Zoning Authority a statement in writing setting forth hisobjections.(2) After the expiry of period aforesaid, the Flood Zoning Authority shallissue a notice in the manner prescribed and consider the objectionsafter giving the party concerned a reasonable opportunity of beingheard in the matter.The Flood Zoning Authority shall forward to the State Govt. its or hisproposals together with the records referred to in sub-section (3) ofsection 9.Decision of the StateGovernment11.(1) The State Gov t. shall, after considering the report of the FloodZoning limits of the areas as it considers necessary.(2) The decision of the state government shall be final.(3) The state government shall, by notification in the official Gazette,declare that the provisions of this Act shall apply to the said river withboundaries and limits as specified.(4) The areas delineated and approved by the state government shall bedeemed to be the flood plain and the limits shall, where necessary,be marked either by boundary stones or other suitable marks.(5) The Flood Zoning Authority shall maintain the charts and registers ofsuch areas so delineated and such charts and registers shall formpart of the permanent records of the office.119

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s(6) The charts and registers maintained under sub-section(5) shall befurnished to the Collector of the District in which any part of the riveris situated and shall be open for inspection by the general public atsuch times as may be prescribed.CHAPTER VPowers to prohibitobstruction, etc. inPROHIBITION OR RESTRICTION OF THE USE OF THE FLOOD PLAINS12.(1) Where the State Govt. is satisfied that it is necessary to do so in theinterest of public health, safety, or property in the interest of reducingthe flood plain area inconvenience to the general public or that it isnecessary to prohibit or restrict the activities in the flood plain, thatgovernment may, by notification in the Official Gazette, specify thearea where such prohibition or restriction is to be enforced and thenature and extent of such prohibition or restriction.Provided that no notification under this sub-section shall be issuedafter the expiry of six months from the date of publication of notificationunder section-8.(2) Upon the publication of a notification under sub-section (1)notwithstanding anything contained in any law, custom, agreementor instrument for the time being in force, the prohibition or restrictionspecified in such notification shall prevail.(3) No person shall undertake any activity within the prohibited areaor restricted area except with the previous permission of the FloodZoning Authority. Provided that where a person makes an applicationto the Flood Zoning Authority for permission under this sub-section toundertake any activity and the Flood Zoning Authority does not, withina period of ninety days from the date of receipt of such application,communicate to the person that permission applied for has beenrefused, it shall be presumed that the Flood Zoning Authority hasgranted such permission.Penalty13. If any person commences or carries on or attempts to carry on anyactivity in the area specified in the notification under sub-section (1)of section 12 contrary to the terms and conditions specified in suchnotification, he shall be punishable.(a) With fine which may extend to five hundred rupees or in default, ofpayment of fine, to simple imprisonment for a term which may extendto two months; and(b) With further fine which may extend to one hundred rupees for eachday after the conviction under clause (a).120

An n e x u r e sPower to Compound14.(1) Subject to such conditions as may be prescribed, any officerauthorised by the State Govt. by a general or special order in thisbehalf may, either before or after the institution of proceedings underthis Act accept from the person who has committed or is reasonablysuspected of having committed an offence, a sum of money notexceeding-------rupees.(2)On the payment of such sum of money, such person shall bedischarged and no further proceedings shall be taken against him inrespect of such offence.Appeal15.(1) Any person aggrieved by any decision of the Flood Zoning Authoritymay refer an appeal to the prescribed authority within a period ofninety days from the date on which such decision was communicatedto him;Provided that the prescribed authority may entertain the appeal afterthe expiry of the said period of ninety days if it is satisfied that theappellant was prevented by sufficient cause from filling the appeal intime.(2)The prescribed authority may after giving a reasonable opportunityto the appellant of being heard in the matter, make such orders as itdeems fit and the decision thereof shall be finalRevision16.(1)Where no appeal has been preferred under section 15, the State Govt.may, for the purpose of examining the legality, property or correctnessof any inquiry or proceedings of the Flood Zoning Authority, call for therecords of any inquiry or proceedings of the Flood Zoning Authorityand make such order in the case as it thinks fit;Provided that no such records shall be called after the expiry of sixmonths from the date of such order.(2) No order of the Flood Zoning Authority shall be varied by the StateGovt. so as to prejudicially affect any person without giving suchperson a reasonable opportunity of being heard in the matter.CHAPTER VICOMPENSATIONPayment of compensation 17.(1) Where any permission to undertake any activity in the flood plainhas been refused to any person or whereas a result of prohibitionor restriction imposed on any person under this Act, such personsuffers any damage, he shall be entitled to the payment of121

