195

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C.S. (H.A.)-382
PARLIAMENT OF INDIA
RAJYA SABHA
DEPARTMENT-RELATED PARLIAMENTARY STANDING COMMITTEE

ON HOME AFFAIRS
ONE HUNDRED NINETY FIFTH REPORT
Devastations caused by Natural Disaster, Hudhud

Cyclone in Andhra Pradesh and Odisha
(Presented to the Rajya Sabha on 22nd December, 2015)
(Laid on the Table of Lok Sabha on 22nd December, 2015)
Rajya Sabha Secretariat, New Delhi

December, 2015/Pausha, 1937 (Saka)
CONTENTS
PAGES
1. COMPOSITION OF THE COMMITTEE ....................................................................................... (i)-
(iv)
2. INTRODUCTION ...................................................................................................................... (v)-

(vi)
3. ACRONYMS............................................................................................................................ (vii)-
(ix)
4. REPORT................................................................................................................................. 1-46
CHAPTER I Background On Cyclone ‘Hudhud’ ......................................................... 1-4
CHAPTER II Experience of Odisha............................................................................... 5-21
CHAPTER III Impact on Andhra Pradesh ...................................................................... 22-37
CHAPTER IV Disaster Management : The Road Ahead ................................................. 38-46
5. RECOMMENDATIONS/OBSERVATIONS — AT A GLANCE.......................................................... 47-56
6. MINUTES ............................................................................................................................... 57-65

COMPOSITION OF THE COMMITTEE
(re-constituted w.e.f. 1st September, 2014)
1. Shri P. Bhattacharya — Chairman
RAJYA SABHA
2. Shri K. Rahman Khan

3. Shri Avinash Rai Khanna
4. Dr. V. Maitreyan
*5. Shri Neeraj Shekhar
**6. Shri Vijay Goel
7. Shri Derek O’Brien
8. Shri Baishnab Parida
9. Shri D. Raja
10. Shri Sitaram Yechury
LOK SABHA
11. Shri Prem Singh Chandumajra

12. Shri Adhir Ranjan Chowdhury
13. Shri S. Selvakumara Chinayan
14. Dr. (Smt.) Kakoli Ghosh Dastidar
15. Shri Ramen Deka
16. Shri Chandrakant Khaire
17. Shri Mallikarjun Kharge
18. Shrimati Kirron Kher
19. Shri Ram Mohan Naidu Kinjarapu
20. Shri Kaushal Kishore
21. Shri Ashwini Kumar 22. Shri Harish Meena
23. Shri Nagarajan P.
24. Shri Baijayant “Jay” Panda
25. Shri Dilip Patel
26. Shri Lalubhai Babubhai Patel
27. Shri Natubhai Gomanbhai Patel
* Shri Neeraj Shekhar, MP, Rajya Sabha nominated w.e.f. 29th January, 2015 to fill the vacancy caused by shifting of Shri Satish Chandra
Misra, MP, RS to Committee on Finance w.e.f. 9 January 2015.
**Shri Vijay Goel, MP, Rajya Sabha nominated w.e.f. 19th December, 2014 to fill the vacancy caused by the appointment of Shri Mukhtar
Abbas Naqvi as MOS w.e.f. 9 November 2014.
28. Shri Bheemrao B. Patil
29. Shri Bishnu Pada Ray
30. Dr. Satya Pal Singh
31. Shri B. Sreeramulu
(i)
(ii)
SECRETARIAT
Shri P.P.K. Ramacharyulu, Joint Secretary
Shri Vimal Kumar, Director
Shri Bhupendra Bhaskar, Assistant Director
Shri Anurag Ranjan, Assistant Director
COMPOSITION OF THE COMMITTEE
(re-constituted w.e.f. 1st September, 2015)
RAJYA SABHA
2. Shri Vijay Goel

5. Dr. V. Maitreyan
6. Shri Derek O’Brien
8. Shri D. Raja
9. Shri Neeraj Shekhar
LOK SABHA

15. Shri Ramen Deka
*16. Shri Prataprao Jadhav
20. Shri Ashwini Kumar
21. Shri Harish Meena
22. Shri P. Nagarajan
23. Shri Kinjarapu Ram Mohan Naidu
24. Shri Baijayant “Jay” Panda
26. Shri Lalubhai Babubhai Patel
28. Shri Bheemarao B. Patil
* Shri Prataprao Jadhav, MP, Lok Sabha nominated w.e.f. 9th September, 2015 to fill the vacancy caused by shifting of Shri Chandrakant
Khaire, MP, Lok Sabha to Committee on Finance w.e.f. 9th September, 2015.
29. Shri Bishnupada Ray
31. Shri B. Sreeramulu
(iii)
(iv)
SECRETARIAT
Shri P.P.K. Ramacharyulu, Joint Secretary
Shri Vimal Kumar, Director
Shrimati Arpana Mendiratta, Joint Director
Shri Bhupendra Bhaskar, Deputy Director
Shri Anurag Ranjan, Assistant Director
INTRODUCTION
I, the Chairman of the Department-related Parliamentary Standing Committee on Home Affairs,

having been authorized by the Committee to submit the Report on its behalf, do hereby present this One
Hundred Ninety-fifth Report on Devastations Caused by Natural Disasters, Hudhud Cyclone in Andhra
Pradesh and Odisha.
2. In the Committee’s meeting held on 11th November 2014, the Home Secretary briefed the
Committee about the development of the cyclone Hudhud in the North Andaman Sea on the morning of 6th
October, 2014 and a presentation was made before the Committee pertaining to Cyclone Hudhud i.e., on
the technical description of the cyclone by the Indian Meteorological Department; the efforts made by the
Central Government to help the States to deal with the cyclone; damage caused in Andhra Pradesh, and the
damage caused in Odisha. The Committee, then, identified the subject “Devastations caused by Natural
Disasters, Hudhud Cyclone in Andhra Pradesh and Odisha” for detailed examination and the same was
published vide Parliamentary Bulletin Part II dated 27th November 2014. The Committee, subsequently in
its meeting held on 4th December, 2014, decided to visit the cyclone affected areas in the States of Odisha
and Andhra Pradesh from 9th to 11th January, 2015 to have the first-hand information on the above
subject.
3. The Committee during its study tour to Odisha on 9th and 10th January 2015 visited Cyclone
affected area in and around Gopalpur and held discussion with stakeholders including affected people, civil
society organization involved in rescue and relief operations, Chief Secretary and other representatives of
the State Government of Odisha and local Government bodies including DMs of the affected Districts on
the rescue, relief operations and rehabilitation programme implemented by the State Government of
Odisha. The Committee, during its study tour to Vishakhapatnam on 10th and 11th January 2015 visited
various Cyclone affected place in and around Vishakhapatnam district and held discussion with affected
people and civil society organization involved in rescue and relief operations in the wake of the Hudhud
Cyclone and held discussion with Government of Andhra Pradesh and local Government bodies including
District Magistrates of the affected Districts.
4. The Committee while making its observations/recommendations has mainly relied upon the
following documents:—
(i) Background Note on the rescue, relief operation and rehabilitation schemes in the affected
States of Andhra Pradesh and Odisha in the aftermath of recent devastating Hudhud
Cyclone;
(ii) Annual Report (2014-15) of the Ministry of Home Affairs;
(iii) Outcome Budget (2015-16) of the Ministry of Home Affairs;
(iv) Report of Fourteenth Finance Commission (2015-20);
(v) Presentation made before the Committee in its meeting held on 11th November, 2014 by
Union Ministry of Home Affairs, Indian Meteorological Department, State Governments of
Odisha and Andhra Pradesh;
(vi) Written memoranda received from individuals, civil society and other stakeholders,
submission of State Governments of Odisha and Andhra Pradesh during the visit of the
Committee to Odisha and Andhra Pradesh; and
(v)
(vi)
(vii) Written clarifications furnished by the Ministry, on the points/issues raised by the
Members during the deliberations of the Committee.
5. For facility of reference and convenience, observations and recommendations of the Committee
have been printed in bold letters in the body of the Report. For the convenience, abbreviations used in the
report have been collected and given in the table under the name Acronyms.
6. The Committee, thereafter, considered the draft One Hundred Ninety Fifth Report and adopted the
same in its meeting held on 18th December, 2015.
P. BHATTACHARYA
NEW DELHI; Chairman
18 December, 2015 Department-related Parliamentary
Agrahayana, 27, 1938 (Saka) Standing Committee on Home Affairs

Rajya Sabha
ACRONYMS
AIR – All India Radio
APIIC – Andhra Pradesh Industrial Infrastructure Corporation
AMAL – Anakapalle Merchents Association of Lingamurthy
APDRP – Andhra Pradesh Disaster Recovery Project
BDO – Block Development Officer
BSNL – Bharat Sanchar Nigam Limited
BHEL – Bharat Heavy Electricals Limited
BMTPC – Building Materials and Technology Promotion Council
CSS – Centrally Sponsored Schemes
CRS – Catholic Relief Services
CWD – Cyclone Warning Division
CSR – Corporate Social Responsibility
CARE – Cooperative for Assistance and Relief Everywhere
CIAT – Counter Insurgency and anti terrorists
CBO – Community Based Organisation
CS – Cyclonic Storms
CPI – Communist Party of India

CRZ – Coastal Regulation Zone
DDMA – District Disaster Management Authority
DoT – Department of Telecommunication
DRDA – District Rural Development Agency
FFC – Fourteenth Finance Commission GOI –
Government of India
GIS – Geographic Information System
GOI – Government of India
GoAP – Government of Andhra Pradesh
GVMC – Greater Visakha Municipal Corporation

HLC – High Level Committee
HPCL – Hindustan Petroleum Corporation Limited
HPVT – Heavy Plates & Vessels Plant
IIT – Indian Institute of Technology
IMG – Inter-Ministerial Group
IAG – Inter Agency Group
IUCN – International Union for Conservation of Nature
IMD – Indian Meteorological Department
IMCT – Inter-Ministerial Central Team
LWE – Left Wing Extremism
MPLADS – Members of Parliament Local Area Development

Scheme
MA&UUD – Municipal Administration and Urban Development
MHA – Ministry of Home Affairs
NITI – National Institution for Transforming India
NDA – National Democratic Alliance
NGO – Non Governmental Organisation
NCMC – National Crisis Management Committee
NDRF – National Disaster Response Fund
(vii)
(viii)
NEC – National Executive Committee
NTPC – National Thermal Power Corporation
NIDM – National Institute of Disaster Management
NMDC – National Mineral Development Corporation
NDMA – National Disaster Management Authority
NCRMP – National Cyclone Risk Mitigation Program
OSDMA – Odisha State Disaster Management Authority
ODRP – Odisha Disaster Recovery Project
ODRAF – Odisha Disaster Rapid Action Force
OPDSC – Orissa Professional Development Service Consultants
ODMP – Other Disaster Management Projects

(ix)
PWD – Public Works Department PHCs –
Primary Health Centres
RTE – Right to Education
RINL – Rashtriya Ispat Nigam Ltd.
RKVY – Rashtriya Krishi Vikas Yojana
SEC – State Executive Committee
SOVA – South Orissa Voluntary Action
SDRF – State Disaster Response Fund
SCS – Severe Cyclonic Storm
SMS – Short Message Service
SMFs – Small and Marginal Farmers
SHGs – Self Help Groups
SRC – Special Relief Commissioner
UNDP – United Nations Development Program
UT – Union Territory
UGC – University Grants Commission
UNICEF – United Nations Children’s Fund
VSCS – Very Severe Cyclonic Storm
VSP – Visakhapatnam/Vizag Steel Plant
VSEC – Visakha Steel Employees Congress
CHAPTER I
BACKGROUND ON CYCLONE ‘HUDHUD’
1.1 INTRODUCTION
1.1.1 The Ministry of Home Affairs in its background note apprised the Committee that in the morning of
6th October 2014, a very severe Cyclonic Storm ‘Hudhud’ developed from a low pressure area which lay
over Tenasserim coast and adjoining north Andaman Sea. It concentrated into a depression in the morning
of 7th October over North Andaman Sea. Moving west-north-westwards, it intensified into a Cyclonic
Storm (CS) in the morning of 8 th October, 2014 and crossed North Andaman Islands close to Long Island
between 0830 and 0930 hours on the same day. It then, emerged into Southeast Bay of Bengal and
continued to move west-north-westwards. It intensified into a Severe Cyclonic Storm (SCS) in the morning
of 9th October, 2014 and further into a Very Severe Cyclonic Storm (VSCS) in the afternoon of 10 th
October, 2014. It continued to intensify while moving north-westwards and reached maximum intensity in
the early morning of 12th October, 2014 with a wind speed of 170 to 180 kmph gusting up to 195 kmph
1
over the west central Bay of Bengal off Andhra Pradesh coast. It crossed north Andhra Pradesh coast over
Visakhapatnam between 1200 and 1300 hours IST with the same wind speed. After landfall, it continued to
move northwestwards for some time and weakened gradually into SCS in the evening and further into a CS
in the same midnight. It then, weakened further into a Deep Depression in the early morning of 13 th
October, 2014 and weakened into a depression in the evening that day. Thereafter, the cyclone moved
nearly northward and weakened into a low pressure area over east Uttar Pradesh and neighborhood in the
evening of 14th October 2014.
1.1.2 The Ministry of Home Affairs further informed that due to the cyclone, there had not been much
damage except few tree falls, and no loss of life or injury has been reported from any part of Andaman &
Nicobar Islands.
1.2 EXTENT OF DAMAGE
1.2.1 The Committee was informed that the cyclone ‘Hudhud’ has mainly affected Andhra Pradesh and
Odisha and the extent of damage as enumerated by the State Governments is given below:
Andhra Pradesh Odisha
No. of the districts affected 4 15

