12/15/2016

HowOdishaManagedthePhailinDisasterxaam

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HOW ODISHA MANAGED THE

PHAILIN DISASTER
October 27, 2013 xaam org
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(EPW)Adisaster,accordingtotheNationalPolicyonDisaster
Management(2009),isacatastrophe,mishap,calamityorgrave
occurrencefromnaturalormanmadecauses,whichisbeyondthe
copingcapacityoftheaffectedcommunity.Odishaisnostrangerto
naturaldisasterswithitslongcoastlineadjoiningtheBayofBengal
makingitvulnerabletocyclonicstormsandtheiraftermathofheavyrain
andfloods.Thestateexperiencedadisasterofgreatmagnitudewhena
supercyclonestruckiton29October1999.Theeyeofthesuper

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cyclonestrucktheporttownofParadeepinJagatsinghpurdistrict,and
itscostintermsofhumanliveswasalmost10,000.Themeteorological
departmenthadissuedawarningtothestateadministration,butitwas
nottakenseriouslybyeithertheofficialsconcernedorthepeople.This

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HowOdishaManagedthePhailinDisasterxaam

EMAIL

resultedinliveslostandlargescaledestruction,eveninthecapitalcity

Enter your

The1999supercycloneexposedweaknessesinthestates

ofBhubaneswar.

email address

preparednesstofacenaturaldisastersandalsoitsmeasuresto
mitigatetheireffects.Itcompelledboththestateandcentral

to subscribe to

governmentstorethinktheirpoliciesondisastermanagementandtake

this blog and

waseffectivelypressedintouseinweatherforecastingandother

receive

disastermanagementprogrammes.TheNationalDisaster

notications of

ManagementAuthority(OSDMA)werecreatedatthenationalandstate

new posts by

levels.DedicatedforcesintheformoftheNationalDisasterResponse

email.

werealsoformedtoprovidetrainedmanpowerforrescueandrelief

stepstopreventsuchtragediesinthefuture.Informationtechnology

ManagementAuthority(NDMA)andtheOdishaStateDisaster

Force(NDRF)andtheOdishaDisasterRapidActionForce(ODRAF)
operations.Inshort,thesupercycloneof1999wasaneyeopenerfor
naturaldisastermanagementinIndia.

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On7October2013,themeteorologicaldepartmentwarnedthata

other

severecyclonicstorm,Phailin,wouldhitOdishaon12October.Itsaid
PhailinseffectswouldbefeltfromKalingapatnaminAndhraPradeshto

subscribers

ParadeepinOdisha,andthatitwouldprobablyfirststriketheportof
GopalpurinGanjamdistrictatabout5pmon12October.Thewind

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speedcouldtouch200kmperhour(kmph),andPhailinwouldbring
heavyrainstotheinteriordistricts.On10October,thepredictionofa
severecyclonewasconvertedtoaveryseverecyclonicstormwith
windspeedsupto220kmph.Cyclonicstormsarecategorisedas
severewhenthewindspeedisinthe90kmphto199kmphrangevery

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severewhenitisinthe200kmphto220kmphrangeandassuper
cycloneswhenitexceeds220kmph.Atthesametime,theUSNavys
JointTyphoonWarningCentrepredictedPhailinwouldhavewind
speedsupto315kmph.
Themeteorologicaldepartmentsforecastthatsevencoastaldistricts
Ganjam,Gajapati,Jagatsinghpur,Khurda,Puri,Nayagarhand