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d scompensation not exceeding the difference between the value ofthe land as determined under section 23 of the Land AcquisitionAct, 1894 and the value which it would have, had the permission forcarrying on any(Central Act 1 of 1894) activity had been granted orthe prohibition or restriction had not been imposed.(2) In determining the amount of compensation under sub-section(1),any restriction to which the land is subjected to under any other lawfor the time being in force in regard to the right of the person claimingcompensation to carry on any activity on the land or otherwise to theuse of the land shall be taken into consideration.Determining thecompensation andapportionment by consent18. (1) The person to whom the compensation under section 17 is to bepaid and the apportionment of such amount among the personsinterested therein shall be determined by agreement between theFlood Zoning Authority and the person or persons claiming interesttherein.(2) In default of any such agreement, the Flood Zoning Authority shall,after holding such enquiry as it considers necessary, make an awarddetermining:-(a) the amount of compensation to be paid under section 17 and(b) the apportionment, if any of such compensation among personsknown or believed to be interested therein;Provided that where the amount of compensation exceeds Tenthousand rupees, no award shall be made without the previousapproval of the State Govt. or such other officer as the State Govt.may authorise in his behalf.Compensation notadmissible19. (1) No compensation shall be awarded.(a) if any in so far as the land is subject substantially similar restrictionin force under some other law in force on the date on which therestrictions were imposed by or under this Act; or(b) if compensation in respect of the same restrictions imposed by orunder this Act or substantially similar restrictions in force undersome other law has already been paid in respect of the land to theclaimant or any predecessor in interest of the claim; or(c) for removal of any encroachment.122

An n e x u r e s(2) If any person has unauthorisedly undertaken any activity, then anyincrease in the value of land from such activity shall not be taken intoaccount in estimating the value of land.Application against award 20. (1) Any person aggrieved by the Award of the Flood Zoning Authorityunder sub section(2) of section 18 may by an application in writing,apply to the State Govt. or such other officer as the State Govt. mayauthorise in this behalf.(2) Any application under sub-section(1) shall be made in such form andin such manner as may be prescribed and shall be made within fortyfive days from the date of communication of the award.(3) The application under this section shall be disposed of in suchmanner as may be prescribed.Procedure & Powers ofauthorities in deciding21. (1) An application under section shall be deemed to be proceedingswithin the meaning of section 141 of the code of Civil Procedure,applications 1908 and in the trial thereof, the authorities empoweredto decide reference may exercise on the powers of civil court.(CentralAct 5 of 1908).(2) The scope of inquiry shall be restricted to the consideration of thematter referred to the State Govt. or such other officer as the StateGovt. may authorise in this behalf.Decision enforceable 22. The decision under section 21 shall be enforceable as a decree ofas decree of civil court civil courtPayment under award 23. On the determination of the compensation under sub-section (1) ofsection 18, or on the making of an award under sub-application is madeunder section 20 against such award after decision of the authority, thecompensation shall be paid by flood Zoning Authority and the provisionsof section 31 to 35(both inclusive) of the land Acquisition Act, 1894, shallapply to such payment (Central Act 1 of 1894).CHAPTER-VIIPOWER TO REMOVE OBSTRUCTIONS AFTER PROHIBITIONPower to remove obstructions 24. (1) The Flood Zoning Authority may, in accordance with the provisionsof this Act, within such time as may be specified by it direct anyowner or occupier of land to do any act or remove any unauthorisedobstruction within such time as may be specified by it and suchowner or occupier shall do such act or remove the obstruction.(2) If the owner or occupier fails to comply with the order of the Flood123