No. of villages affected 320 9657
No. of people evacuated 1.35 lakh 2.55 lakh
No. of relief camps organized 223 2143
Human life loss 61 3
Animal loss 4777 animals + 35 lakh poultry 672 animals
No. of houses damaged About 40,000 About 44,000 (mostly
kutcha houses)
Agriculture area affected 3.3 lakh hectare 2.48 lakh hectare
1
1.2.2 The Committee was further informed that in addition, the infrastructure including road
communication, telecommunications, power and drinking water supply system were reportedly affected.
1.2.3 Regarding the action taken by the Government of India in the wake of the Cyclone ‘Hudhud’, the
Committee was informed that the first pre-cyclone watch bulletin was issued at 0900 hours on 7 th October,
2014 and as a whole, 55 warning bulletins were issued during 7-14 October, 2014. Five bulletins were
issued per day up to the intensity of deep depression and eight bulletins per day at an interval of 3 hours
during the cyclonic storm stage. The bulletins were sent through various channels including e-mail, fax,
SMS and personal briefs to the various stakeholders at national as well as State/ UT level.
1.2.4 The Committee was informed that several rounds of meetings of the National Crisis Management
Committee (NCMC) headed by the Cabinet Secretary were held regularly to review the Cyclone ‘Hudhud’
and flood situation in Andhra Pradesh, Odisha and the adjacent States. The Union Home Secretary and
other Senior Officers of the Ministry of Home Affairs were in constant touch with the concerned senior
officers of the State Governments of Andhra Pradesh and Odisha for extending the required support and
assistance. The MHA control room regularly advised the concerned stakeholders to take preventive
measures for minimising the impact of the cyclone. An amount of ` 115.425 crore, central share of State
Disaster Response Fund (SDRF) was released in advance, to the State of Andhra Pradesh on 17.10.2014. In
addition, an amount of ` 400 crore was released, on account basis, from the National Disaster Response
2
Fund (NDRF) on 31.10.2014 to Andhra Pradesh, for the management of relief necessitated by notified
natural disaster during 2014-15.The Committee was further informed that an amount of ` 178.495 crore as
central share of State Disaster Response Fund (SDRF) was released in advance to the State of Odisha on
17.10.2014 for the management of relief necessitated by notified natural disaster during 2014-15.
1.2.5 The Ministry of Home Affairs informed the Committee that on receipt of an interim memorandum
from the Government of Andhra Pradesh for central assistance in the wake of Cyclone storm ‘Hudhud’ and
floods during 2014, an Inter-Ministerial Central Team (IMCT) was constituted on 3 rd November 2014.
However, by that time, no memorandum was submitted by the State Government of Odisha to the Central
Government for additional central assistance in the matter.
1.2.6 The Committee was informed that as a preparedness measure, the Army moved 8 composite teams
from Secunderabad to Visakhapatnam consisting of 285 personnel. 4 teams each were deployed at
Achutapuram and Srikakulam. 2 Medical teams of the Army each were deployed at Srikakulam and
Visakhapatnam. 2 Columns were kept on a standby at Gopalpur. 4 ships of Navy were deployed at
Visakhapatnam along with 6 helicopters, 2 Dorniers, 2 Medical teams and 30 diving teams. The Indian Air
Force deployed 4 transport aircrafts and 14 helicopters at different locations. The Coast Guard also kept 17
ships and 1 aircraft ready at different places.
1.2.7 The National Disaster Response Force (NDRF) deployed 26 teams in Andhra Pradesh and 16 teams
in Odisha along with boats and other necessary equipment. NDRF assisted the State Governments to
evacuate more than 13,000 persons to safe places. MHA distributed 17 satellite phones to the State of
Andhra Pradesh and 14 satellite phones to Odisha State prior to the hitting of the cyclone for any
emergency telecommunications.
1.2.8 The Committee was also intimated that the Ministry of Health arranged 5,000 vials of antisnake
venom and 2,000 vials of anti-rabies for Odisha. The Ministry of Health ensured availability of medicines
with the concerned State Governments. The Department of Telecommunication (DoT) instructed all the
service providers to take steps for immediate maintenance and restoration of telecommunication facilities
in the affected areas. The steps included allowing intra-circle roaming arrangements among the service
providers and operationalising the call centre in Andhra Pradesh & Odisha. The DoT also directed the
service providers to provide the facility of sending mass SMSs to the people. Direction was given to
provide Wi-Fi hotspots/PCO in the relief camps to be organised by respective State Governments and to
share the infrastructure for immediate restoration of telecommunication facilities. However, extensive
disruption of mobile services had taken place in Visakhapatnam. The Ministry of Power alerted the
concerned agencies regarding safety of the grid and minimising damage to the infrastructure. The NTPC
and State Government Thermal Generating companies were advised to stock adequate quantity of coal. The
Power grid was asked to keep their Emergency Restoration Systems on standby and mobilize more teams
from the other States.
1.2.9 The State Government of Andhra Pradesh also took series of action in the wake of the cyclone
Hudhud. As a precautionary measure, 1,35,262 people were evacuated from the low lying areas and 223
relief camps were organized. 6000 fallen trees were cleared and restored the normalcy in transportation.
The restoration of power supply to cyclone hit areas by drafting about 2000 technical staff from the other
districts of the State was monitored and the activities of cell tower operators for restoration of
communication system was ensured. One SDRF Team was also involved in the rescue & relief operations.
233 Medical camps were organized. 6,85,000 lakh food and water packets were distributed in the relief
camps. 16,24,572 persons were provided with food and drinking water outside the relief camps. In order to
provide immediate relief to the affected families, the State Government sourced various essential
commodities like potatoes, salt, oil, etc, from the adjoining districts and also from other States in the
3
country for distribution to the affected people free of cost. It was also decided to give ex-gratia relief of `5
lakh to the kins of the deceased.
1.2.10 As regards the preventive measures adopted by the State Government of Odisha it was informed that
the concerned Departments and the Collectors had undertaken the required preparedness measures to
effectively handle the cyclone. Control rooms were opened in different departments and the district offices.
Besides, the satellite phones available with Odisha Police were prepositioned for the emergency
communication. Mock drills in all the 323 Multi-purpose Flood/ Cyclone Shelters in the State were
conducted on 10.10.2014 with the active participation of community. Various emergency equipments were
provided at the cyclone shelters including Generators, Water Pumps, Inflatable Tower Lights and
Mechanized Tree Cutters, etc. Ten units of Odisha Disaster Rapid Action Force (ODRAF) were deployed
in strategic places. Besides, the Fire Service units were kept ready for search, rescue and evacuation
operations. These forces/ teams, equipped with tree-cutting and road-clearing equipments, took part in
clearing the roads. Required food materials like rice and dry food like Chuda, Gur, etc., stocking of
adequate POL in the likely affected areas, supply of safe drinking water were arranged. Adequate stocks of
required medicines with arrangements for deployment of mobile medical teams were made by the Health &
Family Welfare Department.
1.2.11 The Union Home Secretary briefing the Committee in its sitting held on 11 th November, 2014 about
the development of the cyclone “Hudhud” and all possible logistic assistance provided to the affected
persons stated as under:-
“The cyclone Hudhud developed from a low pressure area in the North Andaman Sea on the
morning of 6th October, 2014. The Indian Meteorological Department issued its first precyclone
alert on 8th October, 2014. As soon as the IMD predicted it as a very severe cyclonic storm, the
National Crisis Management Committee started reviewing the preparedness measures of the
Central and the State Governments, from 9 th October onwards. Preparations made at the local
levels were also reviewed through video conferencing by the State Chief Secretaries, District
Collectors and other senior officials of the two State Governments. A large number of measures
were taken by the Ministries and Departments of the Central Government and the State
Governments. All possible logistical assistance was provided to the affected State Governments for
managing the cyclone and its aftermath. Due to the close coordination between the Central and the
State Governments, we are able to minimize the loss of human lives. After the cyclone hit the
Visakhapatnam coast on 12th October, 2014, it caused substantial damage to the infrastructure in
the district. The State Governments and the Central Government also worked in close coordination
in the postdisaster rescue, relief and restoration activities in order to put things back to normal as
quickly as possible. The hon. Prime Minister also visited Visakhapatnam after the cyclone.”
CHAPTER - II
EXPERIENCE OF ODISHA
2.1 BACKGROUND
2.1.1 The State of Odisha is vulnerable different type of calamities such as cyclone, flood, drought, to heat
wave, lightning, Tsunami, Land slide, etc. and recurring disasters has strained the State’s resources both
human and physical to a large extent. Majority of cyclones in Bay of Bengal passed through Odisha coast.
100 hydro-meteorological formations classified as cyclones have been recorded to have passed through
Odisha between 1891 and 2014 and in recent history, cyclones of 1971 and 1999 accounted for nearly
10,000 and 12,642 deaths/ missing respectively. The background note furnished by the State Government
of Odisha stipulated that the Super Cyclone of 1999 has provided the learning opportunity to disaster
rescue team to face the cyclone which hit Odisha.
2.1.2 The Committee visited the district of Ganjam, Odisha which faced super cyclone Phailin on 12 th
October, 2013 followed by the super cyclone “Hudhud” in 2014. The district in the aftermath of Phailin
had developed necessary basic infrastructure to combat the eventualities of storm/cyclone viz. 24X7 control
rooms, 2167 temporary shelter centers, 24 permanent multipurpose cyclone centers, were created. The
State Government and the District administration had got the experience of evacuating about six lakh
people to temporary cyclone centers and permanent cyclone centers. People were provided free kitchen and
drinking water facilities and other things.
2.1.3 The Committee was apprised how the various departments of the State Government and district
administrations worked in tandem with each other and suitable steps were taken by various departments.
Panchayati Raj Department and Home Department asked/directed BDOs, Tahasildars to remain prepared,
assess the requirement of free kitchen. Rural Department and PWD engaged the earth movers and other
machineries. The State Government engaged all their officers to repair and restore the field level roads and
each and every department prepared a micro-plan; as to how to react after the super cyclone and how the
road communication was to be restored, drinking water facilities and health system were to be put on rail.
All the departments remain prepared with their plan and programmes. The Committee was given to
understand as to how the misfortune in the State created an opportunity to imbibe the system of the kind of
activities to be undertaken successfully in the eventualities of the on-set of cyclone having wind speed of
around 205 to 210 Kms which generally range to the gusting speed of about 260 Kms.
2.1.4 During the visit of the Committee to the State, the representative of the State Government apprised
the Committee that on 7th October, 2014, Indian Meteorological Department (IMD) reported about the
formation of a depression over North Andaman Sea. On receiving the message, Government of Odisha in
tandem with the district administrations started closely monitoring the situation at regular intervals from 8 th
to 12th October 2014. Accordingly, all the B.D.Os/ Tehsildars were informed well in advance with the
direction to take all precautionary/preparatory measures to meet the cyclonic threat. Though the prediction
for the cyclone was that it would hit
5
Vishakhapatnam, but there was forecast for heavy rain which might cause flood in low lying areas and
definite preparedness was necessary for the purpose.
2.1.5 The Committee was further informed that at district level, functioning of Control room round the
clock at District, Sub-District and Block Levels was decided and evacuation & rescue strategy involving
5
preparation of rescue micro plan, assignment of duties to senior officers along with coordination with line
departments and senior officers was chalked out.
2.1.6 The Committee was also informed that for power supply, control rooms in targeted areas were made
functional and the Executive Engineers of the respective Divisions were made the Nodal Officer to monitor
the situation. Mobile teams were formed to mitigate any emergency situation in the important locations to
meet the power failure contingency. The Public Health Department was also ready with 24 hours control
room up to block level with contingency plan prepared with back up facilities, lifesaving medicine,
ambulances & medical health unit were kept ready and adequate manpower was deployed at the
appropriate places. The Forest Department also kept its teams ready for emergency services with all tree
cutting and related materials.
2.1.7 The representative of the State Government intimated the Committee that as Search & Rescue
Measures, nine teams of Orissa Disaster Rapid Action Force (ODRAF), six teams of National Disaster
Response Force (NDRF) were pre-positioned at strategic and vulnerable places. Twenty teams of fire
service personnel were kept alert to meet the pre & post cyclone challenge. The teams assisted the local
administration and police in evacuating people from low lying and unsafe buildings and moving them to
cyclone shelters and relief camps. People evacuated and placed in cyclone/flood shelters & other relief
camps were provided with adequate quantities of dry food and cooked food through free kitchen centres.
The Committee was intimated that 294 free kitchen/cyclone centres were also opened in Ganjam district
covering 26258 beneficiaries at Chatrapur, Ganjam, khallikote, Rangeilunda, Chikiti, Hinjilicut,
Kukudakhandi, Belaguntha and Berhampur.
2.1.8 The Committee was further informed that everyday Chief Minister took meetings with the senior
officials of the State Government about the steps taken and the actions to be taken. It was aimed to set mile
stone of zero casuality. The monitoring of evacuation was done by the Additional Chief Secretary and the
Managing Director, OSDMA. The cell phones were used till telephone lines were restored. Minute to
minute monitoring of evacuation process enabled shifting of about 10 lakh people in six coastal districts of
the State. The strategic plan was chalked out and the Government of India was kept informed of the entire
process. Indian Navy and Air Force were kept in readiness to assist Odisha at the time of need. As it was
aimed to set mile stone of zero casuality and as a result of the concerted efforts, only 29 lives were lost.
The casualties, though reported, but were not connected to cyclone. There was continuous government
public interface to clear the public doubt and rumour mongering and for that end, information was given to
the media several times. The Committee was also informed that during Hudhud Cyclone, Odisha
Government sent its forces to Andhra Pradesh as a token of gratitude to Government of Andhra Pradesh for
helping Odisha during 1999 Super Cyclone.
2.1.9 The Committee notes that Government of Odisha was able to save a large number of human
lives from Hudhud cyclone in 2014. The Committee observes that owing to one of the largest
evacuations in Indian history before the disaster struck, the storm did not cause major fatalities in
Odisha. The Committee puts on record its appreciation for the efforts undertaken by the State
Government for fighting the adversity. The Committee takes note of the efforts put in by the State
Government officials on all fronts of disaster preparedness viz. accurate early warning system
having emergency telecommunication facilities, continuous government interface with officials so
that maximum information reached the people in minimum possible time to avoid any chaos and
mismanagement, while facing the challenge.
6
2.1.10 The Committee desired to know the problems of hygiene and availability of toilets which the people
in such situation normally face and the details of relief measures extended from the first day onwards of the
cyclone and the role of NGOs, the lapses, loopholes, shortcomings noticed and steps taken in that regard.
Responding to the Committee’s query, the District Collector, Ganjam stated as under:-
“We have identified temporary cyclone centers those are basically in maximum the Pucca School
buildings constructed during last 3-4-5 years from SSA. At the same time there are provisions of
toilet also in 50% of the places. But, in other 50% temporary cyclone centers toilet facilities were
not there. Actually, that was the issue. But, for the drinking water facility we had given them
tankers but toilet issue was there in few places; that we are accepting it. But, that is not an issue.
For NGO issue I would like to say that we have constituted a co-ordination committee …..All the
relief which were coming through NGOs have been data entered and we had made that that this
NGO will distribute this thing in this Block and this Panchayat. So, we have avoided this kind of
repetition issue. ... Some time the NGOs were complaining that we were distributing relief in this
GP and for that matter we had instructed our BDOs and Tahsildars to ask them not to
distribute. ..... This was the mechanism at that time...... Actually, there were some issues in
evacuation. We were not able to convince them. When we were going and asking them that cyclone
is coming so you move but they were resisting that no, no when cyclone will come then only we will
go. These kinds of issues were there. That time some kinds of issues were there. We were not
getting transportation facilities to evacuate people, which was a very top task.“
2.1.11 Regarding transportation of animals, which was a very difficult job because evacuation of human
beings was to be taken first, the District Collector, Ganjam informed that in the coastal area from zero to
five kilometers distance, generally fishermen were living in most of the areas, therefore, in the coastal areas
animal population was not very high. However when Phailin was going to damage not only the coastal area
but also the areas which were around 100Kms distance from the coast line, the Government identified
some places for evacuation of the animals, but, at that time evacuation of people was very huge so
evacuation of live stocks had to be made less. However, during preparation of Hudhud, the issues relating
to pregnant women, sanitation, evacuation of animals and fodder were taken care of much better than the
previous year.
2.2 IMPACT AND DAMAGE
2.2.1 The Principal Secretary and Special Relief Commissioner of Government of Odisha submitted a
Memorandum on the very severe cyclonic storm “Hudhud” 2014, which spelled out the preparedness,
response, impact & damage and assistance sought for relief and reconstruction in the aftermath of the
“Hudhud”. The Committee was informed that under the impact of the cyclone, large part of the State was
affected and huge damage has occurred in various sectors due to heavy cyclonic wind, torrential rainfall
and consequent flooding. Further, large area was inundated in Kendrapada and Puri districts due to storm
surge. As per report received from Collectors, 33.44 lakh people in 9657 villages under 1276 GPs of 99
Blocks and 508 wards of 37 Urban Local Bodies in 15 Districts have been affected due to the disaster.
Three persons have lost their lives due to cyclone.
2.2.2 The district-wise details of administrative units and population affected are given below:-
Name of the Blocks GPs Villages ULB Wards Population Human
districts affected affected affected affected affected affected Casualty
Gajapati 07 129 1528 02 30 578000 0
7
Ganjam 22 475 3115 18 280 1200000 0
Jagatsinghpur 01 06 08 0 0 565 0
Kalahandi 11 84 622 0 0 106795 0
Kandhamal 07 50 142 0 0 12000 0
Kendrapara 01 01 05 0 0 3065 02
Keonjhar 01 01 05 0 0 1197 0
Khordha 01 01 02 01 03 2152 0
Koraput 14 174 1204 04 27 393290 0
Malkangiri 07 81 663 02 34 127537 0
Mayurbhanj 01 01 01 0 0 215 0
Nabarangpur 10 109 328 02 10 62350 0
Puri 04 07 07 01 03 6300 01
Rayagada 09 148 2009 03 52 850000 0
Dhenkanal 03 09 18 04 69 500 0
TOTAL 99 1276 9657 37 508 3343966 3

2.3 HOUSE DAMAGE
2.3.1 The representative of the State Government apprised the Committee that as many as 8 pucca houses
and 883 kutcha houses got fully damaged due to the cyclone and 9 pucca houses and 2,749 kutcha houses
have been severely damaged. Similarly, 343 pucca houses & 40,244 kutcha houses have been partially
damaged. These apart, 120 huts and 57 cowshed attached to houses have been damaged. The district
wise details in this regard are as below:
District Fully Damaged Severly Partially Hut Cattle Total

Damaged damaged shed
Pucca Pucca Kutcha Pucca Kutcha Pucca Kutcha
in in
plain hilly
area area
Gajapati 0 0 201 01 950 21 18146 0 0 19319

Ganjam 0 0 0 0 0 02 145 38 0 185
Jagatsinghpur 0 0 0 0 0 0 113 0 0 113
Kalahandi 03 0 01 03 37 0 298 0 0 342
8
Kandhamal 0 0 24 0 128 0 2060 0 0 2212

Keonjhar 0 0 0 0 04 0 262 0 0 266
Koraput 0 05 308 05 815 149 8799 76 01 10158
Malkangiri 0 0 214 0 349 171 2661 05 50 3450
Mayurbhanj 0 0 08 0 30 0 05 0 0 43
Nabarangpur 0 0 16 0 49 0 1127 01 06 1199
Rayagada 0 0 110 0 378 0 6574 0 0 7062
Dhenkanal 0 0 1 0 9 0 54 0 0 64
TOTAL 3 5 883 9 2749 343 40244 120 57 44413

2.4 CROP DAMAGE
2.4.1 The Members of the Committee were informed that about 2,47,557 hectares of agriculture area was
affected out of which an area of 40,484.50 hectare have sustained crop-loss of more than 50% due to
cyclonic storms. The details are given under:-
Name of affected Total Agricultural Area Total Agricultural Area
district affected (in Hectare) where crop loss is > 50% (in
hectare)
Gajapati 67865 30083.0
Ganjam 83645 286.0
Kalahandi 6101 82.0
Kandhmal 566 0.0
Koraput 41246 9666.0
Malkangiri 3130 325.0
Nabarangpur 24111 0.0
Rayagada 20893 42.5
TOTAL 247557 40484.5

2.5 LIVE STOCK AFFECTED
2.5.1 The Committee was informed that due to cyclone, 198 large animals and 472 small animals were lost
and 39350 more livestock and poultry were affected.
2.6 LOSS OF LIVELIHOOD
2.6.1 The Committee was apprised that due to cyclone, standing mulberry crop in 210.8 hectare and Eri
crop in 40.6 hectare of land belonging to 747 sericulture farmers have sustained loss to the extent of 50%
and above. About 718 traditional craftsmen of Koraput & Malkangiri districts have been affected with
damage of their equipments and raw/finished materials. 30 boats, 171 fishing nets, 145 fish ponds with an
area of 53.15 hectares and 101 nos. of fish seed farms involving an area of 40.5 hectares have been
damaged. Fish farms to the extent of 53.15 hectare have also been silted.
2.7 DAMAGE TO PUBLIC PROPERTIES

9
2.7.1 Massive damage had been caused to public properties like electrical installations, water supply works,
roads, bridges, culverts, embankments, drains, tube wells, lift Irrigation points, telecommunications
infrastructure, Government buildings, etc.
2.7.2 The Committee wanted to know about the assessment and the quantum of financial assistance
required for relief, rescue and long term reconstruction activities. In response thereto the representative of
the State Government of Odisha informed that they had sought assistance of ` 5832.50 crore from the
Central Government.
2.8 STATE DISASTER RESPONSE FUND (SDRF)
2.8.1 The Memorandum on the cyclone “Hudhud” mentioned that as per recommendations of the 13 th
Finance Commission, the corpus of State Disaster Response Fund of Odisha for the year 201415 is `475.98
crore. Out of the above, `106.663 crore was released in advance and spent during the year 2013-14 for
management of Phailin & subsequent floods of 2013. The balance corpus for the year 2014-15 is as
follows:
(` in crore)
Share Corpus of 2014-15 Advance released Balance corpus
and spent during
2013-14
Central 356.990 80.010 276.980
State 118.990 26.653 92.337
TOTAL 475.98 106.663 369.317

2.8.2 Besides above, an amount of `54.590 crore was available in the fund as opening balance (unspent
balance of the year 2013-14). So, the total amount which was available in the fund for expenditure during
the year 2014-15 is `423.907 crore.
2.8.3 The Committee was further informed that after necessary examination of the State Government’s
proposal, Government of India on 11th September, 2014 allowed the State Government to incur
expenditure to the tune of `399.83 crore from SDRF account for the year 2014-15 & 2015-16 towards
expenditure on Gratuitous Relief & Input Subsidy for crop loss on account of Phailin & subsequent flood-
2013. Accordingly, in addition to the relief necessitates of the year 2014-15, expenditure on Gratuitous
Relief & Input Subsidy for crop loss on account of Phailin & subsequent flood -2013 have been met out of
the corpus of the SDRF for the year 2014-15. However, the amount to the tune of ` 423.907 crore was fully
utilized on meeting the pending liabilities of cyclone “Phailin” and admissible expenditure for other
calamities occurred during the year 2014-15. Besides above, an amount of `10.79 crore has been spent for
immediate relief necessitates on account of very severe cyclonic storm Hudhud out of the State’s own
resources which needs to be recouped out of assistance from NDRF for the instant calamity.
2.8.4 Responding to the Committee’s query as to amount of fund sought by the State Government from the
Central Government, the State Government apprised the Committee that the State Government in its
memorandum, had sought financial assistance of ` 777.12 crore out of NDRF immediately to complete the
process of relief and restoration measures caused due to cyclone.
10
2.9 DISCUSSION WITH CIVIL SOCIETY ORGANIZATIONS INVOLVED IN RESCUE AND