75%

80%

Kendraparawouldbeaffectedwasachillingreminderofthesuper
cycloneof1999.Tomakemattersworse,Phailinwascomingduringthe
festiveperiodofDussehera,whenallgovernmentofficeswouldbe
closedfrom11to14October.
PreparingforDisaster
ThestateadministrationwastednotimeincancellingtheDussehera
holidays,citingtheimpendingthreatofPhailin.ChiefMinisterNaveen
Patnaikwrotetothedefenceministeraskingforthedeploymentof
defencepersonneltocarryoutrescueandreliefoperations.TheNDRF
wasalsorequestedtosendateamtothestatetodealwiththefalloutof
Phailin.TheODRAFwaspressedintoactioninthedistricts,and
medical,civilsupply,andpowerpersonnelwereputonalert.
DisasterreliefoperationsinOdishaaresupervisedbythespecialrelief
commissioner(SRC)tothestategovernment.TheSRCmade
arrangementsforreliefmaterialsandprocureddryfoodsandother
essentialcommoditiesfromthemarket.Itwasinitiallydecidedtoairdrop
reliefpackets,eachcontainingstarchedricewithgur,waterpouches,
candles,salt,andamatchbox,intheaffectedareas.Thestate
administrationsecured700quintalsofstarchedriceandplacedan

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HowOdishaManagedthePhailinDisasterxaam

orderfor1,700quintalsfromneighbouringChhattisgarh.TheSRC

What...

directedallthesevendistrictcollectorstoevacuatepeoplelivinginlow
areastosafeplacessuchasschoolsandcollegesorcycloneshelters.
Thecyclonesheltershadbeenbuiltafterthesupercycloneinplaces
pronetocyclonicstorms.Theevacuationwasplannedtotakeplaceon
themorningof12October.Repeatedannouncementsweremadeon
radioandtelevisionaboutthecycloneandinstructionsthepeoplehad
tofollowfortheirownsafety.
Thestateadministrationsmainobjectivewastopreventhuman
casualtiesinthewakeofPhailin.Itadoptedazerolosstolife
approachandallmeasurestomeetPhailinwerethoroughlyplanned.
Theyweremonitoredbythechiefministerhimself,whoheldmany
meetingswithvariousstatelevelanddistrictlevelofficials.Itwasduring
thelastphaseofpreparationsthatLSRathore,thedirectorgeneralof
theIndianMeteorologicalDepartment(IMD),informedthestate
administrationthatPhailinhadbeenconvertedintoaverysevere
cyclonicstorm.Theevacuationplanwasthenchangedinsteadof
movingpeopleonthemorningof12October,itwasdecidedtodoso

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thedaybefore.Thisdecisionwastopreventrainfromhamperingthe
evacuationprocess.Messagestothiseffectwereimmediately
transmittedtothedistrictcollectorsandamassiveexercisehadtobe
undertakeninaveryshorttime.Butthedistrictofficialsweregearedup
tomeetthechallengeandsuccessfullyaccomplishedit.AstheSRC
stated,9,83,553peoplewereevacuatedtosaferplacesbythemorning

December 2016

of12October.Ofthis,1,80,000peoplewereevacuatedinGanjam
districtalone,andmorethan1,00,000peopleeachinJagatsinghpur

MT WT F S S

1 2 3 4

5 6 7 8 9

andPuridistricts.
Insteadofdistributingdryfoodtotheevacuatedpeople,itwasdecided
togivethemcookedfoodattheshelters.Districtofficialsweredirected

1 1

toprovidecookedriceanddalma(pulseswithvegetables)sothatthe

0 1

dryfoodcouldbekeptinreserveorusedforairdropsininaccessibleor
floodaffectedareas.Providingcookedfoodtosuchalargenumberof

1 1 1 1 1 1 1

peoplewasadifficultproposition,especiallywithacycloneandheavy

2 3 4 5 6 7 8

rainintheoffing.However,thedistrictadministrationsmanagedtopullit

1 2 2 2 2 2 2

adaypossiblysavedthousandsoflives.