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sZoning Authority within time specified under sub-Section (1), theFlood Zoning Authority may cause the act to be performed or causethe obstruction to be removed.(3) All expenses incurred by the Flood Zoning Authority under thissection shall be recovered from such owner or occupier as arrears ofland revenue.CHAPTER VIIIMISCELLANEOUSPreventing Flood Zoning. 25. Any person who prevents the Flood Zoning Authority in dischargingAuthority from doing an act any act imposed on such Authority byor under this Act, shall be deemed to be offence to have committedan offence under section 186 of the Penal Code.(Central Act 45 of1860).Flood Zoning Authority 26. The Flood Zoning Authority and other officers and employees andother officers to be authorised under this Act shall be deemed to bepublic servants within public servants the meaning of section 21 ofthe Indian Penal Code (Central Act 45 of 1860).Protection of action taken27. (1) No suit, prosecution or other legal proceeding shall lie against ingood faith the State Govt. or any authority or person exercising anypower or performing any duty under this Act for anything which is ingood faith done or intended to be done in pursuance of this Act ororder made hereunder.(2) No suit or other legal proceeding shall lie against the State Govt. forany damage caused or likely to be caused for anything which is ingood faith done or intended to be done in pursuance of this Act orany rule or order made there under.Recovery of fine 28. All fines imposed under this Act shall be recovered in the mannerprovided in the Code of Criminal Procedure, 1898.(Central Act 5 of1890).Power of Court 29. A civil court shall have jurisdiction to settle, decide deal with anyquestion which is by or under this Act required to be settled., decidedor dealt with by the Flood Zoning Authority or such other officerauthorised by the State Govt. in this behalf.Power to make rules30 (1) The State Govt. may, by notification in the Official Gazette, makerules to carry out the purposes of this Act.124

An n e x u r e s(2) In particular and without prejudice to the generally of the foregoingprovisions, such rules may provide for.(a) The manner in which charts and records shall be maintained.(b) The form and manner in which application under section 20 shall bemade and the manner in which such application shall be disposed of;(c) Any other matter which has to be, or may be, prescribed.(3) Every rule made under this Act shall be laid, as soon as may be afterit is made, before each House of the State Legislature while it is insession for a total period of fourteen days which may be comprisedin one session or two or successive sessions and if before the expiryof the session immediately following the session or the successivesessions aforesaid both Houses agree that the rule should not bemade, the rule shall, thereafter, have effect only in such modified formor be of no effect, as the case may be, so, however, that any suchmodification or annulment shall be without prejudice to the validity ofanything previously done under that rule.125

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d sCore Group on Management of Floods1. Dr. Mohan Kanda, Member, NDMA - Chairman2. Secretary, Ministry of Water Resources.3. Chairman, Central Water Commission.4. Director, National Institute of Hydrology, Roorkee.305. Director, IIT, Chennai.6. Dr. U.C.Mohanti, Professor, IIT, Delhi.7. Dr. Nayan Sarma, Professor, IIT, Roorkee.8. Joint Secretary, Ministry of Home Affairs (dealing with Floods).9. Secretary/Commissioner (Disaster Management/Relief), government of Assam.10. Secretary/Commissioner (Disaster Management/Relief), government of Bihar11. Secretary/Commissioner (Disaster Management/Relief), government of Orissa12. Secretary/Commissioner (Disaster Management/Relief), government of West Bengal.13. Dr. Kamta Prasad, Chairman, Institute for Resource Managementand Economic Development, New Delhi.14. Dr.K.J.Ramesh, Scientist F, DOST15. Member (RM), CWC - Convener126