RELIEF OPERATIONS
2.9.1 The committee during its visit to Odisha interacted with the representatives of the civil society
organizations and the NGOs involved in rescue and other relief Operations in cyclone affected areas and
got the opportunity to discuss the present situation as well as action taken by the NGOs involved in rescue
and other relief Operations. The Committee also came across the suggestions for the rehabilitation and
other arrangements initiated and measures taken for the rehabilitation of flood affected people. The
Committee took into account the impact of Hudhud cyclone in the State of Odisha and the role played by
the civil society organizations. According to some NGOs working in tribal areas, Non Timber Forest
Products (NTFPs) which provide a major source of economic support to forest dwellers, have been
seriously damaged, thus impacting heavily on their livelihood options, in addition to the infrastructure
damage in those areas. Therefore a special intervention initiative for restoration of NTFPs should be
undertaken. The NGOs were of the view that further assessment of the damage to crops, NTFPs and houses
should be carried out as soon as possible. Seed kits of legumes, vegetables, oilseeds etc. should be provided
and village grain banks for ragi & paddy should be replenished for revival of damaged and partially
damaged crops. Immediate provision of tarpaulin or polythene sheets for temporary replacement of
damaged roofs should be made. It was also suggested that financial support for repair or reconstruction of
community assets and individual houses should be undertaken through wage employment by revamping
MGNREGA in affected areas. It was also suggested that assistance should be given to eligible persons
under Indira Awas Yojana.
2.9.2 The Committee is pleased to note that civil Society advocacy has been critical in highlighting
concerns of those disaster affected groups who happen to be on the margins of society and the less
visible victims of any disaster. The Committee recommends that the suggestions concerning Non
Timber Forest Products, assessment of the damage to crops, NTFPs and houses, Seed kits of legumes,
vegetables, oilseeds etc., financial support for repair or reconstruction of community assets and
individual houses by revamping MGNREGA, as made by the NGOs, may be examined and
appropriate action may be taken.
2.9.3 The Head of UNDP, Odisha and Jharkhand apprised the Committee that since the Super Cyclone in
1999, the State, the UN Agencies, International NGOs, and community based organizations and people of
Odisha along the coast line have learnt as to how to live with recurring disaster with some loss of property
but without causality of lives again. The civil society had started working together to build the capacity of
the families, communities and the community based organizations. The civil society adequately responded
to save lives in cyclone Phailin.
2.9.4 Responding to the Chairman’s query regarding economic recovery, the representatives of Head of
UNDP added as under:-
“there are lot of agencies, NGOs and International NGOs who are implementing the response
programmes. So, there has been a complete change in the approach. Earlier we were only
responding to the disasters in the disaster risk management approach. So, now we are working in
the disaster risk reduction. We know in Odisha every year there would be either flood, cyclone or
drought or deadly combination of any of this. But at the same time what we are trying to do for
example, October is the most vulnerable month for Odisha in terms of cyclone. So we are thinking
if we can initiate smart agriculture so that by the beginning of October, if the yield is harvested, so
that the farmers would not be vulnerable. So, lot of our agencies, NGOs who are working in the
11
field every day and night trying to innovate new programmes and advocating with the state
agencies to come up with various schemes which takes into consideration the changes in the
climatic approach. Climate change is impacting very strongly on the poor and marginalized
communities.”
2.9.5 The Committee finds merit in the suggestion put forth by UNDP concerning introducing smart
agriculture so that by the beginning of October, which normally coincides with cyclones in coastal
areas every year, if the yield is harvested, farmers would not be vulnerable to loss of crops.
Concerted steps should be taken by the Government in this direction. The Committee recommends
that the Government should come out with strategic and innovative harvesting patterns/programmes
in such coastal areas and provide incentives to farmers to use the incentives in coordination with
State Agencies.
2.9.6 The representatives of Catholic Relief Services submitted that as part of economic resilience, civil
society are working with small and marginal farmers and also share croppers. As part of the disaster
resilience, civil society are trying to promote and link the research institutes with the farmers for promoting
the flood resilience varieties to the farmers in the remote areas. The NGOs were also trying to diversify the
livelihood base of the farmers other than agriculture viz. involving SHGs, in some entrepreneurship
activities or promoting goatery, poultry, etc.
2.9.7 The representative of ACTIONAID informed the Committee that all the NGOs came together and
formed a consortium and in a common approach, worked to deal with the Phailin situation. Plans for
fishing community and tribal agricultural communities were designed separately. It was brought to the
notice of the Committee that after the cyclone Hudhud, tribals especially in Malkangiri and Koraput
districts were facing a lot of problems in reviving their millets and traditional agricultural produce as the
seed support was not there.
2.9.8 The Committee desires that Government while implementing the reconstruction process must
consider the concern of tribals including revival package. Besides, the tribals may also be made part
of the smart agriculture and to the extent possible, they should be encouraged to diversify the
livelihood base. Other suggestions may also be addressed.
2.9.9 The Committee was further informed that in Odisha there has been small initiative by the NGOs to
raise mangroves, which is the most important natural barrier which help the communities to save their lives
and properties. Swaminathan Foundation and other local agencies are involved in it. It was however felt
that this initiative taken up by the NGOs is very small in terms of size and the Government should
intervene in terms of policy frame work for mangrove cultivation.
2.9.10 The Committee desires that State Governments should take proactive measures for raising
mangroves and other trees along the coastal lines. If required, involvement of civil societies and
NGOs may be considered to achieve the purpose in a fruitful manner.
2.10 SAMAJWADI PARTY, ODISHA
2.10.1 Representatives of the Samajwadi Party in Odisha in their submission informed that Hudhud
Cyclone had caused excessive damage to the State. The following steps for restoration work and livelihood
of the cyclone victims were suggested by the Party:
(i) Compensation of ` 30,000/- for house repair and ` 20,000/- for paddy loss and
` 25000/- as compensation for non-paddy crops for the farmers;
12
(ii) Pucca Houses to those who lost their houses be provided;
(iii) Interest free Bank Loans to the farmers and free crop insurance;
(iv) Subsidy on seeds, fertilizers, etc. for the farmers for the coming agri-season;
(v) An interim monthly pension to the farmers who have lost their standing crop till the next
harvesting season which will help in arresting migration and checking farmers suicide;
(vi) Massive plantation programme may be taken up along 480 km sea coast of Odisha as it is
very much prone to frequent cyclone and storm by involving the NSS, Youth Red Cross &
Women SHG Volunteers;
(vii) The cyclone shelters constructed after the Super Cyclone of 1999 should be maintained
properly for any emergency; and
(viii) A time - bound delivery of relief and rehabilitation programmes and formation of a State
level All Party Monitoring Committee to check Corruption in restoration work and livelihood
programmes as various complains were raised last year in restoration work of the Phailin
Cyclone affected districts.
2.10.2 The Committee notes all the suggestions of representation of Samajwadi Party of Odisha and
desires that the Government may examine the same diligently.
2.11 DISCUSSION WITH CHIEF SECRETARY, GOVERNMENT OF ODISHA
2.11.1 The Chief Secretary, Odisha, while narrating the introductory information on the cyclone,
informed the Committee that the objective of the State government was to prevent the loss of life
through appropriate preventive measures and to minimize loss of property by involving the
community as far as possible and then quickly launch the relief and rehabilitation measures. The
Special Relief Commissioner apprised the committee about the measures taken for dealing with
cyclone ‘Hudhud’. According to him devastations from cyclones are mainly threefold: wind,
torrential rain leads to flood and storm surge due to cyclone. Statistically all cyclones that originate
in Bay of Bengal, almost 70% of them pass through the State of Odisha. In the recent memory the
most devastating cyclones were in 1971 and in 1999 with 10,000 and 12,642 deaths respectively.
The State faced cyclone Phailin in 12 th October, 2013 followed by cyclone Hudhud again on 12 th
October, 2014. When the Hudhud with wind speed of 80-100 Kmph came to the State, it brought
more than 200 mm rainfall on a single day at many places. Gajapati district experienced landslide
after excessive rainfall. 15 districts in Coastal and the southern Odisha, out of 30 districts in the
State, and population of 33.4 lakh were affected due to rain.
2.11.2 The Committee was informed that the Odisha, after the super cyclone of 1999 have
achieved success in disaster management only because of the involvement of community through
massive training and community mobilization programme in 23000 villages under Disaster Risk
Management Programme coupled with improved forecasting and warning dissemination systems.
In view of the State Government, this was the strength of the entire management process and there
has been a paradigm shift in approach to disaster management that helped to overcome latest
disaster with minimal casualty and damage. Electronic and Print Media played a great role in
disseminating warning messages. According to the Relief Commissioner, the tackling of cyclone
Hudhud was more a challenging one than previous one because it passed through the tribal pockets
13
in Rayagada, Gajapati, Koraput and Malkanagiri districts. These districts are home to primitive
tribes like Bondas, Koyas, Porajas and Ddayis, Lanjia Saora and these districts never experienced
cyclone. To convince them it was really a challenge. Collector Malkangiri removed the Bonda
tribes and task them to the shelter. Evacuation of people from their huts in hill tops/slopes to safe
buildings was a horrendous task.
2.11.3 As regards restoration plan, the Government fixed 12-24 hours time limit for restoration
of road communication, restoration of water supply in 24-48 hours, restoration of electricity within
48 hours. It was a flawless execution by coordination with various agencies which displayed
solidarity among Government officials, cancelling all holidays across the State to fulfill
Government of Odisha motto i.e. mission zero casualty in any natural disaster. As many as
2,55,043 people were shifted in cyclone Hudhud and 9,83,000 almost a million people were
shifted during cyclone Phailin.
2.11.4 To ensure that there was no outbreak of epidemic, both the Animal Husbandry and Health
Department put in position all their advance teams in the fields. Adequate medicines, ORS
packets, Halogen tablets were prepositioned. All expected mothers were shifted to the Hospital
before the cyclone. On the day of cyclone around 387 babies were born in these affected areas in
the hospitals as the State Government did not take the risk of any delivery at home during this
time. As a result of all the arrangements, the State did not faced any hazard or health casualty or
epidemic outbreak both in the human and animal side in the cyclone management drive.
2.11.5 The representatives of the State Government also brought to the notice of the Committee
financial assistance sought for immediate restoration as per SDRF norms of `777.12 crore. The
corpus of State Disaster Response Fund was almost exhausted because of management of cyclone
Phailin. State Government of Odisha was going with a negative balance.
2.11.6 Pointing out the liabilities on account of Phailin, the State Government has submitted
memorandum to Government of India seeking assistance of `5832.50 crore. ` 750 crore has been
released from NDRF by Government of India on adhoc basis. Out of that, `289.62 crore is to be
adjusted in future. So, the net amount to be available to the State Government was ` 460.38 crore.
On Food assistance, State Government spent ` 377.43 crore on agriculture input subsidy, the State
spent ` 464.79 crore and on temporary shelter materials, State Government spent ` 60.04 crore. The
State Government have submitted to Ministry of Home Affairs for reimbursement of ` 907.26
crore, but the amount that was approved against that was food assistance ` 32.00 crore against
expenditure of ` 377.43 crore; Agricultural input subsidy Odisha got ` 248.47 crore against `464.79
crore. The State Government has already paid ` 64 crore to the farmers. The Committee was
apprised that for house, crop and public properties it was coming to Rs 4949.39 crore.
2.11.7 It was further informed that on request of State Government for reconsideration, `399.83
crore has been approved by Government of India out of `626.79 crore but advised State
Government to meet from SDRF from this year as well as from 2015-16 while the State
Government had no money as the negative balance was going on.
2.11.8 The Committee raised the issue concerning demand of central assistance particularly ` 399
crore, etc. under the Ministry of Home Affairs. Responding to the issues, the concerned joint
secretary of the Ministry stated as under:-
14
“Government of India, in the Ministry of Home Affairs is aware of the requirement of `399 crore,
which has been projected by the Government of Odisha. During the time when the high level
committee of National Disaster Respond Fund was headed by the then Hon’ble Agriculture
Minister Shri Sharad Pawar a particular decision under NDRF was given. After the Parliament
and State elections Odisha Government gave detailed account which justified for reconsideration
of that decision. Then this matter was examined in detail in the Home Ministry. It was seen that
once a high level committee has taken a final decision, it would not be appropriate for the present
high level committee again to review the whole matter. Because at present you again don’t have an
Inter Ministerial Central Team and even if Central Ministerial Team is appointed they cannot go
and make a field assessment what happened one year before. Because of this reason, Home
Minister had taken a decision in the file, by which we communicated to the State Government that
even though we are not able to give additional finance under the National Disaster Response
Fund, the `399 crore is a justified expenditure of the State Government therefore that can be
utilized from the State Disaster Response Fund. Because State Disaster Response Fund also has
75% contribution from Government of India. So on this point a return communication was given to
the State Government. After that we got a written objection from the Finance Ministry. Finance
Ministry was of the view that this `399 crore must be borne by the State Government from their
own resources. On this point, there is a difference of opinion between the Home Ministry and
Finance Ministry. To sort out this on the 14 th of this month, a high level committee is going to meet
but as per the rule for allocation of funds, Finance Ministry is the authority on financial matter.
Home Ministry is strongly in support of the demand made by Government of Odisha. The matter is
now being placed before the High Level Committee on 14 th January. This meeting will be under the
Chairmanship of Home Minister in which Finance Minister will also a member.”
2.11.9 The Chief Secretary, Odisha added that it would be very unfair even if it is decided to be
met from State Disaster Response Funds (SDRF) which don’t have any balance, because State
Government have already over spent in Phailin. Since expenditure in Phailin was much higher,
an amount of ` 399.83 crore admitted by Home Ministry should have been recommended from
NDRF not SDRF.
2.11.10 The Joint Secretary, Ministry of Home Affairs further clarifying on the issue stated as
under:-
“As per the Disaster Management Act 2005 there is a mechanism, which has been given by the 13 th
Finance Commission. It has two components. One is the S.D.R.F. In case of Odisha 75% comes
from Government of India, 25% is from the State Government and this fund is available with the
State government irrespective of whether Disaster takes place or not. This money is available
before hand. Now other than the State Disaster Response Fund, there is a mechanism for National
Disaster Response Fund, which can be activated based on a memorandum furnished by the State
Government on a case to case basis. After a memorandum is received from the State Government
an inter-ministerial Central Team gets appointed. After inter-ministerial central team gives the
report then, you have two layers. Out of the money as mentioned, there is a difference of opinion
between the Ministry of Finance and the Ministry of Home. Ministry of Finance does not think
that this is a legitimate expenditure to be incurred by Government of India and they are of the
firm view that this is to be handled by the State Government of Odisha because as per the scheme
passed by the Parliament, as per the N.D.R.F. whatever dispensation was done, when the high
15
level committee was headed by Mr. Sharad Pawar the then Union Minister, that is final. Not one
penny can be given beyond that. This is the view of Finance Ministry.”
2.11.11 The Committee in its meeting held on 29th June, 2015 raised the issue that the high level
committee should not only approve the assistance from NDRF but also recommend financial
assistance to other ministries for long and medium term works. Responding to that the Ministry of
Home Affairs in its communication dated 14 th July, 2015 stated that assistance from SDRF/ NDRF
is provided only for immediate relief as per norms to the victims of notified disasters and not for
compensation of loss as suffered/claimed. In case of long/medium term works, there is separate
budget in the respective Ministries/departments for undertaking long/medium term works
activities. Disaster Management is multi-disciplinary subject, which require coordinated and
holistic approach from all Ministries/Departments of Central and State level. The DM Act
envisage that every Ministry/department of Central and State Governments shall make provisions,
in its annual budget and take all necessary measures for prevention, mitigation, response and
capacity building for disaster management and allocate sufficient funds for carrying out the such
long/medium term works activities. However, Government of India has accepted the 14 th Finance
Commission recommendation to devolve 42% of the divisible pool to State during 2015-2016 to
2019-2020.
Earlier it was 32%. Accordingly, all the centrally Sponsored Schemes have now been subsumed into State
Funds. Accordingly, State Governments are required to undertake all necessary measures for prevention,
mitigation of long/medium term works activities and allocate sufficient funds for carrying out such
activities as per their State specific requirement and magnitude of ground situation.
2.11.12 The Committee in the same meeting held on 29 th June 2015 further raised the issue that
assistance for ex-gratia for death has been increased from ` 1.5 lakh per person to ` 4 lakh per
person and whether the same would be applicable in the case of Hudhud Cyclone in Odisha and
Andhra Pradesh. The Ministry of Home Affairs replied that revised norms are effective from 1 st
April, 2015 therefore, it cannot be applicable in Cyclone Hudhud in Odisha and Andhra Pradesh
respectively.
2.11.13 The Committee was given to understand that ` 178.495 crore, 2nd installment of central
share of State Disaster Response Fund (SDRF) for 2014-15 was released in advance, on
17.10.2014. ` 136.43 crore was approved by the HLC on 30.01.2015 for the instant disaster from
NDRF subject to 75% balance in SDRF. ` 305.58 crore was the available balance in SDRF. As the
75% available balance in SDRF was more than the amount approved by the HLC, net release from
NDRF in this case, was NIL. 1 st Installment of Central share of SDRF for 2015-16 amounting to
280.125 was crore released on 27.05.2015. ` 934.61 crore was approved by the HLC from NDRF
against the claimed assistance of ` 5832.50 crore.
2.11.14 In the Committee’s subsequent meeting held on 10 th August, 2015, the Ministry of Home
Affairs apprised the Committee about the request of Odisha Government to reconsider HLC
decision that HLC in its sitting held on 14 th January, 24th March and 29th May, 2015 considered the
request for additional release of ` 621.79 crore giving the details of expenditure statement,
however, HLC directed Ministries of Finance and Home Affairs to examine the issue in the light
of any precedence regarding review of HLC decisions. The Ministries of Home Affairs and
Finance examined the issue and noted that there is no precedence regarding review of HLC
decision. Further, number of States in the pasts requested for revision of HLC decision. Any
16
relaxation and review will set a new precedence. HLC in its meeting held on 29 th May, 2015
deferred the matter, therefore, the HCL is seized of the matter.
2.11.15 The Ministry of Home Affairs in its communication dated 19 th October 2015 informed the
Committee about the funds sanctioned and released on Cyclone Hudhud to Government of Odisha
for relief and restoration measures till date. In this regard, the Committee was apprised that HLC
approved the assistance of ` 136.43 crore from NDRF subject to adjustment of 75% of balance
available in the SDRF account of the State for the instant disaster. The Government of India has
released both the installments of Central Share of State Disaster Response Fund amounting to `
276.98 crore (98.485 crore+ 178.495 crore) for the year 2014-15, to the State on 12 th August, 2014
and 17th October, 2014 respectively for management of relief necessitated by natural disasters
during 2014-15. In the instant case, no additional amount was released from NDRF, as assistance
approved by HLC was less that the 75% of balance available in SDRF account.
2.11.16 As regards the details of utilization of funds sanctioned and released on Hudhud cyclone
sector-wise, by the State Government of Odisha till date, the MHA stated that the State
Government of Odisha has utilised the funds amounting to ` 2077.70 Lakh towards relief and
restoration works on account of Cyclone Hudhud which are given below:-
(` In Lakh)
Sector/Purpose Amount released Amount utilized
Ex-gratia for loss of life 1.50 1.50
House Building assistance 1235.00 1235.00
Gratuitous Relief 234.90 234.90
Cash in liew of clothing & utensils 30.40 30.40
Transport Charges 70.30 70.30
Di-silting of Agriculture land 0.60 0.60
Repair/restoration of electric lines 500.00 500.00
Search & rescue measures 5.00 5.00
TOTAL 2077.70 2077.70