9 0 1 2 3 4 5

PhailinArrives

2 2 2 2 3 3

TheveryseverecyclonicstormhaditslandfallatGopalpurportat

6 7 8 9 0 1

off.And,aslatereventsproved,advancingtheevacuationofpeopleby

about9pmon12October.Windswithaspeedof200kmphsweptthe
porttowninGanjamdistrictandnearbyplaces.ThecityofBerhampur,

Nov

theheadquartersofGanjamdistrict,andadjoiningplaceswereworst
hit.TheseacameinverycloseinGopalpur,destroyingtheboatsof
fishermen,whilethewindblewtheirhutsaway.Hugetreeswere
uprooted,electricandtelephonepolesflattened,housesruined,mobile
towerscrushed,andpowerstationsdestroyed.Roadcommunications

RECENT

weredisruptedwithtreesfallingacrossthem.Thedestructionwasnear

POSTS

signsofdevastation.TheotherbadlyaffecteddistrictswereNayagarh,

totalinGanjamdistrict,andpartsofPuridistrictalsoboreextensive
JagatsinghpurandKhurda.Intotal,Phailinsmightwasexperiencedby
13districtsinthestate.

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HowOdishaManagedthePhailinDisasterxaam

Analysis
GS Mains 2016
Chanakya IAS
Cyclone
Vardah
Essay

AfterPhailincrossedthecoastandwindspeedsubsided,therewas
heavyincessantrainfallintheinteriordistricts.Flashfloodsoccurredin
thenortherndistrictsofBalasore,Bhadrak,MayurbhanjandJajpur.The
Jalaka,Budhabalanga,Rushikulaya,Brahmani,Baitaraniand
Subarnarekhariversoverflowed,creatingasupplementarydisasterthat
neededurgentattention.Theadministrationsofthesefourdistricts
evacuated1,12,241peoplefromvillagesinfloodhitareastosafer
places.Intheworstaffecteddistrict,Balasore,7,50,000peoplein1,211
villagesborethebruntoftheflashfloods.Inall,thecycloneandfloods

Paper: If

affectedaround1.2crorepeoplein16,487villages,or2,015gram

development is

state.Phailinandthefloodsdamagedabout4,00,000housesand

not

1,182powertransformersin17districts.

engendered, it

LossofEnergyInfrastructure

is endangered,

TheenergysectorofthestatewaslaidlowbyPhailin.InGopalpur,the

What is
external
Security ( GS
Paper 1 and 3 )
GS 1 Paper

panchayatsand43urbanlocalbodies,spreadover148blocksinthe

Narendrapurgridstation,whichsuppliedpowertoGanjamandother
southerndistricts,wasdestroyed.AccordingtotheOdishaPower
TransmissionCorporation(OPTC),24powergridswereaffectedby
Phailin,ofwhich16werefunctionalbytheeveningof14October.Six
powergridswereexpectedtogoonstreaminaweekstime,whilethe
remainingweretotallywrecked.Thirtytwopowertowers,whichwere
designedtowithstandwindspeedsof250kmph,werefullydamaged
and54partiallydamaged.Itcanbethereforeassumedthatthewind

Solved 2016

speedwasmorethan250kmphinsomeplaces.Phailinalsodamaged

Mains

repair.Thirteen33kilovoltlinesweredamagedinBerhampurcity,

1,748feederlinesand4,80,000electricpoles,30,000ofthembeyond
alongsidenearly2,000electricitypoles.Fortyextrahightensiontowers
(220kVlines)collapsedinGanjamandGajapatidistricts.
Accordingtothestateenergysecretary,thecosttothepowersectorof
thedamagecausedbyPhailincouldbeaboutRs900crore.Ofthis,Rs

ARCHIVES
December
2016
November
2016
October
2016
September
2016
August
2016
July 2016
June 2016

466croreworthofdamageisinBerhampuralone.Thechiefsecretary
ofOdisha,on14October,toldthemediathatrestoringthesupplyof
powerandwaterwouldbetheprioritiesinthePhailinaffecteddistricts.
WhenaskedspecificallyaboutGanjamdistrict,hesaidthatthequestion
ofrestoringpowerimmediatelytoitdidnotarisebecausetherewasno
powerinfrastructureleftafterthecyclone.Thepowerinfrastructurehas
toberebuiltinGanjambeforenormalsupplycanberesumed.
LossofCrops
Therewasenormouslosstoagriculturebecauseofthetwinnatural
disasters.Cropsthatwouldhavebeenreadyforharvestinginamonths
timeweredestroyedin6,25,408hectaresofagriculturalland,according
topreliminaryreports.Thisincludedpaddyon5,43,587hectares,
pulseson47,742hectares,andhorticulturalcropson34,079hectares.
InGanjamdistrictalone,2,10,000hectaresofpaddyweredestroyed.
Thisisonlyapreliminaryestimateandthefigurescouldgoupaftera
properassessment.Compensationtotheaffectedfarmerswillbegiven
aftertheactuallossisassessedbytheadministration.Itisanticipated
thatthecroplosscouldcostthestategovernmentaboutRs2,300crore.
LossofTrees

