4. Disaster Management Notes 01

Elaborate Notes

Introduction to Disaster Management in the UPSC Syllabus

The inclusion of Disaster Management as a distinct topic in the General Studies Paper III syllabus from the year 2013 marked a significant shift in the focus of the Union Public Service Commission (UPSC). This change reflected the growing recognition, both nationally and globally, of the need for a proactive, holistic, and integrated approach to managing disasters. The paradigm shift from a post-disaster, relief-centric approach to a pre-disaster focus on preparedness, mitigation, and risk reduction became a central theme. The subject’s placement in GS Paper III, alongside topics like Economy, Science & Technology, and Internal Security, underscores its multi-disciplinary nature, requiring an understanding of geography, public administration, sociology, technology, and international relations.

Analysis of Previous Year Questions (PYQ) and Evolving Trends

An examination of past questions reveals the commission’s evolving focus and the key areas aspirants must master.

• Institutional Framework (2011): The initial focus was on the foundational legal and institutional structures. The question on the National Disaster Management Authority (NDMA) and its National Executive Committee (NEC) tested knowledge of the Disaster Management Act, 2005. The NDMA, chaired by the Prime Minister of India, is the apex body for disaster management, responsible for laying down policies, plans, and guidelines. The NEC, chaired by the Union Home Secretary, is mandated to assist the NDMA and is responsible for the implementation of these policies and plans.

• Core Concepts and Administrative Application (2013): The focus shifted to conceptual clarity and its administrative application. The question on vulnerability and risk assessment required a precise understanding of these terms.

  • Vulnerability: As defined by scholars like Piers Blaikie and Terry Cannon in their work “At Risk: Natural Hazards, People’s Vulnerability and Disasters” (1994), vulnerability refers to the characteristics and circumstances of a community, system, or asset that make it susceptible to the damaging effects of a hazard. It is a function of exposure and socio-economic resilience.
  • Risk: Risk is the probability of harmful consequences, or expected losses (deaths, injuries, property, livelihoods, etc.) resulting from interactions between hazards and vulnerable conditions. It is often expressed as: Risk = Hazard x Vulnerability x Exposure. An administrator must focus on micro-level vulnerability mapping, strengthening early warning systems, and building community resilience.

• Specific Disasters and Preparedness Mechanisms (2014, 2015, 2016, 2017, 2022, 2023): A recurring theme is the focus on specific disasters, often linking them to official guidelines, recent events, or geographical phenomena.

  • Drought (2014): The question linked drought, a slow-onset disaster, to the NDMA’s 2010 guidelines and the climatic phenomena of El Niño and La Niña. This highlighted the need to integrate scientific knowledge of climate patterns with administrative preparedness, such as promoting drought-resistant crops and water conservation techniques.
  • Earthquakes (2015): This question addressed the perceived increase in seismic activity and the “significant gaps” in India’s preparedness, demanding a critical evaluation of the implementation of building codes (e.g., National Building Code of India, 2016) and the effectiveness of awareness campaigns.
  • Urban Floods (2016): The question pointed towards an anthropogenic link, connecting high-intensity rainfall with unplanned urban growth, destruction of wetlands, and inadequate drainage systems. The answer required knowledge of mechanisms like the Sponge City Mission and the recommendations of the C.H. Hanumantha Rao report on urban planning.
  • Cloudbursts (2016, 2022): Often linked to specific events like the 2013 Uttarakhand floods, these questions test the understanding of the meteorological phenomenon (intense rainfall, >100 mm/hour, over a localized area) and mitigation measures prescribed by NDMA, such as installing Doppler Radars for better forecasting.
  • Tsunami (2017): Referencing the catastrophic 2004 Indian Ocean Tsunami, this question required knowledge of its geological cause (submarine earthquake leading to displacement of water) and India’s post-2004 response, notably the establishment of the Indian Tsunami Early Warning System (ITEWS) at INCOIS, Hyderabad in 2007.
  • Dam Failures (2023): This question focused on a technological or man-made disaster. Causes range from structural flaws and geological instability to poor maintenance and extreme weather events. Examples include the Machchhu dam failure in Morbi, Gujarat (1979) and the Tigra dam failure in Gwalior (1917). The Dam Safety Act, 2021, is a key legislative measure in this context.