2.11.17 The Committee notes that when Hudhud occured in the month of October, 2014 the
balance available in SDRF of the State of Odisha was running in negative due to back to
back cyclones in 2013 and 2014. The Committee also notes the submission of the Chief
Secretary that no fund was available in the related schemes/programme/other sources for
repair/restoration work. The Committee understands that whatever the Government of
Odisha had received is what is due to them as an advance. Andhra Pradesh has been assured
of `1000 crore, but for Odisha, no such announcement has been made.
2.11.18 The Committee also notes with anguish the submissions made by the representative
of the Home Ministry that the then high level committee headed by the then Agriculture
Minister took a ‘particular’ decision and when Odisha Government gave detailed account
for reconsideration of that decision, it was stated that once a High Level Committee had
17
taken a final decision, it would not be appropriate for the present High Level Committee
again to review the whole matter. The Committee does not buy this argument. The
Committee also notes that on the basis of the decision taken by the Home Minister, the
Odisha Government was informed that even though additional finance under the National
Disaster Response Fund is not possible, the ` 399 crore is a justified expenditure of the State
Government, therefore can be utilized from the State Disaster Response Fund. However the
Finance Ministry is of the view that this `399 crore must be borne by the State Government
from their own resources. Since for allocation of funds, Finance Ministry is the authority,
Home Ministry in spite of its strong support, is helpless. The Committee, in this connection,
feels that communication conveying approval of funds under SDRF to the State Government
had been sent without consulting Finance Ministry and in this situation decision taken by the
Home Minister is questioned.
2.11.19 The Committee also notes that the State Government of Odisha asked assistance
under NDRF as its SDRF is exhausted. According to the representative of the Home
Ministry, assistance under National Disaster Response Fund can be given on receipt of
memorandum from the State Government on a case to case basis followed by report of inter-
ministerial central team and meeting of HLC. Once HLC has decided an amount, not a
single penny can be given beyond that. The Committee, here also, does not find any merit in
the argument. In view of the Committee there should be no question of another
memorandum; what is required is reconsideration of previous memorandum which
contained all the details of the expenditures incurred by the State Government. The
Committee is perplexed to note the thinking/ approach of the Central Government in this
matter even after lapse of several months and resultant by the State Government of Odisha
is forced to suffer without any fault of its own.
2.11.20 The Committee strongly feels that Odisha Government should have been rewarded
rather than not harassed for its exemplary rescue and relief work, which has been
appreciated by one and all. The Committee therefore strongly recommends that the Central
Government should reconsider the demands of the Odisha Government in right perspective
so that the State does not feel de-motivated for its outstanding work accomplished during
Phailin and Hudhud Cyclones. For this purpose relaxation in norms as a special case can be
considered.
2.11.21 The Committee during its meetings held on 29th June and 10th August, 2015 took note
of the fact that due to infrastructure build up in the coastal areas with the cyclone shelters
and the pre-emptive work of Government of Odisha, there has been lesser casualties in
Odisha. The State Government and District Authorities got into the act of evacuating the
people on the receiving the warning from IMD. The Committee felt during its visit to the
State the disappointment amongst the affected persons that Prime Minister visited Andhra
Pradesh and announced a relief package of ` 1000 crore for the State but no announcement
was made by the Prime Minister in respect of Odisha. Keeping in view the feeling of the
people of Odisha, the Committee wishes to point out that the State which has done good job
in pre-emptive work, in evacuating people, in keeping food and medicines ahead of time at
the shelters and reducing casualties should not be penalised for that. The Committee believes
that the true impact of the damage must not be assessed merely by the number of casualties,
but by the land area and the infrastructure that has been damaged. The Committee,
therefore, recommends that the Central Government may re-examine the request of
18
Government of Odisha as contained in its memoranda and formulate its package

accordingly. In case reconsideration of the decision is so problematic as to create wrong
precedent by changing High Level Committee’s recommendation the Central Government
may consider for a separate allocation to the tune of ` 776 Crore to the State Government of
Odisha, as separate allocation was made to the State Government of Uttarakhand in the
aftermath of landslide and flood.
2.11.22 The Committee was also apprised of a very peculiar way of functioning in the matter
of inter-ministerial teams. The Committee has been given to understand that these teams
consists of very senior officers representing various concerned Ministries of the Union
Government including the Ministry of Finance. It has been noticed several times that
findings/recommendations of the inter-ministerial teams are for grant of assistance again
subject to sanction by the Ministry of Finance and in this process sometimes the States are
reimbursed lesser amount than approved by the Inter Ministerial team. In view of the
Committee, this complex procedure casts an aspersion on the diligence of senior officers of
the Government. This also leaves a sense of disappointment to the State Governments when
they get less reimbursement to their legitimate expenses. The Committee therefore earnestly
recommends that the Government should examine this grave issue sincerely.
2.11.23 The Committee understands that the State of Odisha having a long coastline has
acquired sufficient expertise in dealing with the natural calamities and disasters like
cyclones, heavy rains etc. The Committee strongly recommends that the reconstruction fund
so received by the State would devolve to mitigate the impact of Hudhud cyclone and the
related rehabilitation program particularly in the field of construction of permanent
shelters; fisheries and livelihood, agriculture and industry; animal husbandry; roads and
bridges etc. The Committee would appreciate if the overall assessments of progress made in
all these programs are implemented at the grass-root level. The Committee understands that
rehabilitation involves the contribution from the Central Government, the State
Government, NGOs and other external borrowing/assistance, therefore, better co-ordination
and collaboration between the Central Government, State Government, NGOs and other
private parties is essential for effective rehabilitation effort at the grass-root level.
2.11.24 The Committee observes that the area which was affected by Hudhud cyclone in
Odisha was mainly of the Tribals. In Koraput, Malkangiri and in some parts of Ganjam and
Gajapati there were no massive buildings. So the destruction of buildings was not there but
thousands of huts, small houses belonging to the Tribals, SCs and poorer sections of the
people were completely destroyed. The Committee, therefore, strongly recommends that
special funds should be given to build the houses of tribals and poorer sections. Efforts must
be made to ensure that affected people especially the poorer section should get the relief
restoration benefits in time as it has been generally observed that relief and restoration are
delayed. The Committee, therefore, further recommends that there should be a time limit
within which the relief benefits should be given to the poorer section and unnecessary delay
must be avoided at all cost.
2.12 ODISHA: A SUCCESS STORY
2.12.1 The Committee was informed that the Odisha State Disaster Management Authority
(OSDMA) was constituted as a first disaster management authority in 1999 immediately after the
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super cyclone for raising awareness, capacity building, policy planning, co-ordination, etc. The
network of OSDMA covers almost all facets of disaster management, disaster preparedness,
planning preparedness response and other activities with restoration and reconstruction. After the
super cyclone of 1999, six or seven issues were identified which inter-alia included cyclone
center, communication system, specialized response forces, policy planning initiatives, capacity
building, and community based disaster management and communication technology. A number
of cyclone centers were constructed. In 1999, there were only 23 cyclone centers constructed by
different Red Cross societies which saved 46,000 lives during 1999 super cyclone. The State got
experience from the super cyclone and constructed cyclone centers as designed by IIT, Khadagpur
which are very strong buildings to withstand the wind of 350 kms per hour. The State Government
even constructed 10,000 school buildings which are used as shelters during the cyclones. Cyclone
centers are provided with toilet facility. The cyclone centers are equipped with 24 types of
different equipments to prepare the community to face the disaster by themselves because they are
the first defenders before Government reaches to the affected people.
2.12.2 The State of Odisha had set up ten Odisha Disaster Rapid Action Units under the State
Disaster Response Force, out of the Odisha Special Armed Police and the Odisha Police with
hundred different equipments. ODRAF have different areas of operation such as water rescue,
collapse structure clearance rescue, live stock clearance, transportation and causality management,
etc. Odisha Rapid Action Units have a specialty in night time rescue management. ODRAF jawans
use hedonic equipments to cut the cables and the community members assist ODRAF jawans.
2.12.3 The State Government further stated that apart from Odisha Rapid Action Force, series of
organizations have been strengthened to cater to the need of the multi facet disaster management.
The State has fire stations, self-defence units, etc and has taken up the capacity building very
seriously and conduct different type of training programmes. Operational level training is provided
to the community members to operate sufficient equipments like infallible tower lights and
undertake boat rescue operations, first-aid training techniques. The State has conducted
community level training programmes for the people and 23,000 out of 50,000 villages have their
own disaster management plans. Besides, 10,000 college students have been trained in 2013 with
basic training and first-aid training. The State Government conducts mock drills on 9 th of June
every year along with other stake holders viz. East Coast Railways, National Disaster Response
Force, different Non-Government Organizations operating at the grass root level.
2.12.4 The Committee observes that various organizations like National Disaster
Management Authority, World Bank appreciated the efforts of Odisha Government that
while in the 1999 super cyclone the State was the victim but in 2013 and 2014, the State
successfully shifted its focus/attention from “mitigation” to “management”. The Committee
commends the Government of Odisha for their outstanding work, and desires that the other
disaster prone States should learn from Odisha experience in the matter of preparedness and
disaster management to meet any eventuality.
CHAPTER – III
IMPACT ON ANDHRA PRADESH
3.1 BACKGROUND
3.1.1 Andhra Pradesh is situated in tropical region on East Coast with 974 kms. of coast line and is exposed
to cyclones, storm surges, floods &drought. The total coastal area spread over 92,906 Sq. kms. in the nine 9
coastal districts is prone to cyclones.The State has five major river systems (Godavari, Krishna, Penna,
Vamsadhara, Nagavali). Floods occur in delta areas of these river basins while the drought is major threat
in Rayalaseema districts & Prakasam.
3.1.2 The Committee was informed that the State had suffered extensive damage in the past due to cyclonic
storms of different intensities over the years. Very severe cyclonic storms crossed the coastal Andhra
Pradesh since 1891. The cyclone ‘Laila’ hit the State from 17 th to 22nd May, 2010. ’Jal’ cyclone occurred in
the months of October-November,2010;‘Nilam’ cyclone hit the State between October - November, 2012
and ‘Phailin’ cyclone in the month of October, 2013; ‘Helen’ and ’Leher’ Cyclones in the month of
November, 2013; very severe cyclonic storm ‘Hudhud’(77 th Cyclone) crossed over Visakhapatnam coast on
12-10-2014. The cyclone resulted in an unprecedented loss to public and private properties in
Visakhapatnam, Srikakulam, Vizianagaram and East Godavari Districts. The wind speed was recorded as
high as 181.6 kmph as per IMD and
220 kmph by Naval Authorities during land fall of the severe cyclonic storm
3.2 PREPAREDNESS OF THE STATE GOVERNMENT
3.2.1 The Committee was informed that control rooms were opened by the Government at State Head
Quarters and District Head Quarters. Wide publicity was given from time to time about the intensity of
cyclone disseminated through Television/Radio/Print media regarding the progress of Cyclone. 15 Satellite
Phones were provided to the District Administration. All fishermen in the coastal districts were alerted
through the mobile phone. 40 senior AIS officers were posted to supervise rescue & relief operations in the
field. Senior officers were deputed as Special Officers to all affected Mandals to Monitor and assist the
Mandal administration. 24 Teams of NDRF, 1 SDRF Team, 4 Columns of Army personnel (4X110) and 30
teams of Navy (30X3) were deployed for rescue & relief operations. 17 ships, 2 Dornier, 4 transport
aircrafts and 20 helicopters were deployed for rescue & relief operations. Video Conference was held with
Union Cabinet Secretary and Chief Secretary and other Officials prior to and during the cyclone. The Chief
Secretary monitored the situation by conducting video conference with concerned Collectors twice daily
since IMD warning received and instructed all Departments to keep ready with all equipments.
3.2.2 The Committee was apprised that 2.23 Lakh people were evacuated from low lying areas under
precautionary measures and 310 relief camps were organized. 29.05 lakh food packets were distributed in
the relief camps.16,24,572 persons were provided with food and drinking water outside relief camps.7073
fallen trees were cleared to restore normalcy in transportation.
Restoration of normalcy in drinking water supply through tankers by requisitioning tankers and
22
personnel from neighboring Districts was ensured. Restoration of Power supply in cyclone hit areas was
monitored by placing about 2000 technical staff from other Districts of the State. Activities of cell tower
operators for restoration of communication system was also monitored. The State Government further
apprised that due to falling of trees/wall collapse/electrical pole collapse, 61 deaths were reported in 3
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districts. Ex-gratia of `5.00 lakh to the kin of the deceased has been paid. The Government provided food
materials (Rice, Oil, Dal, Salt, Sugar, Potatos, Onions, Chili Powder and Kerosene ) at Cost of `400 crore.
3.2.3 The Committee was informed that the Chief Minister rushed to the affected districts immediately after
taking stock of the situation from Hyderabad on 12 th itself and did aerial survey on 13 th morning and
camped in Visakhapatnam and monitored the rescue and relief operations through regular meetings with
the officers in Visakhapatnam, Vizianagaram and Srikakulam and gave necessary directions. Relentless
visits of the ChiefMinister to the worst affected areas of the cyclone and staying amongst the people in the
crisis boosted the confidence of the people. CM’s presence at the actual affected places of cyclone and
personally assessing the damage/loss, inspired the community around to actively participate in the
rehabilitation/restoration works in an unprecedented manner.
3.2.4 The Committee learnt that Prime Minister of India visited Visakhapatnam Airport on 14.10.2014 and
reviewed the situation and visited the affected areas. The MHA during the Committee’s meeting held on
10th August, 2015 informed that the Prime Minister during his visit reviewed the extent of damage, relief
and rescue operations. The Prime Minister announced an interim assistance of ` 1000 crore to the State of
Andhra Pradesh.
3.2.5 The Committee desired to know the basis of calculation for Prime Minister’s announcement to the
tune of `1000 crore to Andhra Pradesh and reason for delay in release of money. In response to that, the
MHA merely responded that the damages caused by the Cyclone in and around Vishakhapatnam city were
of unprecedented nature. In view of the preliminary damages projected by the State Govt., the Prime
Minister announced ` 1000 crore immediate financial assistance.
3.2.6 In pursuance, ` 115.425 crore was released on 17th October, 2014 to Andhra Pradesh in advance
against 2nd instalment of central share of SDRF for 2014-15. ` 400 crore was released from NDRF in
advanace on 30th October, 2014. Subsequently, ` 150.97 crore was released from NDRF on 13 th February,
2015.
3.2.7 The Committee in its sitting held on 10th August, 2015 wanted clarification from the Ministries of
Home Affairs and Finance as to why the total amount announced was not paid and whether it would be
treated as a separate grant or not. Responding to Committee’s query the Home Secretary stated as under:-
“If an announcement is made, then, some immediate advance, that is, on-account advance, is
released from the NDRF. We also release the second installment of SDRF. ....., the SDRF money is
released to the State in two installments, first instalment is released in June and the second is
released in December. As and when a calamity occurs, we also take a call so as to release the
second installment in advance. In this case also, it was done. An announcement enables us to
release a certain on-account amount from the NDRF, and, we also take a call to release the second
installment in advance. It is on-account advance, which gets adjusted as per the system”
3.2.8 The Secretary, Department of Expenditure clarified that even when the PM announces any package, it
is on account. The Government don’t have to wait for the consideration of the demands made by the
affected states by the HLC or NEC. The Government make a general estimate that broadly certain amount
of money should be spent the Government release the same and later on, the adjustments are made after the
high-level teams. The Secretary further added as under:-
“Even in Hudhud, when an amount of `1,000 crore was announced by the Prime Minister, as the
Home Secretary mentioned, it was for immediate relief. About `400 crore were immediately put
22
into the account of the State Government so that they should not fall short of any money. I may also
mention here in passing that the same cyclone also affected Odisha, just 100 or 200 kilometres
above. The only difference was that here it affected the Vizag town. So, there was more damage.
Odisha Government initially managed within the money. SDRF money was sufficient.”
3.2.9 The Committee is not in agreement with the views of the Ministries of Home Affairs and
Finance about the government package on the basis of on account basis later to be adjusted under
SDRF. The Committee is of the view that government should make announcements in the event of
any disaster as a separate allocation over and above allocation made to the state as per Finance
Commission recommendation as was done in the case of Uttarakhand and recently in the aftermath
of unprecedented rainfall/flood in Chennai. Moreover, the Committee desires that before any
announcement is made by the Central Government, there should be a primary assessment, and that
special package must be over and above annual allocation of the affected states.
3.3 EXTENT OF DAMAGE DUE TO HUDHUD
3.3.1 The Committee was informed that heavy windstorm and heavy rains resulted in extensive damage to
public and private properties. Agriculture and allied sectors such as Horticulture, Fisheries, Animal
Husbandry and Handloom and Textiles were affected severely. The public infrastructure like Roads,
Buildings, Irrigation, Drinking water, Power, etc., were damaged drastically in these Districts. With the
collapse of power supply system, the entire communication system failed.
3.4 LOSS OF LIFE & PROPERTY
3.4.1 The Committee was intimated that about 61 persons were died while 102 persons got injured during
‘Hudhud’. The following information was furnished to the Committee pertaining to overall impact of the
cyclone Hudhud:-
Total No.of Districts affected 4