May 2016
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HowOdishaManagedthePhailinDisasterxaam

April 2016

Therehasbeenamassivelossofgreencoverinthestate.Phailin

March

20,000inBhubaneswar.Naturalforestson120acresweredevastated

2016
February
2016
January
2016
December
2015
November
2015
October
2015
September
2015
August
2015
July 2015

uprootedabout1,00,000treesinGanjamandGajapatidistricts,and
byfloodsinBalasoreandMayurbhanjdistricts.Manytreesthatfellover
damagedpowerlinesinBhubaneswar.Thetreesinthecityweremostly
fastgrowingvarietiessuchaseucalyptus,gulmohar,andteak.Though
theygrowquickly,theyareneitherstrongnordeeprootedenoughto
withstandstrongwinds.Treessuchasbanyan,neem,andmangointhe
citywereverymuchintact,exceptforthewindbreakingofftheirdry
branches.
HumanCasualties
ThepreparationforPhailinwasinitiatedwiththeobjectiveofzero
casualties.Themassiveevacuationoperation,whichfinallyinvolved
moving10,95,794peopletosafeground,undoubtedlyreducedtheloss
oflives.Till16October,only28humancasualtieshadbeenreported
fromtheaffecteddistricts21duetoPhailinandsevenduetofloods.
TherewereninefatalitiesinGanjamdistrict,threeeachinBalasoreand
Puri,twoinNayagarh,andoneeachinKhurda,Jagatsinghpur,
BhadrakandBolangirdistricts.Thedeathsduetoflashfloodswere
threeinMayurbhanjdistrictandoneeachinAngul,Bhadrak,Keonjhar
andKandhamaldistricts.
ReliefOperations
Inareviewmeetingon13October,thechiefministersaidthat
rehabilitationwasnowamajorchallengeforthestateadministration.
HepromisedthatnormalcywouldsoonreturntothePhailinaffected

June 2015

areas,andannouncedimmediatefoodassistancetoallthoseinneed.

May 2015

severelyaffectedfamiliesreceived50kgofriceandRs500forpulses

Thefoodassistancehasbeenprovidedintwocategories.Very

April 2015

(for14days)andseverelyaffectedfamiliesreceived25kgofriceand

March

kgofriceforthelossoflivelihood.Compensationforcroplossesand

2015
February
2015
January
2015
December
2014
November
2014
October
2014
September
2014

Rs300forpulses(forsevendays).Besides,fishermenweregiven10
damagetohouseswillbedisbursedinaccordancewiththenormsafter
aproperassessmentiscarriedout.
IntheimmediateaftermathofPhailin,roadswereclearedoftrees,and
electricpolesandtowerstomaketransportandcommunication
possible.TheNDRF,ODRAF,police,civilsocietyorganisations,andthe
generalpublicputinacombinedefforttoclearhighways.Oncemostof
theroadswereclearedon13October,vehiclescouldmovearoundand
itwasdecidedtocontinuesupplyingcookedfoodtotheevacuees.The
dryfoodpacketswillbedistributedtothemwhentheybeginleavingthe
shelterstoreconstructtheirhomesandlivelihoods.
By14October,heavyrainshadcausedflashfloodsinfourdistrictsof
northOdisha.Manyofthefloodaffectedvillageswerecutofffrom
roads.InBalasoredistrict,around68,000peopleweretrappedintheir
homesorvillages,andinMayurbhanjdistrict,thenumberwasnearly
7,000.Twodefencehelicoptersweredispatchedtoairdropfood
packetstopeopleinthesedistricts,butthiswasdiscontinuedwhenit
becamepossibletodistributethembyroadandboatsthenextday.
Inareviewmeetingon14October,thechiefministerdirectedofficialsto
buygeneratorsetstosupplywatertothePhailinaffectedareas.He