Ac k n o w lAn e d g n e m x u e r n e t sExtended Group on Management of Floods1. Dr. Mohan Kanda, Member, NDMA - Chairman2. Secretary, Ministry of Water Resources3. Chairman, Central Water Commission4. Chairman Brahmaputra Board, Guwahati5. Chairman, Ganga Flood Control Commission, Patna6. Executive Director, National Institute of Disaster Management, New Delhi7. Secretary/Commissioner (Disaster Management/Relief), Govt. of Assam8. Secretary/Commissioner (Disaster Management/Relief), Govt. of Bihar9. Secretary/Commissioner (Disaster Management/Relief), Govt. of Uttar Pradesh10. Secretary/Commissioner (Disaster Management/Relief), Govt. of West Bengal11. Secretary/Commissioner (Disaster Management/Relief), Govt. of Andhra Pradesh12. Secretary/Commissioner (Disaster Management/Relief), Govt. of Orissa13. Secretary/Commissioner (Disaster Management/Relief), Govt. of Haryana14. Secretary/Commissioner (Disaster Management/Relief), Govt. of Uttarakhand15. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Assam16. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Bihar17. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Uttar Pradesh18. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of West Bengal19. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Andhra Pradesh20. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Orissa21. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Haryana22. Secretary Water Resources/Pl. Secretary (Irrigation), Govt. of Uttarakhand23. Director General, India Meteorological Department, New Delhi24. Director General, Indian Council of Agricultural Research (ICAR), New Delhi25. Joint Secretary, Ministry of Home Affairs26. Dr. Kamta Prasad, Chairman, Institute for Resource Management and Economic Development,New Delhi27. Director, National Remote Sensing Agency, Hyderabad28. Director, National Institute of Hydrology, Roorkee127

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s29. Dr. S. Mohan Prof. and Head, Department of Civil Engineer IIT, Chennai30. Dr. U.C. Mohanty, Professor, IIT Delhi31. Dr. Nayan Sharma, Professor, IIT Roorkee32. Dr. K. J. Ramesh, Scientist F, Department of Science and Technology, Mehrauli Road, New Delhi-11001633. Prof. Kalyan Rudra, 213, Dum Dum Park, Flat No. 2/1, Kolkata34. Chief Engineer CWC, New Delhi35. S.K. Agrawal, Specialist (Floods), NDMA128

Ac k n o w lAn e d g n e m x u e r n e t sList of Persons Who Made Contributions to Preparation of Guidelineson Flood Management1 Mr. A. K. Sinha, Director, CWC2 Mr. A. K. Panday, Additional Chief Secretary (Development), Rajasthan3 Mr. A. Ramalingam, I.A.S., Joint Commissioner (I.R.), Revenue Administration, Disaster Managementand Mitigation Department, Chennai4 Mr. A. C. Mohanty, Secretary (DM), Maharashtra5 Mr. A. K. Choudhary, Chief Secretary, Bihar6 Mr. A. K. Ganju, Chief Engineer, CWC7 Mr. A. K. Gogoi, Additional Director General, ICAR8 Mr. A. K. Gupta, Dy. Director, CWC9 Mr. A. K. Jain, Additional Secretary, Irrigation and Command Area Development, Andhra Pradesh10 Mr. A. K. Sinha, Commissioner cum Secretary (Water Resource), Bihar11 Mr. A. P. Kandigal, Assistant Engineer, CWC, Mizoram12 Mr. Ajay Kumar, Executive Engineer, CWC, Mizoram13 Mr. Ajit Kumar Tripathy, Chief Secretary, Orissa14 Mr. Ambuj Sharma, I.A.S., Secretary, Revenue Department, Chennai15 Mr. Amit Kiran Deb, Chief Secretary, West Bengal16 Mr. Anand Prakash, Engineer in Chief, Irrigation Department, Uttar Pradesh17 Mr. Ajay Kumar, Dy. Director, CWC18 Ms. Anjali Bhawra, IAS, Secretary Revenue, Punjab19 Mr. Anup Shriwastava, Special Secretary, Revenue and Disaster Management Department,Chhattisgarh20 Mr. Arvindo, Secretary (Water Resource), Orissa21 Mr. Ashok Gupta, Deputy Commissioner Relief, Madhya Pradesh22 Mr. Ashok Kumar, IAS (P), Andaman & Nicobar23 Mr. Atanu Purkayastha, Secretary, Relief, West Bengal24 Mr. Aurobindo Behra, Principal Secretary (Water Resource), Assam25 Mr. B. Murali Kumar, Director (DM-1), MHA26 Mr. B. B. P Singh, Chief Engineer, Planning and Monitoring, Water Resources Department, Bihar27 Mr. B. N. Prusty, Assistant Engineer, Central Water Commission, NMSD-I, Raipur, Chhattisgarh129