Total No.of Mandals affected 138
Population affected 92.77 Lakhs
Total No. of Villages affected 7285
No. of People evacuated 222460
Total Cropped area affected 3.30 lakh ha.
Total value of estimated crop loss ` 2287 cr
Area with more than 50% crop damage `3.26 lakh ha.
3.4.2 The Committee was further apprised that in agriculture sector about 2,37,854 hectare was damaged
with an estimated loss of ` 947.9 crore. Affected Horticultural Land of 87984 hectare had a value of losses
of ` 1339.23 crore, while in sericulture estimated loss was ` 1.73 crore. As regards the impact of Hudhud on
animal husbandry, it was stated that 1406 big animals, 4468 small animals and 46,34,706 poultry were
killed. While in fishing 956 boats and nets were lost with an estimated loss of ` 98.29 crore.
3.4.3 As regards Infrastructure damages, Roads and Building Department of the State Government
intimated the Committee that 3880 kms. roads and 53 buildings were damaged with the estimated loss of `
1111.80 crore. While 4831gram panchayat roads, 1108 gram panchayat buildings and 2.5 lakhs street lights
23
and fixtures were damaged with an estimated loss of ` 410 crore. It was also stated that 1345 kms. of
municipal roads and 40614 municipal street lights were damaged with an estimated loss of ` 3621.56 crore.
A total number of 2,0067 houses with the estimated value of ` 3236.32 crore were damaged and 1163
number of rural water supply & sanitation work with an estimated loss of ` 126.9 crore were damaged. The
Committee was further informed that 3180 irrigation sources, 59 Flood banks and 51 buildings of Irrigation
Department with a loss of ` 317.05 crore were damaged. It was further intimated that private industries
estimated loss of ` 1275 crore. Damage to the tune of ` 6136.20 crore was caused to private industries and
Andhra Pradesh Industrial Infrastructure Corporation (APIIC).
3.4.4 The Committee was informed that the total estimated loss to the State Government was to the tune of
` 21,908 crore. The representative of the State Government put forth the requisition of a sum of ` 9857
crore as per the State Government norms for rescue, relief and temporary restoration with a break-up of `
1236 crore towards relief & rescue and ` 4144 crore for temporary restoration and ` 4477 crore towards
permanent restoration of damaged infrastructure. The Committee was further informed that as per the
NDRF norms a sum of Rs 9337 crore is required for rescue, relief and temporary restoration i.e. ` 716 crore
towards relief & rescue and ` 4,144 crore for temporary restoration and ` 4477 crore towards permanent
restoration of damaged infrastructure.
3.5 QUANTUM OF RELIEF
3.5.1 The Committee was apprised about the relief given to the affected persons as per GOI norms; ex-
gratia to next of the kith and kin of deceased 45 persons- a sum of ` 7 lakh paid to each one; and ex-gratia
to severely injured 6 persons- a sum of ` 1.5 lakh paid to each one. Moreover, in 43 cases, ex-gratia for
hospitalization for more than a week, a sum of ` 50,000 paid to each one while ex-gratia for Hospitalization
for less than a week to, 47 persons were given a sum of ` 15,000 paid to each one.
3.5.2 As regards the house damages which were covered as per GOI norms, the Government has released
an amount of `75.99 crore. All the beneficiaries’ details viz. photos, bank account numbers, Aadhar
numbers etc have been uploaded on the Hudhud website. So far, sanction orders have been issued for
1,37,055 damaged houses. Of which, the relief amount has been transferred to 1,01,658 beneficiaries. As
regards the agricultural crop damages, a total of 152806 farmers were affected and total extent of
32167.756 acres area was affected and the government have released input subsidy of `46.46 crore. So far
the amount has been transferred to 1,24,718 for a total amount of `39.61 crore. Pertaining to horticulture
damages, the Committee was intimated that 184507 farmers were affected with area of 61617.68 hectares.
The Government have released input subsidy of `161.56 crore. So far, the input subsidy has been
transferred to 1,24,182 for a total amount of ` 93.37 crore. So far as animal husbandry damages is
concerned, the Government has released an amount of `19.22 crore for payment of relief to the 2,666
affected beneficiaries and so far, the relief has been transferred to 1093 beneficiaries for an amount of
`10.94crore. For fisheries damages, the Government released an amount of `14.07 crore and so far, the bills
are presented for `3.16 crore covering 333 beneficiaries.
3.6 VISIT OF INTER-MINISTERIAL CENTRAL TEAM (IMCT)
3.6.1 On receipt of the Memorandum for relief from the State Government, an Inter-Ministerial Central
Team (IMCT) visited Andhra Pradesh from 25 th to 28th November and held meeting with various State
Government officials and held discussion on the damages during their visit to the affected areas in the 4
districts. The IMCT accepted the fact that the damages occurred due to Hudhud cyclone were very huge
24
and assured that it would recommend the assistance liberally as per norms. The State Government
suggested for revision of norms / scale of assistance under SDRF/NDRF basing on the intensity of
calamity. The IMCT suggested for construction of more cyclone shelters along the coast line for timely
evacuation and to prevent loss of life. It was intimated to the IMCT that the State Government had released
` 750 crore during the year 201415 from SDRF account and there was no balance available.
3.6.2 The Committee is of the view that since there was no balance available in SDRF there is need
for release of Funds from NDRF to face such eventualities. Furthermore, the Committee was given to
understand that National Institute of Disaster Management (NIDM) has been agreed to be set up in
Andhra Pradesh after bifurcation of the State. Efforts should be made in this direction.
3.6.3 The Committee in its sitting held on 29 th June, 2015 desired the break-up of all assistance given under
SDRF and NDRF to the Government of Andhra Pradesh. In response to that the MHA stated that during
2014-15 centre’s share of SDRF was ` 230.85 and a sum of ` 578.03 crore (27.06+400+150.97) was
released from NDRF amounting to a total of ` 808.88 crore. In the year 2015-16, till date centre’s share of
SDRF was ` 165.00 crore and a sum of ` 181.63 crore was released from NDRF amounting to a total of `
346.63 crore. The Committee further desired to know the amount given to Andhra Pradesh in the preceding
five years of 2015-16 as it was felt that there was a reduction from the previous five years to 2015-16 to
2019-20. In response to that the MHA stated that in case of newly carved State of Andhra Pradesh, 14 th
Finance Commission has recommended allocation of ` 2430 crore in SDRF for the Award Period (i.e.
2015-16 to 201920) against ` 2811.64 crore recommended to united Andhra Pradesh by the 13 th Finance
Commission for the years 2010-11 to 2014-15. Besides, 14 th Finance Commission has allocated an amount
of ` 1514 crore to Telangana for the years 2015-20. As such the size of allocation to the SDRF of united
Andhra Pradesh has been increased to 40.27% during 2015-20.
3.6.4 The Committee further desired to know the fund sanctioned and released to the State Government of
Andhra Pradesh for relief and restoration measures till date, the MHA vide its communication dated 19th
October, 2015 apprised the Committee as under:-
“In the case of Andhra Pradesh, It is stated that the High Level Committee (HLC), in its meeting
held on 30.01.2015 approved the assistance of (i) ` 737.60 crore from NDRF, subject to adjustment
of 75% of balance available in the SDRF account of the State for the instant disaster. (ii) ` 8.13
crore from Special Component of National Rural Drinking Water Programme (NRDWP) for repair
of damaged rural drinking water supply works. In the case of Andhra Pradesh, the Government of
India has released both the installments of Central Share of State Disaster Response Fund
amounting to ` 230.85 crore (115.425 crore + 115.425 crore) for the year 2014-15, to the State on
15th September 2014 and 17th October 2014 respectively. For the instant disaster of cyclone
‘Hudhud’ the availability of
SDRF was ` 248.84 crore. After adjusting for 75% of SDRF balance, ` 550.97 crore (` 400 cr. On
31.10.2014 and ` 150.97 cr. On 13.02.2015) was released from NDRF to the State of Andhra
Pradesh in the wake of cyclone ‘hudhud.’ Besides, the Government of India has released 1 st
installment of Central Share of State Disaster Response Fund amounting to ` 165.00 crore for the
year 2015-16, to the State on 27 th May 2015 for management of relief necessitated by natural
disasters during 2015.
25
Further it is mentioned that the State Government in their memorandum had projected
requirement for items outside the purview of SDRF norms, such as restoration work of
longterm/permanent nature. Assistance for these items is not admissible under the norms of
SDRF/NDRF”
3.6.5 Regarding the Committee query about the details of utilization of funds sanctioned and released on
Hudhud cyclone sector-wise, the MHA informed the Committee that as per the information received from
the Government of Andhra Pradesh, they have reported the expenditure of ` 902.80 crore on account of
Cyclone Hudhud during the year 2014-15 and ` 16.39 crore during the 2015-16. Sector-wise details are
given in the following tables:-
(` In Crore)
Sector/purpose Amount released Amount utilized
1 2 3
Procurement and distribution of 294.51 294.51
10 essential goods to the Hudhud
cyclone affected families in 4
districts (SKLM, VZM, VSPEG)
Gratuitous relief towards 98.93 98.93

disbursement of cash doles, food
and clothing and relief
assistance to damaged houses
and temporary restoration of
government buildings
Repair/restoration of damaged 31.14 31.14

roads & bridges and buildings 7.35 7.35
Repair/restoration of water
supply & sanitation and street
lighting works
1 2 3
Repair/restoration of damaged 9.00 9.00

electricity/Power works
Assistance for livestock losses, 41.01 41.01

temporary restoration of damaged
veterinary and poultry sheds Input
subsidy for damaged
17.06 17.06
fishing boats & nets
Input subsidy for agriculture 140.37 140.37

26
Input subsidy for Sericulture crops
0.13 0.13
Input subsidy for Horticulture crops
208.95 208.95
Towards Gratuitous relief 54.35 54.35
TOTAL 902.80 902.80

Sector/purpose Amount released Amount utilized
Assistance to fishermen, boats etc. 0.18 0.18
Relief for damaged houses, clothing 10.46 10.46

& utensils in Visakhapatnam
Input subsidy for Sericulture crops 0.127 0.127

Towards compensation to affected
Handicrafts artisans
0.079 0.079
Towards damages and destruction caused to
industries
5.547 5.547
TOTAL 16.39 16.39
3.6.6 As reflected in the above tables that immediate and temporary restoration have been completed in the
financial year 2014-15 and 2015-16. However, with regard to the Committee’s query about the long term
reconstruction plan, the MHA stated that the World Bank & Asian Development bank carried out Rapid
Damage and Need Assessment in hudhud affected districts i.e., Srikakulam, Vizianagaram, Visakhapatnam
& east Godavari and subsequently, Government of India has finalized the following component as part of
Andhra Pradesh Disaster Recovery Project (APDRP) with projected cost of US $ 370 Million (` 2220 Crore
approximately). The project components includes resilient Electrical network (underground cabling),
Restoration of Connectivity and Shelter infrastructure, Restoration and projection of the Beach front,
Restoration of Environmental services and facilities and livelihood support, Capacity building & technical
support for disaster risk management, Project Implementation support and contingency emergency
response.
The World Bank and Government of Andhra Pradesh will be funding the project at the ratio of 68:32. The
World Bank has approved a credit in the amount of USD 250 million for APDRP on 17 th June, 2015. It is
an external aided project. The project is effective from 28 th August, 2015 for a period of five years and is
under implementation.
3.7 INTERACTION WITH CIVIL SOCIETIES
3.7.1 The Committee had an opportunity to meet the associations of affected persons during its field visits
and heard their grievances. The Committee also had an opportunity to interact with the members of civic
societies, who participated in relief activities during Hudhud cyclone. Views expressed by them in their
written submissions are summarized in the succeeding paragraphs.
(i) Joint Committee of Hudhud Cyclone Affected Industries and Workers in Visakhapatnam
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3.7.2 The Joint Committee of Hudhud Cyclone affected Industries and workers in Visakhapatnam apprised
the Committee that devastations took place in Public Sector Industrial Establishments in Visakhapatnam
and badly affected the workers especially unorganized and poorer sections. The workers especially
unorganized ones had been put to a great hardship. It was also informed that the repair work in the Hudhud
Cyclone affected PSUs in Visakhapatnam was very much slow. The Government should impress upon the
respective Administrative Ministries to issue suitable instructions for immediate and speedy completion of
repair works.
(ii) Visakha Steel Workers Union
3.7.3 The Committee was apprised that the Super cyclone Hudhud has derailed the growth path of RINL/
VSP from expansion to the errection and devastated the plant and green cap. The Government of India
should extend its support by providing financial assistance to meet the damages caused by Hudhud.
(iii) Visakha Steel Employees Congress
3.7.4 The severity of the cyclone was so great that there was no parallel in the recent history and the
damage to Plant and property is colossal.
3.7.5 The union sought for tax holiday for two years and special assistance of ` 1000 crore for
Visakhapatnam Steel Plant to rebuilt the equipment and the green belt.
(iv) Steel Plant Employees Union, Visakhapatnam
3.7.6 According to the union besides loss to the assets of the plant, the cyclone also resulted in production
loss amounting to about ` 1000 crore which is a major setback to the journey of VSP towards a word class
steel making company. The union demanded for tax holiday to VSP from all types of taxes & duties for the
year 2014-15 as well as for the year 2015-16 and to exempt VSP from paying dividend to GOI against the
profits earned besides moratorium on disinvestment proposals pertaining to VSP/RINL. The union also
demanded for expeditious allotment of captive mines to Visakhapatnam Steel Plant.
(v) M.K. Gold Paints (P) Ltd.
3.7.7 The industrial unit brought to notice of the Committee inaction/delay in taking action in setting right
the mistakes/omissions in the insurance policy issued by SBI General Insurance Company Limited without
knowledge and consent. The company was regularly covering stocks and assets with United India
Insurance Company Limited, with clear description of items covered and their coverage amount. However
under the subject policy, only buildings including plinth and foundations are covered for ` 26.50 lakhs,
ignoring the vital assets like plant &machinery and stocks, thus totally ignoring the details of coverage as
mentioned in earlier Policy. The unit mentioned that this anomaly was brought to the Insurance
Company’s notice by the bank to SBI Genl. Insurance but no action had been taken/appeared to be taken by
the SBI General Insurance Co. to set right the mistake/error committed by them while issuing the Policy,
either erroneously/deliberately even after more than 3 months. The unit demanded rectification of the
mistake and issue amendment to the Policy with retrospective effect to cover the building, plant &
machinery and stocks separately with corresponding sub limits.
3.7.8 The Committee while considering widespread devastation due to cyclone, feels that industries in
Visakhapatnam are in dire need of restoration on better buildup. Industries and allied activities are
required to be re-set up & restored without delay so that economic activities in the town can be put
back on rail at the earliest. The administrative Ministries of the PSUs should arrange to fast track
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the repair/reconstruction works which got damaged. Due to cyclone Hudhud, the Committee also
recommends that the Union Government and State Government may consider declaring tax
incentives for the industries for three years. Insurance claims made by the industrial units should
also be settled on fast track and administrative Ministry of Finance should impress upon the
concerned insurance companies to expedite the reimbursement claim. The Committee, during its visit
to such industries also received complaints of providing very less amount of compensation by
insurance companies against claims raised by affected industries. The Committee desires that such
complaints may be looked into sympathetically. The Committee is also of the view that wages to the
contract and casual workers for non productive days due to the Hudhud calamity should also be paid
in all the establishments and industries as a special gesture on humanitarian ground. The Committee
also desires that workers’ interests must be protected and taken care of during the non-functioning
period of the affected industrial units without inviting general accounting & auditing norms on profit
motive.
(vi) Fishermen’s Youth Welfare Association
3.7.9 The Association in its written submission mentioned that nearly 14 lakh fisher folk families depend
on the coastal area for their primary lively-hood. The ecology of the coastal areas is intentionally being
neglected through improper implementation of Environmental Protection Act, 1986; CRZ-2011,
Notification and Andhra Pradesh High Court orders.
3.7.10 It was submitted that Union Ministry of Environment and Forests had already ordered that no heavy
buildings or constructions, large industries and commercial complexes permitted adjacent to the coast.
The Committee was also informed that the Andhra Pradesh High Court had also given orders to the local
government departments on the same thing in the context of Writ petition nos. 27156/2013 and 8177/2007.
But, the acts and laws were not being implemented. In addition to this, in the name of development,
Government and private ports are also coming up without taking any protection measures/actions which
could cause coastal erosion.
3.7.11 In view of thereof, Association requested that necessary instructions/orders are required to be given
to concerned officials and authorities to stop illegal constructions across the coastal belt and proper
implementation of the Environmental Protection Act, 1986.
3.7.12 The Committee understand that livelihood of fisher folk is heavily dependent on coastal
ecology and uncontrolled industrial development in the coastal line is bound to affect coastal ecology.
The Committee is aware of the fact that compromise on the norms for protection of environment and
ecology has become common in the name of development. The Committee therefore recommends that
the laws aiming for protection of environment should not be violated in the process of development.
(vii) Left Parties, Visakhapatnam
3.7.13 The signatories in their written memorandum informed that Visakhapatnam Air port, Visakhapatnam
Steel Plant, Hindustan Petroleum Corporation, BHEL Visakhapatnam unit and many other industries got
affected severely. The following suggestions were made in the memorandum:-
(i) All standing crops and plantations had been destroyed but the agriculture loss had not yet
been assessed even after 3 month of cyclone. The representatives alleged that even though 3
months had passed, the relief is limited to propaganda only. The Government must provide
appropriate relief to all affected farmers.
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(ii) While in survey or enumeration, the tenants farmers must also be taken in to account who
have lost their sanding crops.
(iii) The coffee plantations in the tribal area had been damaged and it needs fresh plantation. So
tribals must be given immediate relief and compensation and inputs to grow new plantations.
(iv) The peasantry, house owners, huts owners and workers have received only marginal relief.
The Government declared 1,46799 dwellings as damaged either fully or partially or collapsed
but so far the Government has paid compensation only less than 50 percent of damaged
houses. The remaining persons have not been paid any compensation till date. It was also
informed that the enumeration is partial and many houses had been left un-enumerated even
after three months.70000 applications of people that were submitted to the district
administration were not registered leave alone relief. Those residing as tenants were most
effected due to loss of cloths, provisions, children books, etc. But the government was
refusing to register their names as they do not belong to house owners category. The affected
tenant residents must immediately be enumerated and be given immediate relief. The
Government should immediately enumerate, survey and register all affected persons. Besides
the above, those whose houses were damaged in the Simhachalam endowment lands were not
allowed to repair or rebuild their houses as the matter was sub-juidice.
(v) The fishery industry had also been severely hit. Nearly 600 boats were damaged. They should
be given compensation immediately by relaxing the norms.
(vi) It was also brought to the notice of the Committee that many fishermen were not registered in
any society. But the Government was insisting that only those who were registered would be
eligible for compensation after satisfying all other norms like ADHAR card etc.
(vii) Majority of the small scale and other industries had been hit severely. The workers have no
work for one month due to non- operation of the industry. They were not provided with any
relief. Many of the contract workers and casual labor are migrant labor they do not have
either Adhar card or ration card, etc. so they were denied any compensation or relief.
(viii) The Central Government should immediately declare tax holiday for all the industrial units
irrespective of either big or small.
(ix) The Government should enumerate all damaged push carts, street vendors, rickshaw and auto
rickshaws and immediately should pay relief to those who were enumerated.
Communist Part of India (CPI), Anakapalle Area/ Town Council
3.7.14 As a result of Hudhud sugar cane and paddy crops including coconut trees and other trees have been
damaged. People of Anakapalli, Munagapaka, Yellamandidi and Chodavaram Mandalams are completely
based on agriculture and are waiting for relief from Central and State Governments.
Dr. T. Subbarami Reddy, MP (Rajya Sabha)
3.7.15 The Committee received a communication from Dr. T. Subbarami Raddy, MP, Rajya Sabha
belonging to the State that the compensation for the damaged houses should be paid immediately to the
sufferers. Government of Andhra Pradesh assessed damage to 1,13,000 houses at an estimated cost of `
23,000 crore. The Compensation needed to be paid immediately. He appealed that after due verification of
the damage, the compensation component could be increased for rural crops and cattle life.
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Slum Dwellers Welfare Association, Visakhapatnam
3.7.16 The association complained that the Government authorities had not properly enumerated nor
assessed the damages. The slum dwellers completely lost their dwellings along with their belongings. But
the authorities declared them as partially damaged houses. They did not calculate damages along with
injuries and damages to their employment tools like rickshaw, auto-rickshaw, pull carts, etc. The State
Government gave ration for one month for some people and ` 5000/- for some people. Scheme of providing
pucca house had not been announced and the local authorities were not allowing the people to make pucca
or kaccha houses with the help of donors. For every slum dweller to make pucca house, the Government
should provide minimum ` 4 to 5 lakh.
Andhra Pradesh Matsya Karulu, Matsya Karmika Sangam
3.7.17 The Sangam in its submission mentioned that the boats of the community were washed away and
also damaged and tools like nets etc. were also damaged. Their houses and huts were destroyed.
3.7.18 The association requested for (i) immediate relief to all the fishermen families for sustenance by
way of compensation for the damage of boats of ` 6 lakh each per boat and one lakh each per net; (ii)
without any restrictions like society registration, etc, all the fisherwomen fish vendors must be paid ` 25000
per family; (iii) new houses must be constructed in place of all the damaged houses and immediate relief
should be given for repairs; (iv) whenever a cyclone, small or big, hit the shore, the boats and nets are
damaged regularly, therefore, In order to avoid this, the Government must construct fishing jetties along
the shore in the fishermen villages.
A.P. Rythu Sangham
3.7.19 The Committee was intimated that 90% of peasantry in the Visakhapatnam was severely hit and put
to innumerable loss due to devastation of cyclone Hudhud. Especially, the tenant farmers were severely
affected. So far no relief was given to those who lost their huts, houses, and sheds due to the cyclone. The
works of conducting survey of affected and job of distribution was given to local janmabhoomi committees
which are politically appointed and there was no guarantee of relief to those who do not belong to their
political inkling.
3.7.20 It was suggested that (i) all affected farmers must immediately be given a relief of ` 10000 and `
15000 per acre for paddy and sugarcane crop loss respectively; (ii) the relief declared for cashew, mango
groves loss must be doubled; (iii) those tenant farmers, who gave the advances to land owners before the
cyclone, must be refunded; (iv) to clear the fallen trees including coconut trees, ` 500/- must be paid per
tree as labour charges and ` 1500/- as relief for the loss of trees per tree; (v) the tenant farmers must
immediately be paid relief directly without any restrictions; (vi) moratorium must be declared on farm
loans and fresh loans must be given according to scale of finance; (vii) the cyclone hit sugar factories of
Visakhapatnam district must immediately be provided with necessary financial assistance and additional
funds must also be sanctioned.
Girijana Sangham
3.7.21 Girijan Sangham appealed to the Committee for relief of ` one lakh per acre to farmers of coffee
plantation, black pepper and pucca houses for those whose houses were in danger of land slide in Paderu
tribal area of Visakhapatnam district. As per government survey, the plantations in 40000 acres were
destroyed and 35114 farmers were affected. The State Government provided a very nominal relief which
was not even sufficient to clean the land. Where the loss was more than one lakh per acre, the relief was
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given ` 10000 per acre. Now if the plantation is started, it will take another minimum 8 years for the yield
to come. And all these years, the farmers have to be on streets to run their families. Besides the above, the
traditional crops in the area like paddy, country corn and vegetable were also severely damaged. The grown
up groves of mango, cashew were also grazed due to ground to the devastation of the cyclone against which
not even a single rupee of relief was given.
3.7.22 In Araku valley mandal, a village “Medarasala” had been ruined completely due to land slide and the
village had not been restored leave alone the relief. The villagers of the said hamlet were taking shelter in
another village as repatriates. The village is to be rebuilt immediately and all the villagers must be given
pucca houses. In Paderu area, more than 20000 houses were damaged and the Government declared `
10000 as relief to partially damaged and ` 25000 for fully damaged, which is meager and yet to reach the
affected. Due to im-proper survey, majority had not been recorded and they did not get any relief.
3.7.23 The Committee during its field visit saw total uprooting of Coconut plantation in the village. It was
informed to the Committee that all the trees which were aged about 15 years old had been completely
damaged and it may take several years to get the trees ready for yield.
3.7.24 The Committee is awfully shacked to observe that a large number of people faced very hard
time in the aftermath of the devastation caused by the cyclone Hudhud. The Committee was
informed that in Araku valley mandal, a village “Medarasala” had been ruined completely due to
landslide and the village had not been restored leave alone the relief. The villagers of the said hamlet
were taking shelter in other village as displaced persons. Fisher folk and poor people had been
rendered homeless as their homes/ huts are all washed away. The relief against loss of boats and nets
is awfully meagre. The Committee notes a peculiar condition put forth by relief authorities to a
affected person claiming the relief that the vessels should be condemned and submit registration
cancellation certificates to claim the amount. If owners were not allowed to salvage the sunken boats
and repair to make them seaworthy, the 6 lakh compensation is marginal for purchase of new vessel.
Most of the affected persons are not satisfied with the quantum of relief provided to them. Farmers
had complained that their standing crops and plantations had been destroyed but their loss had not
yet been assessed or properly assessed. The tenant farmers, who lost their standing crops, had also
not been taken into account. The coffee plantations in the tribal area had been damaged and it needs
fresh plantation, which could take many years to give yield. Till then the coffee farmers and the
workers, who are mostly tribals, will not be having the regular livelihood. The Committee also notes
the allegations of improper/ incomplete/ partial enumeration of losses of houses, agriculture, and
livelihood. The unregistered fisherman had been left out and were finding difficult to get relief. Those
residing as tenants were being refused to register their names as they do not belong to house owners
category. As stated by aggrieved persons during the visit of the Committee to Simhachalam,
damaged houses were not being allowed to be repaired or rebuilt as their houses were on government
land and the matter is subjuidice. The slum dwellers completely lost their dwellings along with their
belongings. But the damages to belongings and other things like rickshaw, auto-rickshaw, pull carts,
etc. had not been counted for. Migrant people who do not have any document to prove their domicile
are not being treated eligible for relief.
3.7.25 The Committee strongly recommends that the Central as well as State Government must be
keen and sympathetic to the sufferings and grievances of the people. Though, the Committee would
like to place on record the active role played by the Union and State Governments in conducting
rescue and relief operations but the complaints made by the people must not be ignored through by
now many of the grievances must have been addressed. The Committee, however, urges upon the
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Central as well as State Governments of Andhra Pradesh to be more proactive and compassionate
towards the problems of the sufferers.
3.7.26 The Committee recommends that all the suggestions and complaints made by one and all civil
societies/associations/individuals as indicated in the preceding paragraphs may be looked into by
both Central and State Governments and appropriate action may be taken, if not addressed so far.
Andhra Pradesh State Right to Education - (RTE) Forum
3.7.27 The Forum informed the Committee that the Hudhud had caused a lot of damage to elementary
school education in the Visakhapatnam district. It was estimated that the loss to Elementary Education
could be ` 36 crore in Northern Districts of AP in which 700 schools in Visakhapatnam, 100 schools in
Vizianagaram and 200 Schools in Srikakakulam districts have been completely damaged.
A.M.A.L. College
3.7.28 The Committee visited the damaged college and was apprised that the Government aided colleges
had suffered heavy damages due to cyclone and were in need of financial support. The Committee noted
the damages suffered by the college. It was stated that the total estimated value of re-construction of the
damaged buildings was ` 4.53 crore.
3.7.29 The District Collector during discussion mentioned that some of such institutions are approaching
the district administration seeking assistance for restoration of damages. He requested the Committee to
look into the issue of admissibility of compensation to the Government/Aided institutions.
3.7.30 The Committee notes that schools and colleges have suffered colossal damages in
Visakhapatnam, Vizianagaram and Srikakulam districts due to cyclone and the education sector
must have been facing most difficult time in serving the society. With the crippling of elementary
education and non- functioning of schools, children could be deprived of Education facilities, thus
affecting their future severely. Similarly, non-functioning of colleges and institutions of higher
education may hit the young generation. The Committee is therefore of the considered view that
schools, colleges must be rebuilt on war footing. The Committee also notes that, as per the existing
norms, it is not permissible to assist an institution under NDRF. Funds may be released under
reconstruction plan. The Committee recommends that the UGC may be urged for sanctioning
reconstruction of indoor stadium, class rooms & laboratories.
NATURE
3.7.31 NATURE is a civil society organization which is working with tribal, dalit and rural communities
and implementing various developmental programs in 4 districts of Coastal Andhra Pradesh.
3.7.32 The organization conducted surveys in Visakhapatnam, Vizianagaram and Srikakulam districts and
identified highly affected villages for undertaking the relief and rehabilitation ventures, conducted Grama
Sabhas for understanding community opinions and identification of beneficiaries and distributed domestic
usage material, Education Material Kits to children. It conducted wash campaign in several places and
supplied Chlorine Tablets for cleaning of the water bodies.
Sri Gayatri Welfare and Cultural Youth Academy