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August
2014
July 2014
June 2014
May 2014

spokeaboutthesituationonthegroundtotheprimeministerthesame
day,andrequestedthattechnicalpersonnelfromtheNationalThermal
PowerCorporation(NTPC)andPowerGridCorporationofIndia(PGCI)
assistwithrestoringthepowersupply.Healsoaskedforanincreasein
thestatesquotaofkerosene.
On15October,theprimeministerannouncedanexgratiapaymentof
Rs2lakhtothenextofkinofeachofthedeceasedandRs50,000to

April 2014

thoseseriouslyinjuredinthecyclonefromthePrimeMinistersNational

March

ofthefourfloodhitdistricts.HeannouncedRs4lakhasexgratia

2014
February
2014
January
2014
December
2013
November
2013
October
2013
September
2013
August
2013

ReliefFund.Onthesameday,thechiefministermadeanaerialsurvey
assistancetofamilymembersofeachofthosekilledinthecycloneand
floods.Healsodirectedtheauthoritiesconcernedtoensurethatthe
victimsfamiliesreceivedtheamountwithin48hours.
SomeLapses
Severalpeopleallegedthathadtheygotneithercookednordryfoodin
thecycloneshelters.ThepresidentoftheOdishaPradeshCongress
Committeesaidnotallpeoplehadbeensuppliedcookedfoodas
claimedbytheadministration.Therewerealsoallegationsthatrelief
materialsweredivertedbysometomakeaprofitforthemselves.Relief
distributionisalwaysamajorchallengeinanydisasteranditoughtto
beproperlymonitored.Therewereallegationsofcorruptioninthe
procurementofreliefmaterialsduringthesupercycloneof1999.The
stateadministrationevenissueddirectionsthatanyonecaught
pocketingreliefmaterialwouldbebookedundertheNationalSecurities
Act.
InBhubaneswarandmanyotherplaces,therestorationofpowertooka
longertimethananticipated.Lackofpowerledtofailureofthewater
supplysystem,bothleadingtogreatdifficultiesforthepeople.The
administrationdidnothaveenoughequipmentandpartstodealwith
anemergencyandalsolackedexpertpersonneltofacilitate
expeditiouspowerrestoration.Thesituationwasnodifferentafterthe
supercycloneof1999,andexpertsfromthepowersectorinAndhra
Pradeshhadtohelprestorethepowersupply.
Thestateenergysecretaryinadiscussionontelevisionon16October

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suggestedformingadisasterresponsecellintheOPTCforrestoration
ofpowersupplyinsimilarsituationsanderectingelectrictowersthat
canwithstandwindspeedsofmorethan350kminthecycloneprone
coastalarea.Healsosaidundergroundpowercablesinsuchareas
wouldbeeffectivethoughtheinitialcostwouldbeveryhigh.
Conclusions
Despitesomedrawbacks,itisundeniablethattheOdishastate
administrationwasquiteeffectiveandefficientbothbeforeandafterthe

MATERIAL

cyclonicstorm.AccurateforecastingwashelpfulinmanagingPhailin,

FOR EXAM

hazards.Thesuccessfulevacuationofpeopletosafeplaceswasa

andadequateprecautionarymeasurescouldbetakentominimise
notablefeature,andmuchcredithastogototheofficialswhowere
engagedinthisoperation.Theteamspiritshownbyvariouslevelsof
officialssupervisedbytheSRChadacrucialroletoplayinthesuccess
ofmeetingthechallengesPhailinthrewup.Thepersonalinvolvement
ofthechiefministerintheentireepisodealsohastobeacknowledged.