• International Frameworks (2018): The question on the Sendai Framework for DRR (2015-2030) and its predecessor, the Hyogo Framework for Action (2005-2015), showed the importance of global disaster management discourse. The Sendai Framework marked a crucial shift by emphasizing the reduction of existing risk and prevention of new risk, moving beyond just managing disaster response. Its four priorities focus on understanding risk, strengthening governance, investing in DRR, and enhancing preparedness for effective response and “Build Back Better”.

• Technical Tools for Mitigation (2011): The question on hazard zonation mapping for landslides underscored the role of scientific tools in policy and planning. Such maps demarcate areas based on their susceptibility to landslides, guiding land-use planning, infrastructure development, and early warning systems. The Geological Survey of India (GSI) is the nodal agency for landslide studies in India.

Core Theoretical Concepts in Disaster Management

A precise understanding of the foundational vocabulary is critical. The United Nations Office for Disaster Risk Reduction (UNDRR) provides widely accepted definitions.

• Hazard: A process, phenomenon or human activity that may cause loss of life, injury or other health impacts, property damage, social and economic disruption or environmental degradation. A hazard is a dormant or potential threat.

  • Types of Hazards: The classification helps in understanding the causality and devising specific management strategies.
    • Natural Hazards: These originate from natural processes.
      1. Geophysical: Driven by geological or tectonic processes. Examples: Earthquakes (e.g., Bhuj, 2001), Volcanic Eruptions (e.g., Barren Island), Tsunamis (e.g., Indian Ocean, 2004), and Mass Movements (e.g., Landslides in the Himalayas).
      2. Hydrological: Driven by the occurrence, movement, and distribution of surface and subsurface water. Examples: Floods (e.g., Brahmaputra basin floods), Landslides (triggered by water saturation), and Wave Action (coastal erosion).
      3. Meteorological: Related to short-lived, small to meso-scale atmospheric processes. The temporal and spatial scales are key differentiators. Examples: Cloudbursts (e.g., Kedarnath, 2013), Cyclones (e.g., Super Cyclone in Odisha, 1999; Cyclone Fani, 2019), and Heatwaves.
      4. Climatological: Related to long-lived or large-scale atmospheric processes, representing variability in climate. Examples: Droughts (e.g., recurring in Vidarbha region), Forest Fires (often exacerbated by dry climatic conditions), and Glacial Lake Outburst Floods (GLOFs).
      5. Biological: Involving exposure to pathogenic microorganisms, toxins, or bioactive substances. Examples: Pandemics (e.g., COVID-19), Epidemics (e.g., Nipah virus outbreak in Kerala, 2018), and Locust Swarms.

• The topic will be continued in subsequent sections, delving into concepts of Vulnerability, Risk, and Disaster, completing the theoretical framework.

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Prelims Pointers

• Disaster Management was added to the UPSC Mains GS Paper III syllabus in 2013.
• National Disaster Management Authority (NDMA):
  • Apex statutory body for Disaster Management in India.
  • Established under the Disaster Management Act, 2005.
  • Headed by the Prime Minister of India.
• National Executive Committee (NEC):
  • Executive body to assist the NDMA.
  • Headed by the Union Home Secretary.
• Sendai Framework for Disaster Risk Reduction (SFDRR):
  • Adopted in 2015 and is for the period 2015-2030.
  • It is a successor to the Hyogo Framework for Action (2005-2015).
• Hyogo Framework for Action (HFA): Was operational from 2005 to 2015.
• Indian Tsunami Early Warning System (ITEWS): Located at Indian National Centre for Ocean Information Services (INCOIS), Hyderabad. Established in 2007.
• Geological Survey of India (GSI): Nodal agency for landslide studies and zonation mapping.
• Dam Safety Act, 2021: Provides for surveillance, inspection, operation, and maintenance of specified dams.
• Hazard Classification Examples:
  • Geophysical: Earthquake, Tsunami, Volcano.
  • Hydrological: Flood, Landslide.
  • Meteorological: Cloudburst, Cyclone, Heatwave.
  • Climatological: Drought, Forest Fire.
  • Biological: Pandemics, Epidemics.
• A Cloudburst is defined as unexpected precipitation exceeding 100 mm (or 10 cm) per hour over a geographical region of approximately 20 to 30 square kilometres.
• Major Dam Failures in India: Machchhu dam failure (Morbi, 1979), Tigra dam failure (Gwalior, 1917).