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3.7.33 The Academy informed that it took care of food, drinking water, and milk for the infants to the 150
cyclone affected people with the help of Nature Cure Hospital. It also supplied drinking water to the
patients in the King George Hospital, Vishakhapatnam.
3.7.34 The Committee appreciates the work of NGOs and civil societies who rendered selfless help to
the cyclone victims and provided succor to them. The Committee during its interaction with all such
organisations noted their commitment and devotion to the humanity. The Committee would like to
take this opportunity to urge them to adopt at least one village or area of town/ city to contribute for
rehabilitation of affected people.
3.8 DISCUSSION WITH THE REPRESENTATIVES OF STATE GOVERNMENT
3.8.1 The Committee interacted with the Officers, to get apprised with the works done before, during and
after the cyclone. The District Collector, Visakhapatnam acquainted the committee members with the
videos, photographs of damages occurred during Hudhud cyclone. The Commissioner for Disaster
Management & Principal Secretary to Government of Andhra Pradesh explained the details about
occurrence of cyclones in the State of Andhra Pradesh right from the year 1891 till Hudhud Cyclone. The
Commissioner explained the precautionary measures that were taken just before the HUDHUD cyclone i.e
Dos and Don’ts during the cyclone, deployment of rescue forces of NDRF, Army, Navy, SDRF, evacuation
of people to the relief camps, regulating of traffic on National High Way, mobilizing of relief material from
the neighbouring States and non- affected districts of Andhra Pradesh, enhancement of compensation for all
the sectors, releasing of funds from the SDRF, etc.
3.8.2 The Commissioner stated that ` 1982.10 crore had been spent for various purposes relating to relief,
restoration and reconstruction activities in all the three districts affected gravely due to Hudhud cyclone`
902.77 crore from the SDRF (including ` 400.00 crore released from the NDRF) and ` 1079.33 crore from
the Energy Dept. He informed that there was a deficit of `406.00 crore in the SDRF.
3.8.3 The Committee also brought to the notice of the representatives of the State Government that when
various forces like NDRF teams, Army Columns, Navy Teams, etc were deployed in multiple units, only
one team of SDRF team was deployed during Hudhud cyclone. Responding to the query, the Commissioner
explained that SDRF had been formed in addition to the existing forces of Police and Fire Services.
Hundreds of Police and Fire Service personnel were deployed for Rescue and relief operations. However,
the representative of the Ministry of Home Affairs informed that only one team of SDRF had been raised
by the State Government of Andhra Pradesh just to fulfill the provisions of the Disaster Management Act.
3.8.4 The Committee takes a serious exception to the fact that only one team of SDRF had been raised
by the State Government of Andhra Pradesh just to fulfill the provisions of the Disaster Management
Act. The Committee also takes note of the fact that there are still some states which are yet to set up
their SDRFs. The Committee desires that every state should form complete and necessary teams of
SDRF to face any consequences.
3.8.5 The Chairman, Visakhapatnam Port Trust, stated that they suffered losses worth of `232.00 crore.
They submitted a report to the Ministry of Shipping and the Ministry have deputed technical persons to
assess the damages and submitted a proposal to the Ministry of Home Affairs for release of funds. But, the
Home Ministry had stated that, as per the existing norms under NDRF, compensation to the institution
cannot be considered. The compensation to the individuals is only admissible. However, they advised to
put a proposal to the Planning Commission which is now changed as National Institution for Transforming
India (NITI) Aayog.
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3.8.6 The Committee brought to the notice of the representatives of the State Government of the complaints
received from fishermen. Responding to the complaints, the Commissioner informed that by obtaining data
as to how many boats had gone for fishing and how many boats returned, etc., the Fisheries Department
collected all the missing boats data. The Government had released amount recently and the payments were
being made to all the affected and enumerated beneficiaries. The District Collector however stated that, as
per the NDRF Norms, there was no compensation for mechanized boats. However, the Government of
Andhra Pradesh had extended relief to the damaged mechanized/ fiber boats also. He opined that the
existing NDRF norms may be reviewed.
3.8.7 The Committee also raised the complaint of people that their houses were on the encroached lands
and got affected severely during Hudhud cyclone and they were not being permitted to construct houses.
Member of the Committee opined that though the rules are there to stop encroachment, but during the
calamities/ tragedy, the people must be assisted as the affected persons are also the citizens of the country.
The District Collector submitted that all the affected people including those who have encroached lands,
had been sanctioned compensation for house damages and the gratuitous relief.
3.8.8 The District Collector also informed that the Urban Local Bodies particularly, the Greater
Visakhapatnam Municipal Corporation (GVMC) had suffered huge losses to public properties, but as per
the existing norms there is no provision for sanction of compensation. The Committee also noted that the
Airport was also damaged severely. The District Collector submitted that the Government /Local
Body/PSUs buildings should be included in the NDRF Norms and all these issues needed to be reviewed by
the Government of India.
3.8.9 The Commissioner for Agriculture informed that the agriculture crop damages were enumerated by
constituting special teams to facilitate the farmers to go for second crop immediately and the relief was
being paid through bank accounts only.
3.8.10 The Committee appreciates the District Administration and the Officers, who rendered
extraordinary service during Hudhud Cyclone to bring normalcy in the State. The Committee notes
that repair/ reconstruction in many of sectors is not covered under NDRF norms. In view thereof, the
Committee is of the opinion that there is need either to change the existing norms of NDRF or
additional funds may be provided to State Government/Local Bodies for bringing administrative
physical structure back on rail.
3.8.11 The Committee is of the considered view that, in the cyclone prone areas, a study may be taken
up for upgradation of the quality of constructions in the cyclone prone cities as the existing IS 875
Code can withstand wind speed of 140 kmph while the wind speed recorded during Hudhud cyclone
was much more than that. The Committee desires that houses, electrical poles, communication
towers etc, should be so constructed to withstand more wind speed as has been done in Odisha.
CHAPTER - IV
DISASTER MANAGEMENT : THE ROAD AHEAD
4.1 ADMINISTRATION OF SDRF AND NDRF
4.1.1 The Committee during its visit to Odisha and Andhra Pradesh was confronted with the issue of
funding of assistance towards providing immediate relief to the disaster affected persons in a situation
when the funding from SDRF was completely exhausted in meeting the demands of the previous disasters
and the States were left with no funds to combat the adverse consequences of fresh disaster.. In this
context, the Committee examined the existing norm and guidelines provided in the Manual of
Administration of SDRF and NDRF (Revised-2013) of the Government of India.
4.1.2 The pertinent provisions of the said Manual on administration of SDRF and NDRF stipulate as under:
“The funding of assistance is towards providing immediate relief. It is not for compensation of
loss. This distinction between relief and compensation needs to be understood while dealing with
the subject. Relief means assistance to affected people from the shock and trauma of suddenly
losing their means of livelihood. The main objective of the Response funds is therefore to assist the
affected persons to start their economic activities again. On the other hand, compensation would
mean replacement of all the damages in financial terms. Compensation is a part of contractual
agreement whereby unnatural dispossession of wealth and property is to be compensated for. The
objective of the SDRF/NDRF is to provide relief by way of gratuitous assistance as an immediate
help to overcome the stress. It is generally understood that no country in the world is in a position
to fully compensate the losses incurred due to natural calamities. There have to be other
mechanisms in place to address the issue of compensation e.g. insurance coverage.”
4.1.3 Guidelines on State Disaster Response Fund (SDRF) state that the Government of India contributes
75% and 90% of the total yearly allocation of SDRF to General States and Special Category States
respectively. The balance 25% in case of General Category State and 10% in case of Special Category
States is contributed by installments: first in the month of June and second in the month of December of the
year. The State Executive Committee headed by the Chief Secretary is authorized to decide on all matters
relating to the financing of the relief expenditure from the SDRF, in accordance with the items and norms
approved by Government of India. The first charge of relief expenditure is on the SDRF.
4.1.4 On the other hand, the Guidelines on National Disaster Response Fund (NDRF) state that in the event
of a calamity of a severe nature when the State’s SDRF is insufficient to meet the relief requirements,
additional central assistance is provided from NDRF, after following the laid down procedure. The State
Government is required to submit a memorandum indicating the sector-wise damage and requirement of
funds. On receipt of memorandum from the State, an Inter-Ministerial Central Team (IMCT) is constituted
and deputed for an on the spot assessment of damage and requirement of funds for relief operations, as per
the extant items and norms. The report of the Central team is considered by the Inter-Ministerial Group
(IMG)/National Executive Committee (NEC) headed by the Home Secretary. Thereafter, the High Level
Committee (HLC) comprising of the Finance Minister, the Agriculture Minister, the Home Minister, and
the
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Deputy Chairman, Planning Commission considers the request of the State Government based on the report
of the Central Team, recommendations of the IMG thereon, extant norms of assistance and approves the
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quantum of assistance from NDRF. This is, however, subject to the adjustment of 75% of the balance
available in the SDRF for the instant calamity.
4.1.5 Manual on administration of SDRF and NDRF further stipulates the Main features of the Guidelines
on SDRF and NDRF enumerated as under:
 The State Executive Committee (SEC) shall be responsible to ensure that the money drawn
from the SDRF is actually utilized for the purposes it has been set up. It shall be utilized only
on items eligible for assistance and as per norms issued by the Ministry of Home Affairs.
 The accretions to the SDRF, together with the income earned on the investments of the Fund,
will be used by the SEC to meet the expenditure on relief and further financial assistance
(beyond the Central Government’s yearly contribution to the SDRF) will ordinarily be not
available for the purpose.
 The norms for the amounts to be incurred on each approved items of expenditure are
prescribed by the Ministry of Home Affairs in consultation with Ministry of Finance. In case
the State Government exceeds the prescribed amount, the excess expenditure should be borne
from the budget of the State Government and should not be charged from the SDRF or
NDRF.
 The provision for disaster preparedness, restoration, reconstruction and mitigation should not
be part of SDRF or NDRF. Such expenditure is needed to be built into the State Plans.
 The State Government shall furnish an Annual Report on Natural Calamities in the
prescribed format to the Ministry of Home Affairs and Ministry of Finance by September,
every year.
4.1.6 The Committee observes that the Manual on administration of SDRF and NDRF contains the
provision that the State Government, in case of a severe disaster and having exhausted their
resources for meeting relief expenditure from SDRF, is required to submit a detailed memorandum
indicating sector-wise damage along with requirement of funds for immediate relief operations. The
Committee notes that under the said situation the NDRF is only to supplement the SDRF in the wake
of calamities of a severe nature. Therefore, theoretically, there should not be a situation when the
State Government is left with no funds to meet the emergent needs of relief when the disaster
confronts the State.
4.1.7 However, during the Committee’s visit to Odisha, the Chief Secretary apprised that in SDRF, state
government did not have any balance because state government had already over spent in Phailin.
According to him it would be very unfair if it was decided to meet the expenditure from SDRF and that the
amount of 399.83 crore should have been recommended from NDRF not SDRF The State Government
cannot wait for one month for the high level committee to meet to sanction and then start relief operation.
The State Government must have some balance left in SDRF but the SDRF balance is in negative.
4.1.8 The Committee understands that the recommendations of the 14 th Finance Commission (FFC), based
on the views of the State Governments and the Union Government, aim at setting up of a constitutional
framework for co-operative and competitive fiscal federalism in India. In this context, the various issues
and relevant views of different stakeholders were considered by the FFC. Some of the relevant extracts
from the FFC report are quoted in the succeeding paragraphs.
4.2 FINANCING OF NATIONAL DISASTER RESPONSE FUND

37
4.2.1 The cause of disaster management will be served better if clear and transparent rules are
framed on financing the NDRF. This would also help augment resources for disaster management
through contributions from people or institutions. Currently, funds contributed to the Prime
Minister’s Relief Fund or the State Chief Minister’s Relief Fund are exempted from income tax.
The Ministry of Home Affairs has informed that modalities are being explored for the extension of
tax exemptions to private contributions to the NDRF as well. The FFC was of the view that
contributions could be another source of financing the NDRF and recommended that a decision on
granting of tax exemption on private contributions to the NDRF be expedited.
4.2.2 FFC also stressed that the Union Government could also explore the possibility of
incorporating in the rules on financing of the NDRF, expenditures that are categorised under the
head of corporate social responsibility (CSR) under Section 135 of the Companies Act of 2013. It
recommended that the Union Government consider invoking the use of this as an enabling
provision for financing the NDRF.
4.2.3 The State Governments demanded an increase in the size of the NDRF and advocated that
the norms for expenditure under this Fund be expanded and made flexible in order to cover
reconstruction and mitigation. The State Governments requested the Commission to recommend
an expansion in the scope of assistance from the NDRF to include all items of expenditure for
post-disaster management, including response, relief, rehabilitation and reconstruction. A common
concern was the cumbersome processes and delays in the assessment of relief assistance from the
NDRF. The State Governments also suggested that funds be released in a transparent and
predictable manner to enable States to plan, execute and spend on reconstruction and
rehabilitation.
4.2.4 The Committee is in agreement with views of the State Governments that the norm
for expenditure under NDRF be expanded to cover reconstruction and mitigation
component of Disaster Management and recommends that an adequate advance amount be
released to States as soon as a severe calamity occurs, without waiting for the assessment of
the Central team and its consideration by the High-Level Committee. The Committee agrees
with the recommendation of the Finance Commission that the sources of contributions to
NDRF must also be expanded by exemption in Income Tax and also to explore expenditures
that are categorized under the head of corporate social responsibility (CSR) for on financing
of the NDRF by amending the rules.
4.2.5 The Committee also observes that Inter-Ministerial Central Team (IMCT) visits the
disaster affected States when the signs of the disaster is on the verge of withering away. The
Committee understands that there could be some genuine reasons for late submission of
memorandum as in the times of disasters, priority of the State Governments is to provide
succor to the people instead of doing paper work. The Committee, therefore, recommends
that in such cases, on a case to case basis on merit, an advance release from NDRF should be
made to the extent of the entitlement of the concerned State Government of one SDRF
installment which would be subject to adjustment after the assessment through due process.
The Committee suggests that such advance should be considered in all prima-facie, major
disasters.
4.3 FINANCING OF STATE DISASTER RESPONSE FUND

