Disaster Management in India and Differently Abled

Dr. Sanjay Sharma

Introduction
Disaster is generally understood as an event causing loss of
life, destruction of infrastructure and creating social stress.
Disaster renders people disabled in large numbers. But
what about the person who are already disabled? Disaster
management is expected to recognise that differently able
cannot respond to disaster as quickly as other can.
Therefore, disaster preparedness, mitigation, response,
recovery, rehabilitation should be inclusive of needs of
differently abled. This paper deconstructs the various
dimensions of policy framework and institutional structure
of disaster management in India from the hitherto under
researched perspective of differently abled. It also suggests
potential reforms in this direction.
Defining Disaster
Disaster is generally considered as a phenomenon having a
catastrophic impact on human life. One finds an interesting
definition of disaster in the Disaster Management Act, 2005
of India. It says that "disaster means a catastrophe, mishap,
calamity or grave occurrence in any area, arising from
natural or manmade causes, or by accident or negligence
which results in substantial loss of life or human suffering
or damage to, and destruction of, property, or damage to, or
degradation of, the environment, and is of such a nature or
magnitude as to be beyond the coping capacity of the
community of the affected area."[ Gazette of India (2005):
Disaster Management Act, New Delhi: Government of India,
p.1.]On the other hand, the World Bank[ World Bank (1989):
Operational Directive OD 8.50 Emergency Assistance Work
System, Washington D.C.] has defined disaster as a natural
phenomenon of limited span, but causing severe
destruction to a country's economy.
Management of Disaster: Analysis of Framework

Management of Disaster: Analysis of Framework

Until recently, different forms and types of disasters were
treated generally in terms of research, development, and
the management of "shocks" in isolation. There was hardly
any coordinating agency and regulatory institution regime
to standardise policy and secure execution. In fact, in a way,
disaster management is a late entry in the governance of
natural crises and calamities. Therefore, it is crucially
important to simplify disaster management as concepts and
programmes of action. It stands for the integrated activities
undertaken both by the government and voluntary agencies
aiming to avoid disaster, and to provide immediate rescue
and relief to victims once disaster actually occurs. It is a
continuous process requiring multi-dimensional and multiinstitutional activities aiming to rehabilitate the affected
people and reconstruct the affected region. In other words,
disaster management includes anticipation, assessment,
and rehabilitation. In brief, disaster management is a multistage process of:
1.Mitigation, i.e. mitigating the causes responsible for
disaster. It is a stage in planning that either checks the
causes of disaster or reduces the effects.
2.Infra-structural preparedness, i.e. the stage of alert to
cope with the actual occurrence of disaster. This
involves administrative and economic preparedness, an
advance outlay of resources, which can reduce the loss
of sufferings, both human and infra structural.
3.Rehabilitation, Reconstruction and Resettlement, i.e.
saving
lives,
restoring
infrastructure
and
communications, and normalising life as soon as
possible.

Disaster Vulnerability of India

India is one of the most disaster prone countries. India's
large population, geo-climatic conditions are primarily
responsible
for
it.
Industrialisation
and
unplanned
urbanisation in India are primarily responsible for manmade
disasters. Besides, climate change is also increasing the
frequencies of natural calamities. Himalayan Tsunami of
Uttarakhand 2013, Flood in Jammu and Kashmir 2014, and
massive rain led flood in Chennai 2015 are believed to be
climate change induced natural calamities. According to an
estimate 59 per cent land in India is prone to earthquake,
12 per cent of land is vulnerable to flood and soil erosion,
76 per cent coastline is prone to cyclone and tsunami, 68
per cent cultivable area is prone to draught, around 78.29
million hectare of forest area is prone to forest fire. Besides,
India is also vulnerable to Chemical, Biological, Radiological
and Nuclear (CBRN) disasters (CAG Report: 2013).
[ Comptroller Auditor General (2013): Performance Audit of
Disaster Preparedness in India, New Delhi: Government of
India, p.3.]Under the backdrop of India's vulnerability to
disaster one cannot deny the fact that differently abled are
most vulnerable in the event of disaster. Therefore, needs of
differently abled require special attention in policy
formation and its execution.
High Powered Committee on Disaster Management
Disaster management is a late entry in India. Disaster does
not find any place in any of the three lists of the 7th
schedule of the Indian constitution. It was as late as 1999
that the Government of India for the first time constituted a
High-Powered Committee on Disaster Management: It was
perhaps the first official attempt to systematically approach
the issue of disaster management.
It undertook a comprehensive study on various aspects of
disaster management in India, such as nature and type of

disasters, vulnerability profile, new culture of disaster

management, organisational framework, and planning and
finance. It aptly described its objective as framing a new
culture of disaster management, characterised as: "(i) a
culture of preparedness (presence of a well-functioning
warning system and the preparedness of vulnerable
communities); (ii) a culture of quick response (to promote
an appropriate response to the crisis); (iii) a culture of
strategic thinking (the creation of a knowledge network);
and (iv) a culture of prevention (instilling a culture of
prevention
in
disaster
managers
and
all
communities)."[Government of India (2002): Report of the
High Power Committee on Disaster Management, New Delhi:
Ministry of Agriculture, p.4.] HPC, under the chapter Needs
of Special Group, covered disabled and aged in common
heading.
It writes "Disaster mitigation strategies aimed at reducing
the scale of destruction need to focus on the section of the
population that is vulnerable and at a greater risk of being
exposed to the adverse impact of disasters. Socio-economic,
cultural practices etc. have made them weak and have put
them in a disadvantaged position. Women, children, aged
and the disabled are termed as the dependent population
though facts are much different than what are projected
otherwise." It suggests that "When addressing the relief
requirements of the disaster victims, focus should be placed
on the special needs of the vulnerable population that is,
children, women, aged and the disabled. At the same time
equity of relief distribution amongst beneficiary groups
must be maintained (HPC: 2002)."
Disaster Management Act 2005
It is in this backdrop that Disaster Management Act 2005
has been enacted that aims at a vibrant management of
disaster. This act provides a broad framework for disaster
management to be followed by Union and States. The act
lays down the procedures for constitution of National and