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ThePressTrustofIndia(PTI)reportedon15OctoberthatMargareta

MaterialForExamWahlstrom,SpecialRepresentativeoftheUNSecretaryGeneralfor
104,466likes

DisasterRiskReduction,saidthatOdishashandlingoftheverysevere
cyclonewasalandmarksuccessstoryindisastermanagementanda
successfulcasestudyglobally.Wahlstromlaudedtheeffortsofthe

LikePage

administrativemachineryandtoldtheTimesofIndia,Bhubaneswar,
Weareveryimpressed.Wehaveplanstouseitasamodelforother
citiesandcountriestofollowaspartofourglobaleffortsondisasterrisk
reduction.
Inameetingon15OctoberwiththevicechairmanoftheNDMAthe
chiefministerproposedconstructingpuccahousesforpeopleliving

TOP POSTS &

within5kmoftheseashore,buildingmorecycloneandfloodshelters,

PAGES

forestsalongthecoastlineofthestate.Hewrotealettertotheprime

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strengtheningexistingones,andtakingstepstocreatemangrove
ministeron16OctoberrequestingRs1,000croreasassistancefrom
thecentre,andalsoappealedtoallsectionsofsocietytogenerously
contributetothestaterelieffund.
Theguidingprincipleindisastermanagementisthe4Rsrescue,
relief,rehabilitation,andreconstruction.Butthesuccessofthe
evacuationinOdishahasaddedanewRtothisformularelocation,at
leasttemporarily.Alotnowremainstobedoneinreconstructingand

Mains GS 2017

rebuildinginfrastructureandlivelihoods.Thepoorandthe

Test Series (1

disasters.Acontinuousandintegratedprocessofplanning,organising,

to 20 Tests)
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Hindi Medium
pdf material
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Nitin

underprivilegedarealmostalwaystheworstaffectedincalamitiesand
coordinating,andimplementingmeasuresisrequiredtobreakthe
viciouscycle.Thestateadministrationwillhavetodealwiththe
aftermathofPhailinandthefloodsinthecomingdaysbycontinuingto
distributerelief,compensatingfordamages,andaidingreconstruction
andrecovery.
Postscript
Reliefprocurementanddistributionarrangementisanotherimportant
aspectindisasterpreparedness.Theadministrationwaspreparedwith
dryfoodpacketspriortothelandfallofPhailin.Reliefdistributioninthe
affecteddistrictsdidnotposeaproblemasroadconnectivitywas
restoredwithintwodaysbutitcertainlyposedaproblemintheseverely
affecteddistrictsofBalasore,Bhadrak,Puri,Mayurbhanj,andKhurda,
duetowaterlogging.Somevillagesoftheseareaswerestill
submergedaweekafterPhailinhit.Thevillagersbeingpoorfarmers

Singhania Art

withverylittlesavingshadnostoredfoodintheirmudthatchedhouses

And Culture

accordingtothemediamanyofthemwereleftwithoutit.

Book
Huge
Material

whichweredamaged.Theyaretheoneswhoneedreliefthemostbut

Thestaterevenueminister,inaninterviewonOTVon18October,
claimedthatabout80%oftheaffectedpeoplereceivedreliefandthat
alltheaffectedwouldbecoveredby22October.Theministersaidthat
inGanjamdistrict,494reliefcentreshadbeenopenedanduntil17

Compilation for

October,91,000familieshadreceivedreliefin310centres.TheNew

UPSC Civil

unitcomplainedthatthestockedreliefmaterialsingodownswerenot

Service Exam[

IndianExpressof19OctoberreportedthatthepresidentofBJPsstate
reachingthefloodhitareas.Thespecialreliefcommissionersaidon19
Octoberthatoutofthetotal11.54lakhevacuatedonly14,400people
werelivinginsheltercentres.ThestategovernmenthadsanctionedRs

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HowOdishaManagedthePhailinDisasterxaam

Source Shashi
Thakur ]
Vision IAS

250croreforreliefandrestorationwork.Thestatechiefsecretary
submittedamemorandumofRs4,242.41croreforreconstruction,
rehabilitation,andgranttotheunionhomesecretaryonhisvisittothe
affectedareason20October.

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