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s28 Mr. B. P. Singh, former Chief Engineer (Floods), CWC29 Mr. B. R. Loe, Dy. Director General Meteorology, IMD30 Mr. Bhupati Prasad Pandey, Secretary (Relief and Rehabilitation), Maharashtra31 Mr. C.N. Seetharam, Secretary, DM, Karnataka32 Mr. C. Targay, Chief Secretary, Andaman and Nicobar Adminstration33 Mr. Chandrashekhar Mutha, Deputy Secretary, Disaster Management and CooperationDepartment34 Ms. Christine Wanglat, Deputy Director (DM), Arunachal Pradesh35 Dr. D. K. Shankaran, Chief Secretary, Maharashtra36 Mr. D. Pal, Joint Secretary, Disaster Management, West Bengal37 Mr. Deepak Trivedi, Relief Commissioner, Uttar Pradesh38 Mr. Dinesh Chandra Sharma, Chief Engineer, Irrigation, Uttarakhand39 Mr. Dominie Lalhmangaiha, Consultant (DRM), GOI-UNDP, Mizoram40 Mr. (Dr.) S. Mohan, Head, Department of Civil Engineering, IIT Chennai41 Mr. G. Behera, Group Director, Water Resources and Oceanography and Project Director, DecisionSupport Centre, DMSP, NRSA, Hyderabad42 Mr. G. Sudhakar Rao, Karnataka43 Mr. G. B. Patel, Chief Engineer, Gujarat44 Mr. G. D. Priyadarshini, Andhra Pradesh45 Mr. G. D. Singhal, Chief Engineer, Irrigation Department, Uttar Pradesh46 Mr. G. S. Purba, Chief Engineer, (FM), CWC47 Ms. Gauri Chattarjee, Secretary, MOWR48 Mr. Gorakh Thakur, Senior Joint Commissioner, MOWR49 Mr. H. N. Sharma, Irrigation Department, Uttar Pradesh.50 Mr. Islam, Chief Engineer (Water Resource), Assam.51 Mr. J. Hari Narayan, Chief Secretary, Andhra Pradesh52 Mr. J. Panda, Special. Relief Commissioner, Managing Director, Orissa State Disaster MitigationAuthority53 Mr. J. P. Agrawal, Additiional Secretary, Water Resources Department, Orissa54 Mr. K. Basu Kumar, Joint Secretary (Revenue) Andaman & Nicobar55 Mr. K. C. Das, Secretary (Water Resource), Assam.130

Ac k n o w lAn e d g n e m x u e r n e t s56 Mr. K. D. Sharma, Director, National Institute of Hydrology57 Mr. K. J. Ramesh, Advisor, Department of Science and Technology58 Mr. K. Kohli, IAS, Director (RR&DM), Arunachal Pradesh59 Mr. K. K. Hazarika, Secretary. Revenue, Assam60 Mr. K. M. Reddy, Andhra Pradesh, SDMS61 Mr. K. Radhakrishnan, Director, National Remote Sensing Agency62 Mr. K. S. Singh, Secretary (Revenue/Disaster Management) Andaman & Nicobar63 Mr. Kalyan Rudra, Kolkata64 Mr. Kamal Lochan Mishra, Deputy General Manager, OSDMA, Orissa65 Mr. Kamata Prasad, Institute for Resource Management and Economic Development66 Mr. Kewal Sharma, Dev. Commissioner, Arunachal Pradesh67 Mr. L. K. Tripathy, Chief Secretary,Tamil Nadu68 Ms. Latha Krishna Rao, Secretary Revenue and Disaster Management, Karnataka69 Mr. M. Dharamraj, Director, Tamil Nadu, Pondicherry and Andaman and Nicobar Islands GDC,Survey of India, Chennai70 Mr. M. Ramesh Kumar, Principal Secretary, Relief and Rehabilitation Department, Maharashtra71 Dr. M. Satya Kumar, Karnataka72 Mr. M. A. Abraham, Deputy Secretary, Revenue (K) Department, Kerala73 Mr. M. F. Farooqui, Special Commissioner, (Revenue and Disaster Management), Tamil Nadu74 Mr. M. K. Mishra, SIO, NIC, Chhattisgarh75 Mr. M. K. Shrivastava, Relief Commissioner and Secretary (DM), Bihar76 Mr. M. L. Sahu, Director, Revenue and DM Dept. Chhattisgarh77 Mr. M. P. Singh, Director, CWC78 Mr. M. S. Verma, Deputy Commissioner (Ganga), MOWR79 Mr. M. Viswanath, Deputy Chief Engineer, Irrigation Department, Andhra Pradesh80 Ms. Madhu Arora, Director (SU-I), Department of Telecommunications81 Mr. Malsawma Lawnthang, Under Secretary, Disaster Managment and Rehabilitation Department,Mizoram82 Dr. Mangala Rai, Director General, Indian Council of Agricultural Research (ICAR)83 Mr. Mani, Joint Relief Commissioner, Tamil Nadu84 Mr. Mohd. Haleem, Chief Engineer, Irrigation. Department, Haryana131