State Disaster Management Authorities, establishment of

National and State Disaster Response Force and setting up
of National and State Disaster Response Funds and National
and
State
Disaster
Plans.
However,
despite
the
recommendations of High powered Committee there is no
provision or guidelines for differently abled in the Act.
The National Disaster Management Authority (NDMA)
Based on the recommendation of the High Powered
Committee and provisions of National Disaster Management
Act 2005 , the Union government constituted the National
Disaster Management Authority in 2005.
NDMA has prepared "Handbook for Training and Capacity
Building of Civil Defence and Sister Organisation" in 2012.
In this handbook it maintains that in Community Based
Disaster Management priority should be given to the most
vulnerable that includes differently abled. In one of the case
study on Jagannath Puri Stampede it also received the
suggestion that doctors/paramedics/volunteers should be
sensitized and trained to give physical and emotional
support to distressed people including differently abled.
National Policy on Disaster Management (NPDM) 2010
The NDMA adopted a "mission-mode approach" towards the
formation of the National Policy on Disaster. In line with the
above principles, one of its objectives of disaster
management says "Ensuring efficient response and relief
with a caring humane approach towards the vulnerable
sections of the society."[ Guidelines of National Policy on
Disaster
Management,
viewed
on
2
May,
2016,
ndma.gov.in/images/guidelines/national-dm-policy2009.pdf.]
The Policy recognises that differently abled are a vulnerable
section and exposed to higher risks in the event of disaster.
National Policy on Disaster Management ,in tune with the
recommendation of High Power Committee, also recognises
that in community based disaster preparedness the needs
of differently abled require special attention.

National Institute of Disaster Management (NIDM)

Disaster Management Act, in chapter 7, provides for the
constitution of the National Institute of Disaster
Management by the Central government. NIDM believes in
inclusive disaster risk reduction framework.. It has
organized following training programs for inclusive disaster
management
A five-day training programme on Persons with
Disabilities in Disasters for the government stakeholder
was conducted in July 2011.
NIDM had observed the Disaster Risk Reduction Day on
12th October 2011 and schools for children with
disabilities also participated in painting, poster and
slogan competition on the occasion.
Launched a 5-day training programme for teachers of
special schools
Developed a massive Disaster Risk Reduction (DRR)
awareness campaign framework for school children
with disabilities
Pursued the participation of schools with disabled
children in the DRR Day next year and similar such
activities.
Second Administrative Reform Commission
"Crisis Management: From Despair to Hope" is the third
report of Second Administrative Reforms Commission. Its
para 7.1.12 suggests that "Minimum standards of relief
should be developed to address the requirements of food,
health, water and sanitation shelter requirements. Focus
should be placed on the special needs of the vulnerable
population that is, children, women, the elderly and the
physically challenged (SARC: 2006)." Furthermore, under
chapter 10 on Gender Issues and Vulnerability of Weaker
Section, it recommends that rescue and relief operation of
disaster management should focus the most vulnerable
group including physically challenged.

Second ARC has also conducted several regional workshops.

Working groups, at regional workshops, have given many
valuable suggestions. Wheel Chairs and special toilets for
physically challenged at relief camps, provision of food
supply and pension for physically challenged and elderly
persons are some of the suggestions that have emerged
from these workshops..
Task Force on Disaster Management Act, 2005 In 2013
Ministry of Home Affairs (MHA) has constituted a "Task
Force to review the Disaster Management Act, 2005." In its
report the task force has mentioned the views received by
stakeholders during consultation. One of the views is that
Disaster Management Act does not mention vulnerable
group; therefore stakeholders suggested that "The Act
should specifically mention women, children, the disabled,
and the weaker sections, so that they receive special
attention during relief and rehabilitation in the context of
disasters." On the basis of this suggestion the task force
has recommended that the DM Act, 2005 should be
amended and besides other things "There should be a
specific mention of protection of the interests of women,
children, the disabled, and the weaker sections."
Conclusion
What emerges from the above discussion is that the
disaster management is principally a constitutional
obligation of the Union government. It has powers to lay
down framework legislation; accordingly, the state
government has to comply with it by taking the necessary
legal measures to manage disasters. Though the Union
government has the power to issue directions, its role is
mainly confined to laying down policy guidelines and
coordinating the activities of the state/local authorities in
the management of disasters. Powers are distributed
vertically. Therefore, inclusion of differently abled in the
central legislation will trickle down to the state laws and
institution. Task force to review the Disaster Management

Act also recognises the fact that at present there is no

provision related to differently abled in the Act and
therefore it requires amendment in which concerns of
differently able along with other vulnerable groups are
clearly
mentioned.
Besides,
Second
Administrative
Commission also suggests that relief and recovery work
should focus on vulnerable groups including differently
abled. The Commission also received the views that in relief
camps accessibilities of basic amenities like toilets and
mobility (absence of Wheel Chair) are not differently abled
friendly. Therefore, it can be suggested that inclusion of
differently abled should not only take place in paper rather
it is required to be followed in letter and spirit.