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Mains Insights

Evolution of UPSC’s Approach to Disaster Management

The pattern of questions reveals a clear evolution in UPSC’s perspective, mirroring the global shift in the disaster management paradigm.

1. From Institutional to Applied Knowledge: Early questions (2011) focused on the ‘what’—the structure of bodies like NDMA. Later questions (2013 onwards) shifted to the ‘how’—asking about the application of concepts like vulnerability assessment, the role of an administrator, and the implementation of mitigation strategies.
2. Inter-disciplinary Linkages: There is a strong and consistent emphasis on linking Disaster Management with Geography (causes of Tsunami, mechanism of Cloudbursts), Environment (Urban Floods, climate change linkage), and Governance (gaps in preparedness, role of administration). Aspirants must study these subjects in an integrated manner.
3. Emphasis on Pre-Disaster Phase: The terms ‘preparedness’, ‘mitigation’, and ‘risk reduction’ appear repeatedly. This reflects the core philosophy of the Disaster Management Act, 2005, and the Sendai Framework, which prioritize proactive measures over reactive, post-disaster relief.
4. Contemporary Relevance: Questions are often triggered by recent events (Uttarakhand floods, urban floods), forcing candidates to link static knowledge (NDMA guidelines) with dynamic, current affairs.

The Debate: Proactive Policy vs. Reactive Implementation

A key analytical perspective is the gap between India’s robust policy framework and its on-ground implementation.

• Cause-Effect Analysis: While India has a world-class legal framework (DM Act, 2005), an apex body (NDMA), dedicated funds (NDRF, SDRF), and detailed guidelines, questions on “significant gaps” (2015) point to implementation deficits.
• Challenges in Implementation: These gaps stem from multiple factors:
  • Financial Constraints: Inadequate allocation of funds for mitigation projects at the state and local levels.
  • Lack of Political Will: Disaster management is often not a primary political priority until a disaster strikes.
  • Poor Inter-Agency Coordination: Lack of synergy between various departments (e.g., Urban Development, Water Resources, Revenue) hampers integrated planning.
  • Low Community Awareness: Top-down approach often fails to involve communities, who are the first responders.

Changing Nature of Disasters: The Anthropocene Era

The question on Urban Floods highlights a crucial trend: the increasing role of human activity in creating and exacerbating disasters.

• Man-Made Component: Unplanned urbanization, destruction of natural water bodies (floodplains, wetlands), and climate change-induced high-intensity rainfall create a perfect storm for urban floods. This shifts the debate from merely managing ‘natural’ disasters to addressing the developmental and environmental roots of ‘unnatural’ disasters.
• Need for a New Approach: This necessitates a shift in administrative focus towards sustainable urban planning, strict enforcement of environmental regulations, and mainstreaming disaster risk reduction into all development projects, a key priority of the Sendai Framework.

From Hyogo to Sendai: Evolving Global Perspective

Understanding the difference between the Hyogo and Sendai frameworks provides insight into the evolution of global thought on disaster management.

• Hyogo Framework for Action (HFA): Focused primarily on reducing disaster losses. It emphasized building the resilience of nations and communities to disasters.
• Sendai Framework for DRR (SFDRR): Represents a more profound shift.
  • It focuses not just on managing disasters but on managing disaster risk.
  • It explicitly aims to prevent the creation of new risks and reduce existing ones.
  • It introduced the “Build Back Better” concept in recovery and reconstruction.
  • It expanded the scope to include small-scale, frequent disasters and man-made/technological hazards. This shift implies that disaster management is not a standalone activity but an intrinsic part of sustainable development.