38
4.3.1 The SDRF is the primary Fund available with States for disaster response. The Disaster
Management Act mandates that States shall constitute a SDRF once the constitution of the State
Authority is notified. While the Act clearly provides two sources of financing the NDRF, no
source has been laid down for the SDRF. It is implied that the corpus of the SDRF will be the
grant recommended by the Finance Commission under Article 275 (1) of the Constitution.
4.3.2 FFC considered that a major concern for the States is the fiscal burden of financing
disaster management, including relief and reconstruction, without a commensurate flow of
resources from the Union Government. Consequently, State Governments complained that they
were compelled to spend funds in excess of the SDRF from their own resources, particularly on
post-disaster restoration and reconstruction. The State Governments, therefore, desired a
substantial increase in the SDRF corpus based on expenditures they had incurred on calamity
relief, including reconstruction and restoration of assets in the affected areas. On the other hand,
some States, particularly the North-eastern States, articulated that the SDRF should be financed
entirely by the Union Government as they were unable to provide matching contributions towards
the SDRF.
4.3.3 The Committee is of the view that financial position of SDRF is not strong enough to
withstand the damage caused by disasters and the relief/assistance amount is not adequate to
meet the demands of the State Governments to finance the rescue/relief/reconstruction
programs in order to bring back the disaster affected areas back on the rail. In this
direction, the Committee appreciates the recommendation of 14 th Finance Commission for
strengthening the financial position of the State Governments by devolution of financial
autonomy; however, till the financial position of the disaster affected States are not
strengthened, the States would have to heavily depend on NDRF. The Committee therefore
recommends that the size of NDRF should be increased to provide meaningful help to the
States in view of the rising costs of relief and rehabilitation.
4.4 HAZARD VULNERABILITY RISK PROFILES OF STATES
4.4.1 During the visit of the Committee to Odisha and Andhra Pradesh, the State representatives
and some Civil Society groups raised the issue of the increase in the frequency and intensity of
disasters, the rising costs of relief, rehabilitation and reconstruction and absence of an appropriate
methodology to determine the quantum of funds.
4.4.2 The Committee notes that these issues were well considered by the FFC and it felt that the
estimates of the size of the SDRF and desired proportionate increases provided by them vary
considerably across the States. It also reflected upon the question of an appropriate methodology
to determine the quantum of funds considered adequate for dealing with disasters in different
States over the next five years, after factoring in cost increases due to inflation.
4.4.3 The State Governments also expressed their views on the inter-State distribution of grants
arguing that special weightage should be given to vulnerability of States rather than to actual
expenditure incurred in the past. They stressed the need to consider the size of the calamity-prone
area and the duration and frequency of calamities as determining factors. In this regard the issue of
developing a Hazard Risk Vulnerability Index was raised which would reflect States’ vulnerability
to disasters and the consequent need for more funds. Another suggestion was of using the profiles
for droughts and cyclones as the basis for fixing the size of the
SDRF.
39
4.4.4 The NDMA apprised the FFC with the vulnerability index attempted on para-meters of
floods, erosion, tidal waves, earthquakes, droughts and landslides. However, the index, which has
been compiled by the Building Materials and Technology Promotion Council (BMTPC) under the
Union Ministry of Housing and Poverty Alleviation, has not been validated by any scientific
study.
4.4.5 The FFC considered that the proneness of States to disasters varies, as does the type of
disasters affecting them. Some States may be prone to floods while others are prone to cyclones or
earthquakes, requiring varied approaches in both the response as well as requirement of funds for
rescue, relief and rehabilitation and concluded that scientifically validated risk vulnerability
indicators would be useful measures of the type, frequency and intensity of disasters confronting
States.
4.4.6 The Committee notes the recommendation of FFC that the Union Government must
expedite the development and scientific validation of the Hazard Vulnerability Risk Profiles
of States. The Committee is of the view that appropriate methodology to determine the
quantum of adequate funds for dealing with disasters in different States must be based on
scientific and rational grounds considering States’ vulnerability to disasters. The Committee,
therefore, recommends that the index compiled by the Building Materials and Technology
Promotion Council (BMTPC) may be scientifically validated or an alternative rational
methodology be explored at the earliest.
4.5 CONTRIBUTIONS FROM STATE GOVERNMENTS
4.5.1 The Thirteenth Finance Commission had recommended differential State shares, with
general category States contributing 25 per cent and special category States contributing 10 per
cent, and the balance being contributed by the Union Government as Grants-in-Aid. The FFC
mentioned that the Ministry of Home Affairs advocated retaining the present 75:25 ratio for
general category States and 90:10 for special category States. In addition, it suggested that a
special component be created within the SDRF to specifically address the medium-term and long-
term post-disaster restoration of damaged infrastructure.
4.5.2 FFC concluded that the sharing formula of 75:25 between the Union and State
Governments for contribution to the SDRFs (earlier the CRFs) is not appropriate, given the
additional responsibility cast on States and their district administrations by the Disaster
Management Act, and the scale, frequency and magnitude of relief and restoration undertaken in
the recent past. There is a case for enhancing the share of the Union Government in SDRFs. At the
same time, even though many States desired that the SDRF be entirely funded by the Union
Government, FFC was of the view that State contributions to the Fund need to continue to bring in
States’ commitment towards, and ownership of, relief measures.
4.5.3 The Committee endorses the FFC’s recommendation that all States contribute 10
per cent to the SDRF with the remaining 90 per cent coming from the Union Government.
The Committee hopes that the recommendations of FFC will help in ushering of a new
planning system with the creation of NITI Aayog which ultimately is aimed at
institutionalization of a cooperative and competitive federalism in India.
4.6 NORMS FOR EXPENDITURE

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4.6.1 According to FFC the norms for relief expenditure would affect the adequacy and
financing requirements of SDRFs as well as the NDRF. These norms are issued by the Ministry of
Home Affairs and are revised periodically, with the last revision having taken place in November
2013. State Governments can incur expenditures from the SDRF/NDRF only under the items and
norms approved by the Union Government. These norms are based on the report of an Expert
Committee consisting of representatives of the Union ministries and State Governments.
Additional expenditure beyond the norms, if any, has to be met by States from their own
resources. Further, the norms are generally revised after the awards of successive Finance
Commissions.
4.6.2 The Governments of Odisha and Andhra Pradesh during the visit of the Committee
highlighted the need for an upward revision in the norms for assistance under almost all items of
relief, and indexing these norms to inflation. States also complained that the norms for assistance
had remained fixed without taking annual inflation into account. The State Governments argued
that a normatively fixed, ‘one-size-fits-all’ formula discriminates against those States where the
basic input costs are comparatively higher. Therefore, States advocated either the development of
state-specific norms or permission to set their own norms for utilization of the SDRF.
4.6.3 Similarly, FFC also considered the State Governments’ concern with the issues relating to
the admissibility norms of expenditure items for payments out of the SDRF viz. the inadequacy
and insufficiency of the norms in the light of inflation and cost escalations, the need for an
expansion in the scope of the norms by the inclusion of more items and the freedom for States to
fix their own norms. FFC noted that the norms for expenditure have undergone periodic revisions
and that the States are being consulted in the process of reviewing the norms. The FFC urged the
Union Government to take account of the genuine concerns of the States in the consultative
mechanism already in place.
4.6.4 The Committee takes note of the concerns expressed by the Odisha and Andhra
Pradesh on the need for upward revision in the Norms. The Committee also takes note of the
observation of FFC. The Committee recommends that the M/o Home Affairs may initiate
discussion with all the States on the need to revise the norms and take appropriate action.
4.7 LONG TERM VISION ON DISASTER MITIGATION
4.7.1 The Committee in its sitting held on 10.8.2015 was apprised about the launching of
National Cyclone Risk Mitigation project in 8 States in 2 phases. As stated earlier, on the basis
of recommendation of FFC for Strengthening States response the SDRF allocation has been
enhanced from ` 33581 crore to 61,220 crore. 5% of SDRF allocation has been set aside for
strengthening of SDMAs/DDMAs, capacity building, training and mass awareness. To undertake
sustained mitigation, States have been advised to keep 10% of the Plan budget under Centrally
Sponsored Scheme towards disaster mitigation and restoration activities.
4.7.2 States have been encouraged to set up their own State Disaster Response Force on the
lines of National Disaster Response Force. So far, 16 States have created their own SDRFs and
other States have been advised.
4.7.3 The Committee observes that only sixteen states have created SDRF. This is not an
encouraging situation when disasters take place frequently and have a toll on the
41
infrastructure, finance and lives. The Committee, therefore, recommends that all the states
may be asked to created SDRF.
4.8 NATIONAL CYCLONE RISK MITIGATION PROJECT (NCRMP)
4.8.1 The Committee during its visit to Odisha and Andhra Pradesh experienced heavy
infrastructure loss and, therefore, desired to know the impact of technology intervention to ensure
cutting down the infrastructure losses with cyclone shelters, improved road network etc. In
response to that the Ministry of Home Affairs apprised the Committee that Disaster management
is multi-disciplinary subject, which requires coordinated and holistic approach from all
Ministries/Departments of Central as well as State Governments. However, with a view to address
cyclone hazard risk, National Cyclone Risk Mitigation Project (NCRMP) has been drawn up with
World Bank assistance in 13 cyclone prone states and Union Territories including Orissa. The
project aims to strengthen the structural and non-structural cyclone mitigation efforts to reduce the
cyclone risk and vulnerability in coastal districts. The project seeks to provide last mile
connectivity for warning dissemination, structural and non-structural measures, technical
assistance for cyclone Hazard Risk Mitigation, Capacity building and knowledge creation and
project management and implementation support.
4.8.2 Under Phase-I, the State of Orissa & Andhra Pradesh will be covered. The estimated cost
of the Phase-I project is `1496.71 cr (US $ 308.6 million). The broad outcomes of the project are
provision of cyclone forecasting, cyclone risk mitigation and capacity building in multi-hazard risk
management. The major infrastructure which is being constructed under the project includes
multipurpose cyclone shelters (including shelter-cum-go-down) and approach roads/ bridges to
habitations and embankments. The project is expected to benefit 5.60 lakh people in Odisha and
over 5.50 lakh people in Andhra Pradesh. It is expected to help protection of 38,296 ha. land in
Odisha and about 12,640 ha in Andhra Pradesh.
4.8.3 The Committee in its meeting held on 10.8.2015 was further informed by the Ministry of
Home Affairs that the Government of India has initiated the National Cyclone Risk Mitigation
Project (NCRMP) with World Bank assistance with a view to address the cyclone risks in the
country. The Project is being implemented in two phases i.e. Phase-I and Phase-II. Phase-I is
under implementation in the States of Andhra Pradesh and Odisha. Phase-II is to be implemented
in the States of Goa, Gujarat, Kerala, Karnataka, Maharashtra and West Bengal.
4.8.4 The Ministry of Home Affairs apprised the Committee of the objectives of NCRMP
which inter aila includes improved early warning dissemination systems, improved access to
emergency shelter, evacuation and protection against wind storms, flooding and storms surge in
high risk areas and enhance capacity of local communities to respond to disasters. The project is
mainly funded by Central Government through World bank Assistance (79.38%) and State
Governments (20.62%).
4.8.5 The Committee was further informed that the Government of India approved Phase-I of
the Centrally Sponsored Scheme of National Cyclone Risk Mitigation Project for Andhra Pradesh
& Odisha at a cost of ` 1496.71 crore in January, 2011, with World Bank Assistance. The project
was further reformulated to ` 2331.71 crore and is likely to end in March, 2018. The project now
envisages inter-alia creation of infrastructure with component of 549 Cyclone Shelter (192
Cyclone Shelters have been completed), 1249.94 Kms. Roads (679.76 Kms have been completed),
37 Bridges (13 bridges have been completed) and 190.60 Kms. Saline Embankments. The
42
NCRMP Phase-II has been approved for the States of Goa, Gujarat, Karnataka, Kerala,
Maharashtra and West Bengal with World Bank assistance at an outlay of ` 2361.35 crores with
date of completion as 31st March, 2020 by the Union Cabinet on 16 th July, 2015. The principal
components and pattern of funding is same as for the Phase-I. The physical infrastructure
envisaged 353 Cyclone Shelters, 310 Kms. Roads, 3 Bridges, 90.46 Kms. Saline Embankments
and 105 Kms. LT & 175 Kms. HT Underground Cabling.
4.8.6 The Committee takes note of the main features and objectives of National Cyclone
Risk Mitigation Project (NCRMP). The Committee feels that with the implementation of this
project the disaster preparedness of the states will enhance to a large extent. The Committee,
however, recommends that target fixed for creation of infrastructure should be achieved in
time without any cost overrun.
4.8.7 The Committee appreciates the launching of NCRMP project which would prove a
land mark in reducing infrastructure loss in the wake of natural disaster. The Committee,
therefore, strongly recommends that concerted efforts must be made by the Central and
State Governments to reduce the infrastructure losses in power and road sectors by adopting
underground cabling and construction of all weather roads.
4.9 GENERAL RECOMMENDATION
4.9.1 The Committee is of the view that financial position of SDRF in both the States of
Odisha and Andhra Pradesh is not strong enough to withstand the damage caused by
frequent disasters and the relief amount is not adequate to meet the demands of the State
Governments to finance the rescue/ relief/reconstruction programs in order to bring back
the disaster affected States back on the rail. In this direction, the Committee notes the
recommendation of 14th Finance Commission for strengthening the financial position of the
State Governments by devolution of financial autonomy. However, till the financial position
of the disaster affected States are not strengthened, the State would heavily depend on
NDRF. The Committee, therefore, strongly recommends that the Central Government must
revisit NDRF/SDRF guidelines, for providing adequate compensation to the disaster affected
States. When village infrastructure is totally devastated, it should be deemed that the food
resources of BPL families have been totally wiped out and accordingly they should be
entitled for gratuitous relief assistance, irrespective of the fact whether they have been
shifted to relief camps or not.
4.9.2 The Committee during its visit to Odisha and Andhra Pradesh came across the issue
that all critical infrastructure like airports, electrical installations etc. are not insured
against natural disasters. This is a situation beyond reasonable understanding. The
Committee, therefore, desires that the Government should revisit the issue and explore the
possibility for insuring the Government properties which are built at the cost of tax payers.
4.9.3 It was brought to the notice of the Committee that Government properties are not
covered at present in the NDRF/SDRF guidelines. The Committee is of the view that instead
of placing repair of Government properties under Relief Fund, fast track mechanism should
be put in place by the Union as well as State Governments, so that the Ministries and the
State Governments can initiate the repair/ reconstruction of Government properties.
43
4.9.4 The Committee further observes that at present there is no incentive for a State
Government to take up preventive disaster mitigation measures. Therefore, the Committee is
of the view that a scheme should be put in place, whereby State Governments can be
encouraged for taking up preventive measures in a big way.
4.9.5 The Committee expresses its concern that none of the two State Governments
appeared to be using 10% flexi fund provision under centrally sponsored schemes for
disaster mitigation. The Committee observes that the Scheme was announced in January,
2014 but the same has not been implemented at the ground level. The Committee
recommends that the Ministry of Finance may review and revise the scheme to ensure the
implementation of the scheme which appropriately aims at mainstreaming disaster
reduction measures by undertaking development projects and incorporating the elements of
disaster mitigation.
4.9.6 The Committee feels that capacity building is a very important requirement in
disaster management, and therefore, recommends that concerted efforts should be made to
strengthen the SDMAs so that disaster management professionals are available in adequate
numbers with due training to ensure all necessary measures by way of mock drills,
rehearsals, preventive measures and planning exercises well before a disaster strikes.
4.9.7 The issue of late submission of memorandum by the State Government of Odisha
appeared before the Committee during its visit to the State causing a delay in the visit of
IMCT. The Committee, therefore, recommends that whenever a delay of more than two
weeks takes place either from the date of receipt of the State Memorandum up to the date of
report of the IMCT, or from the date of report of the IMCT to the date of meeting of the
High Level Committee, an advance release from NDRF should be made, to the extent of the
entitlement of the concerned State Government of one SDRF installment which would be
subject to adjustment after the assessment through due process.
4.9.8 The Committee observes that at present the coverage of property insurance in
disaster prone areas is inadequate. As a result, when a disaster occurs, people look up to the
Government for compensation while Manual on Administration of Disaster makes provision
only for relief due to which the daily life and economic activities of the affected people come
to a standstill and remains scarred for a long time. Therefore, the Government must identify
vulnerable districts prone to recurrent disasters like floods, cyclones etc. and initiate a
comprehensive infrastructure insurance scheme wherein all private and public
infrastructure including houses, schools, offices, shops, hospitals etc. are adequately insured
against such disasters.
RECOMMENDATIONS/OBSERVATIONS — AT A GLANCE
BACKGROUND
The Committee notes that Government of Odisha was able to save a large number of human
lives from Hudhud cyclone in 2014. The Committee observes that owing to one of the largest
evacuations in Indian history, the storm event did not cause major fatalities in Odisha. The
Committee puts on record its appreciation for the efforts undertaken by the State Government
fighting the adversity. The Committee takes note of the efforts put in by the State Government
officials on all fronts of disaster preparedness viz. accurate early warning system having emergency
telecommunication facilities, continuous government interface with officials so that maximum
information reached the people in minimum possible time to avoid any chaos and mismanagement,
while facing the challenge.
(Para 2.1.9)
DISCUSSION WITH CIVIL SOCIETY ORGANIZATIONS INVOLVED IN RESCUE AND