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s85 Mr. Mohinder Singh, Principal Secretary (Irrigation), Uttar Pradesh86 Mr. N. Ravishankar, Principal Secretary (Irrigation), Uttarakhand87 Mr. N. C. Sen, Joint Secretary, Revenue Department, Tripura88 Mr. N. J. Singh, Director (FMP), CWC89 Mr. N. K. Aswal, Relief Commissioner and Secretary, Revenue and Disaster Management Department,Chhattisgarh90 Mr. N. K. Chanchlani, Assistant Meteorologist, Meteorological centre Lalpur, Raipur, Chhattisgarh91 Mr. N. S. Napalchayal, Principal Secretary (DM), Uttarakhand92 Mr. N. Y. Apte, Director, IMD93 Mr. Narendra Kumar, Chief Engineer, Irrigation, Department, Uttar Pradesh94 Prof. Nayan Sharma, Professor, IIT, Roorkee95 Mr. Nikunja K.Sundaray, Special Relief Commissioner and Secretary (Disaster Management),Orissa96 Mr. O. P. Singh, Director, IMD97 Mr. O. P. Khanda, Chief Engineer, CWC,98 Mr. O. Ravi, Joint Secretary (DM-I), MHA99 Mr. P. Raman, Engineer-in –Chief (WRO) and Chief Engineer (General), Public Works Department,Chennai100 Dr. Pavan Kumar Singh, Senior Research Officer, NDMA101 Mr. P. C. Lalthlamuana, Director, Disaster Management and Rehabilitation, Mizoram102 Mr. P. C. Sarma, Chief Secretary, Assam103 Mr. P. G. Dhar Chakrabarty, Executive Director, National Insititute of Disaster Management104 Mr. P. K. Basu, Relief Commissioner, Bihar105 Mr. P. K. Datta, Under Secretary, Revenue Department, Tripura106 Mr. P. K. Jha, Resident Engineer, Water Resources Department, Bihar107 Mr. P. S. Roy, Dy.Director, NRSA108 Mr. P. S. Sudhakar Babu, Indian Red Cross Society109 Mr. Padmanav Behera, Assistant Financial Adviser, Special Relief, Orissa110 Ms. Promila Issar, Principal Secretary, (Disaster Management), Haryana111 Ms. Preeti Sudan, Principal. Secretary, (Revenue), Andhra Pradesh112 Mr. R. Jeyaseelan, former Chairman, CWC132

Ac k n o w lAn e d g n e m x u e r n e t s113 Mr. R. Thangamani, Executive Engineer, CWC, Hydrology Division, Chennai114 Mr. R. C. Bhatia, Director General, Indian Meteorological Department (IMD)115 Mr. R. D. Singh, Scientist F, NIH, Roorkee116 Mr. R. N. P. Singh, Member (RM), Central Water Commission117 Mr. R. N. Prashar, Principal Secretary, Irrigation Department and Financial Commissioner, Haryana118 Mr. R. N. Sarangi, Joint Advisor (Water Resources), Planning Commission119 Mr. R. V. Sharma, Deputy Director General of Metrology, Regional Metrological Centre, Chennai120 Mr. Rajesh Kishor, Commissioner of Relief, Gujarat121 Mr. Rakesh, Dy. Commissioner, Gurgaon, Haryana122 Mr. S. B. Sarmah, Secretary (Irrigation), Assam123 Prof. (Dr.) S.C Mohanty, Director & OSD, Relief and Rehabilitation Department, Maharashtra124 Mr. S. C. Das, Secretary, Water Resources Department, Assam125 Mr. S. D. Diwan, Assistant Executive Engineer, Central Water Commission, UMSD, Chhattisgarh126 Mr. S. K. Benarjee, Additional Director General, IMD127 Mr. S. K. Agrawal, former Member (RM), CWC and Specialist (Floods) NDMA128 Mr. S. K. Biswas, Chief Engineer, Irrigation and Waterways Department, West Bengal129 Mr. S. K. Choudhary, Commissioner (Brahmaputra and Barak), MOWR130 Mr. S. K. Das, Chairman, CWC131 Mr. S. M. Hazarika, AEE, Brahmaputra Board132 Mr. S. P. Tucker, Principal. Secretary.(Irrigation), Andhra Pradesh133 Mr. S. P. Dutt, Secretary (Irrigation), West Bengal134 Mr. S. P. Kakran, Commissioner (Ganga), MOWR135 Mr. S. P. Mandagire, Chief Engineer, Maharashtra136 Mr. S. R. Ramanan, Director, Area Cyclone Warning Centre, Regional Metrological Centre, Chennai137 Mr. Sanjay Kumar, Scientist C, NIH138 Mr. Satendra, Special. Secretary, DM, Bihar139 Mr. Satish Chandra, Secretary (Project), Andhra Pradesh140 Dr. Satya Kumar, IMD141 Mr. Satya Prakash, Principal Secretary, Home Department, Madhya Pradesh133

Nat i on a l Di s a s t e r Ma n a g e m e n t Gu id e l in e s - Ma n a g e m e n t o f Flo o d s142 Mr. Shambhunath, Chief Secretary, Uttar Pradesh143 Mr. Sitaram Gupta, OSD-I, Rajasthan144 Mr. Som Naidu, Additional District Magistrate, Andaman & Nicobar145 Mr. Sridhar Behera, EIC, Water Resources Department, Orissa146 Mr. Sudhir Mankad, Chief Secretary, Gujarat147 Mr. Sunder Ray, Managing Director, OSDMA, Orissa148 Ms. Sutirtha Bhattacharya, Secretary (Irrigation), Andhra Pradesh149 Ms. Surinder Kaur, Director, IMD150 Mr. T. Sreekanth, Sub Divisional Magistrate, Andaman& Nicobar151 Mr. T. G. Antony Balan, Chairman, Brahmaputra Board.152 Prof. (Dr.) U.C. Mohanty, IIT, Delhi153 Mr. Umesh Sinha, Secretary, Revenue, Relief Commissioner, Uttar Pradesh154 Mr. V. Bhanumurthy, NRSA155 Mr. V. D. Roy, Dy. Director, CWC156 Mr. V. Jaishankar, Secretary, Water Resources Department, Bihar157 Mr. V. K. Pipersenia, Pr. Secretary, (Revenue and Disaster Management), Assam158 Mr. V. K.Sharma, Principal Secretary (Revenue), Uttar Pradesh159 Mr. V. R. Sastri, Chairman, Ganga Flood Control Commission160 Mr. V. V. Ramana Sarma, SE, CWC, Karnataka161 Mr. Vishva Mohan Upadhyaya, Secretary, Revenue Department, Madhya Pradesh162 Prof. Vinay Sehgal, NIDM134

An n e x u r e sContact UsFor more information on these guidelines for Management of FloodsPlease Contact:Dr. Mohan Kanda, IAS (Retd.)Member,National Disaster Management Authority,Centaur Hotel, (Near IGI Airport)Tel: (011) 25655010Fax: (011) 25654813Email: kandamohan@yahoo.co.inWeb: www.ndma.gov.inShri S.K.Agrawal,Specialist (Floods)National Disaster Management Authority,Centaur Hotel, (Near IGI Airport)Tel: (011) 25655479Email: ska-ndma@rediffmail.com135