RELIEF OPERATIONS
The Committee is pleased to note that civil Society advocacy has been critical in highlighting
concerns of those disaster affected groups who happen to be on the margins of society and the less
visible victims of any disaster. The Committee recommends that the suggestions concerning Non
Timber Forest Products, assessment of the damage to crops, NTFPs and houses, Seed kits of legumes,
vegetables, oilseeds etc., financial support for repair or reconstruction of community assets and
individual houses by revamping MGNREGA, as made by the NGOs, may be examined and
appropriate action may be taken.
(Para 2.9.2)
The Committee finds merit in the suggestion put forth by UNDP concerning introducing
smart agriculture so that by the beginning of October, which normally coincides with cyclones in
coastal areas every year, if the yield is harvested, farmers would not be vulnerable to loss of crops.
Concerted steps should be taken by the Government in this direction. The Committee recommends
that the Government should come out with strategic and innovative harvesting patterns/programmes
in such coastal areas and provide incentives to farmers to use the incentives in coordination with
State Agencies. (Para 2.9.5)
The Committee desires that Government while implementing the reconstruction process must
consider the concern of tribals including revival package. Besides, the tribals may also be made part
of the smart agriculture and to the extent possible, they should be encouraged to diversify the
livelihood base. Other suggestions may also be addressed.
(Para 2.9.8)
The Committee desires that State Governments should take proactive measures for raising
mangroves and other trees along the coastal lines. If required, involvement of civil societies and
NGOs may be considered to achieve the purpose in a fruitful manner.
(Para 2.9.10)
47
SAMAJWADI PARTY, ODISHA
45
The Committee notes all the suggestions of representation of Samajwadi Party of Odisha and
desires that the Government may examine the same diligently.
(Para 2.10.2)
DISCUSSION WITH CHIEF SECRETARY, GOVERNMENT OF ODISHA
The Committee notes that when Hudhud occured in the month of October, 2014 the balance
available in SDRF of the State of Odisha was running in negative due to back to back cyclones in
2013 and 2014. The Committee also notes the submission of the chief Secretary that no fund was
available in the related schemes/programme/other sources for repair/restoration work. The
Committee understands that whatever the Government of Odisha had received is what is due to them
as an advance. Andhra Pradesh has been assured of `1000 crore, but for Odisha, no such
announcement has been made.
(Para 2.11.17)
The Committee also notes with anguish the submissions made by the representative of the
Home Ministry that the then high level committee headed by the then Agriculture Minister took a
‘particular’ decision and when Odisha Government gave detailed account for reconsideration of that
decision, it was stated that once a High Level Committee had taken a final decision, it would not be
appropriate for the present High Level Committee again to review the whole matter. The Committee
does not buy this argument. The Committee also notes that on the basis of the decision taken by the
Home Minister, the Odisha Government was informed that even though additional finance under the
National Disaster Response Fund is not possible, the ` 399 crore is a justified expenditure of the State
Government, therefore can be utilized from the State Disaster Response Fund. However the Finance
Ministry is of the view that this `399 crore must be borne by the State Government from their own
resources. Since for allocation of funds, Finance Ministry is the authority, Home Ministry in spite of
its strong support, is helpless. The Committee, in this connection, feels that communication
conveying approval of funds under SDRF to the State Government had been sent without consulting
Finance Ministry and in this situation decision taken by the Home Minister is questioned. (Para
2.11.18)
The Committee also notes that the State Government of Odisha asked assistance under
NDRF as its SDRF is exhausted. According to the representative of the Home Ministry, assistance
under National Disaster Response Fund can be given on receipt of memorandum from the State
Government on a case to case basis followed by report of inter-ministerial central team and meeting
of HLC. Once HLC has decided an amount, not a single penny can be given beyond that. The
Committee, here also, does not find any merit in the argument. In view of the Committee there
should be no question of another memorandum; what is required is reconsideration of previous
memorandum which contained all the details of the expenditures incurred by the State Government.
The Committee is perplexed to note the thinking/ approach of the Central Government in this matter
even after lapse of several months and the resultant is that State Government of Odisha is forced to
suffer without any fault of its own. (Para 2.11.19) The Committee strongly feels that Odisha
Government should have been rewarded rather than not harassed for its exemplary rescue and relief
work, which has been appreciated by one and all. The Committee therefore strongly recommends
that the Central Government should reconsider the demands of the Odisha Government in right
perspective so that the State does not feel de-motivated for its outstanding work accomplished during
Phailin and Hudhud Cyclones. For this purpose relaxation in norms as a special case can be
considered. (Para 2.11.20)
46
The Committee during its meetings held on 29th June and 10th August, 2015 took note of the
fact that due to infrastructure build up in the coastal areas with the cyclone shelters and the pre-
emptive work of Government of Odisha, there has been lesser casualties in Odisha. The State
Government and District Authorities got into the act of evacuating the people on the receiving the
warning from IMD. The Committee felt during its visit to the State the disappointment amongst the
affected persons that Prime Minister visited Andhra Pradesh and announced a relief package of `
1000 crore for the State but no announcement was made by the Prime Minister in respect of Odisha.
Keeping in view the feeling of the people of Odisha, the Committee wishes to point out that the State
which has done good job in pre-emptive work, in evacuating people, in keeping food and medicines
ahead of time at the shelters and reducing casualties should not be penalised for that. The Committee
believes that the true impact of the damage must not be assessed merely by the number of casualties,
but by the land area and the infrastructure that has been damaged. The Committee, therefore,
recommends that the Central Government may re-examine the request of Government of Odisha as
contained in its memoranda and accordingly formulate its package. In case reconsideration of the
decision is so problematic as to create wrong precedent by changing High Level Committee’s
recommendation the Central Government may consider for a separate allocation to the tune of ` 776
Crore to the State Government of Odisha, as separate allocation was made to the State Government
of Uttarakhand in the aftermath of landslide and flood. (Para 2.11.21)
The Committee was also apprised of a very peculiar way of functioning in the matter of inter-
ministerial teams. The Committee has been given to understand that this team consists of very senior
officers representing various concerned Ministries of the Union Government including the Ministry
of Finance. It has been noticed several times that findings/recommendations of the inter-ministerial
teams are for grant of assistance again subject to sanction by the Ministry of Finance and in this
process sometimes the States are reimbursed lesser amount than approved by the Inter Ministerial
team. In view of the Committee, this complex procedure casts an aspersion on the diligence of senior
officers of the Government. This also leaves a sense of disappointment to the State Governments
when they get less reimbursement to their legitimate expenses. The Committee therefore earnestly
recommends that the Government should examine this grave issue sincerely.
(Para 2.11.22)
The Committee understands that the State of Odisha having a long coastline has acquired
sufficient expertise in dealing with the natural calamities and disasters like cyclones, heavy rains etc.
The Committee strongly recommends that the reconstruction fund so received by the State would
devolve to mitigate the impact of Hudhud cyclone and the related rehabilitation program
particularly in the field of construction of permanent shelters; fisheries and livelihood, agriculture
and industry; animal husbandry; roads and bridges etc. The Committee would appreciate if the
overall assessments of progress made in all these programs are implemented at the grass-root level.
The Committee understands that rehabilitation involves the contribution from the Central
Government, the State Government, NGOs and other external borrowing/assistance, therefore,
better co-ordination and collaboration between the Central Government, State Government, NGOs
and other private parties is essential for effective rehabilitation effort at the grass-root level.
(Para 2.11.23)
The Committee observes that the area which was affected by Hudhud cyclone in Odisha was
mainly of the Tribals. In Koraput, Malkangiri and in some parts of Ganjam and Gajapati there
were no massive buildings. So the destruction of buildings was not there but thousands of huts, small
47
houses belonging to the Tribals, SCs and poorer sections of the people were completely destroyed.
The Committee, therefore, strongly recommends that special funds should be given to build the
houses of tribals and poorer sections. Efforts must be made to ensure that affected people especially
the poorer section should get the relief restoration benefits in time as it has been generally observed
that relief and restoration are delayed. The Committee, therefore, further recommends that there
should be a time limit within which the relief benefits should be given to the poorer section and
unnecessary delay must be avoided at all cost. (Para 2.11.24)
ODISHA: A SUCCESS STORY
The Committee observes that various organizations like National Disaster Management
Authority, World Bank appreciated the efforts of Odisha Government that while in the 1999 super
cyclone the State was the victim but in 2013 and 2014, the State successfully shifted its focus/attention
from “mitigation” to “management”. The Committee commends the Government of Odisha for their
outstanding work, and desires that the other disaster prone States should learn from Odisha
experience in the matter of preparedness and disaster management to meet any eventuality. (Para
2.12.4) PREPAREDNESS OF THE STATE GOVERNMENT
The Committee is not in agreement with the views of the Ministries of Home Affairs and
Finance about the government package on the basis of on account basis later to be adjusted under
SDRF. The Committee is of the view that government should make announcements in the event of
any disaster as a separate allocation over and above allocation made to the state as per Finance
Commission recommendation as was done in the case of Uttarakhand and recently in the aftermath
of unprecedented rainfall/flood in Chennai. Moreover, the Committee desires that before any
announcement is made by the Central Government, there should be a primary assessment, and that
special package must be over and above annual allocation of the affected states. (Para 3.2.9) VISIT
OF INTER-MINISTERIAL CENTRAL TEAM (IMCT)
The Committee is of the view that since there was no balance available in SDRF there is need
for release of Funds from NDRF to face such eventualities. Furthermore, the Committee was given to
understand that National Institute of Disaster Management (NIDM) has been agreed to be set up in
Andhra Pradesh after bifurcation of the State. Efforts should be made in this direction. (Para 3.6.2)
INTERACTION WITH CIVIL SOCIETIES
The Committee while considering widespread devastation due to cyclone, feels that industries
in Visakhapatnam are in dire need of restoration on better buildup. Industries and allied activities
are required to be re-set up & restored without delay so that economic activities in the town can be
put back on rail at the earliest. The administrative Ministries of the PSUs should arrange to fast
track the repair/reconstruction works which got damaged. Due to cyclone Hudhud, the Committee
also recommends that the Union Government and State Government may consider declaring tax
incentives for the industries for three years. Insurance claims made by the industrial units should
also be settled on fast track and administrative Ministry of Finance should impress upon the
concerned insurance companies to expedite the reimbursement claim. The Committee, during its
visit to such industries also received complaints of providing very less amount of compensation by
insurance companies against claims raised by affected industries. The Committee desires that such
complaints may be looked into sympathetically. The Committee is also of the view that wages to the
contract and casual workers for non productive days due to the Hudhud calamity should also be paid
in all the establishments and industries as a special gesture on humanitarian ground. The
48
Committee also desires that workers’ interests must be protected and taken care of during the non-
functioning period of the affected industrial units without inviting general accounting & auditing
norms on profit motive.
(Para 3.7.8)
The Committee understand that livelihood of fisher folk is heavily dependent on coastal
ecology and uncontrolled industrial development in the coastal line is bound to affect coastal ecology.
The Committee is aware of the fact that compromise on the norms for protection of environment and
ecology has become common in the name of development. The Committee therefore recommends
that the laws aiming for protection of environment should not be violated in the process of
development. (Para 3.7.12)
The Committee is awfully shacked to observe that a large number of people faced very hard
time in the aftermath of the devastation caused by the cyclone Hudhud. The Committee was
informed that in Araku valley mandal, a village “Medarasala” had been ruined completely due to
landslide and the village had not been restored leave alone the relief. The villagers of the said hamlet
were taking shelter in other village as displaced persons. Fisher folk and poor people had been
rendered homeless as their homes/ huts are all washed away. The relief against loss of boats and nets
is awfully meagre. The Committee notes a peculiar condition put forth by relief authorities to a
affected person claiming the relief that the vessels should be condemned and submit registration
cancellation certificates to claim the amount. If owners were not allowed to salvage the sunken boats
and repair to make them seaworthy, the 6 lakh compensation is marginal for purchase of new vessel.
Most of the affected persons are not satisfied with the quantum of relief provided to them. Farmers
had complained that their standing crops and plantations had been destroyed but their loss had not
yet been assessed or properly assessed. The tenant farmers, who lost their standing crops, had also
not been taken into account. The coffee plantations in the tribal area had been damaged and it needs
fresh plantation, which could take many years to give yield. Till then the coffee farmers and the
workers, who are mostly tribals, will not be having the regular livelihood. The Committee also notes
the allegations of improper/ incomplete/ partial enumeration of losses of houses, agriculture, and
livelihood. The unregistered fisherman had been left out and were finding difficult to get relief. Those
residing as tenants were being refused to register their names as they do not belong to house owners
category. As stated by aggrieved persons during the visit of the Committee to Simhachalam,
damaged houses were not being allowed to be repaired or rebuilt as their houses were on government
land and the matter is sub-judice. The slum dwellers completely lost their dwellings along with their
belongings. But the damages to belongings and other things like rickshaw, auto-rickshaw, pull carts,
etc. had not been counted for. Migrant people who do not have any document to prove their domicile
are not being treated eligible for relief. (Para 3.7.24)
The Committee strongly recommends that the Central as well as State Government must be
keen and sympathetic to the sufferings and grievances of the people. Though, the Committee would
like to place on record the active role played by the Union and State Governments in conducting
rescue and relief operations but the complaints made by the people must not be ignored through by
now many of the grievances must have been addressed. The Committee, however, urges upon the
Central as well as State Governments of Andhra Pradesh to be more proactive and compassionate
towards the problems of the sufferers. (Para 3.7.25)
The Committee recommends that all the suggestions and complaints made by one and all civil
societies/associations/individuals as indicated in the preceding paragraphs may be looked into by
49
both Central and State Governments and appropriate action may be taken, if not addressed so far.
(Para 3.7.26)
The Committee notes that schools and colleges have suffered colossal damages in
Visakhapatnam, Vizianagaram and Srikakulam districts due to cyclone and the education sector
must have been facing most difficult time in serving the society. With the crippling of elementary
education and non- functioning of schools, children could be deprived of Education facilities, thus
affecting their future severely. Similarly, non-functioning of colleges and institutions of higher
education may hit the young generation. The Committee is therefore of the considered view that
schools, colleges must be rebuilt on war footing. The Committee also notes that, as per the existing
norms, it is not permissible to assist an institution under NDRF. Funds may be released under
reconstruction plan. The Committee recommends that the UGC may be urged for sanctioning re-
construction of indoor stadium, class rooms & laboratories. (Para 3.7.30)
The Committee appreciates the work of NGOs and civil societies who rendered selfless help
to the cyclone victims and provided succor to them. The Committee during its interaction with all
such organisations noted their commitment and devotion to the humanity. The Committee would like
to take this opportunity to urge them to adopt at least one village or area of town/ city to contribute
for rehabilitation of affected people.
(Para 3.7.34)
DISCUSSION WITH THE REPRESENTATIVES OF STATE GOVERNMENT
The Committee takes a serious exception to the fact that only one team of SDRF had been
raised by the State Government of Andhra Pradesh just to fulfill the provisions of the Disaster
Management Act. The Committee also takes note of the fact that there are still some states which are
yet to set up their SDRFs. The Committee desires that every state should form complete and
necessary teams of SDRF to face any consequences.
(Para 3.8.4)
The Committee appreciates the District Administration and the Officers, who rendered
extraordinary service during Hudhud Cyclone to bring normalcy in the State. The Committee notes
that repair/ reconstruction in many of sectors is not covered under NDRF norms. In view thereof, the
Committee is of the opinion that there is need either to change the existing norms of NDRF or
additional funds may be provided to State Government/Local
Bodies for bringing administrative physical structure back on rail. (Para 3.8.10)
The Committee is of the considered view that, in the cyclone prone areas, a study may be
taken up for upgradation of the quality of constructions in the cyclone prone cities as the existing IS
875 Code can withstand wind speed of 140 kmph while the wind speed recorded during Hudhud
cyclone was much more than that. The Committee desires that houses, electrical poles,
communication towers etc, should be so constructed to withstand more wind speed as has been done
in Odisha. (Para 3.8.11) ADMINISTRATION OF SDRF AND NDRF
The Committee observes that the Manual on administration of SDRF and NDRF contains the
provision that the State Government, in case of a severe disaster and having exhausted their
resources for meeting relief expenditure from SDRF, is required to submit a detailed memorandum
indicating sector-wise damage along with requirement of funds for immediate relief operations. The
Committee notes that under the said situation the NDRF is only to supplement the SDRF in the wake
50
of calamities of a severe nature. Therefore, theoretically, there should not be a situation when the
State Government is left with no funds to meet the emergent needs of relief when the disaster
confronts the State.
(Para 4.1.6)
FINANCING OF NATIONAL DISASTER RESPONSE FUND
The Committee is in agreement with views of the State Governments that the norm for
expenditure under NDRF be expanded to cover reconstruction and mitigation component of Disaster
Management and recommends that an adequate advance amount be released to States as soon as a
severe calamity occurs, without waiting for the assessment of the Central team and its consideration
by the High-Level Committee. The Committee agrees with the recommendation of the Finance
Commission that the sources of contributions to
NDRF must also be expanded by exemption in Income Tax and also to explore expenditures that are
categorized under the head of corporate social responsibility (CSR) for on financing of the NDRF by
amending the rules. (Para 4.2.4)
The Committee also observes that Inter-Ministerial Central Team (IMCT) visits the disaster
affected States when the signs of the disaster is on the verge of withering away. The Committee
understands that there could be some genuine reasons for late submission of memorandum as in the
times of disasters, priority of the State Governments is to provide succor to the people instead of
doing paper work. The Committee, therefore, recommends that in such cases, on a case to case basis
on merit, an advance release from NDRF should be made to the extent of the entitlement of the
concerned State Government of one SDRF installment which would be subject to adjustment after
the assessment through due process. The Committee suggests that such advance should be considered
in all prima-facie, major disasters. (Para 4.2.5)
FINANCING OF STATE DISASTER RESPONSE FUND
The Committee is of the view that financial position of SDRF is not strong enough to
withstand the damage caused by disasters and the relief/assistance amount is not adequate to meet
the demands of the State Governments to finance the rescue/relief/ reconstruction programs in order
to bring back the disaster affected areas back on the rail. In this direction, the Committee
appreciates the recommendation of 14th Finance Commission for strengthening the financial position
of the State Governments by devolution of financial autonomy; however, till the financial position of
the disaster affected States are not strengthened, the States would have to heavily depend on NDRF.
The Committee therefore recommends that the size of NDRF should be increased to provide
meaningful help to the States in view of the rising costs of relief and rehabilitation.
(Para 4.3.3)
HAZARD VULNERABILITY RISK PROFILES OF STATES
The Committee notes the recommendation of FFC that the Union Government must expedite
the development and scientific validation of the Hazard Vulnerability Risk Profiles of States. The
Committee is of the view that appropriate methodology to determine the quantum of adequate funds
for dealing with disasters in different States must be based on scientific and rational grounds
considering States’ vulnerability to disasters. The Committee, therefore, recommends that the index
compiled by the Building Materials and Technology Promotion Council (BMTPC) may be
scientifically validated or an alternative rational methodology be explored at the earliest. (Para 4.4.6)
51
CONTRIBUTIONS FROM STATE GOVERNMENTS
The Committee endorses the FFC’s recommendation that all States contribute 10 per cent to
the SDRF with the remaining 90 per cent coming from the Union Government. The Committee hopes
that the recommendations of FFC will help in ushering of a new planning system with the creation of
NITI Aayog which ultimately is aimed at institutionalization of a cooperative and competitive
federalism in India. (Para 4.5.3) NORMS FOR EXPENDITURE
The Committee takes note of the concerns expressed by the Odisha and Andhra Pradesh on
the need for upward revision in the Norms. The Committee also takes note of the observation of FFC.
The Committee recommends that the M/o Home Affairs may initiate discussion with all the States on
the need to revise the norms and take appropriate action. (Para 4.6.4)
LONG TERM VISION ON DISASTER MITIGATION
The Committee observes that only sixteen states have created SDRF. This is not an
encouraging situation when disasters take place frequently and have a toll on the infrastructure,
finance and lives. The Committee, therefore, recommends that all the states may be asked to created
SDRF. (Para 4.7.3)
NATIONAL CYCLONE RISK MITIGATION PROJECT (NCRMP)
The Committee takes note of the main features and objectives of National Cyclone Risk
Mitigation Project (NCRMP). The Committee feels that with the implementation of this project the
disaster preparedness of the states will enhance to a large extent. The Committee, however,
recommends that target fixed for creation of infrastructure should be achieved in time without any
cost overrun. (Para 4.8.6)
The Committee appreciates the launching of NCRMP project which would prove a land
mark in reducing infrastructure loss in the wake of natural disaster. The Committee, therefore,
strongly recommends that concerted efforts must be made by the Central and State Governments to
reduce the infrastructure losses in power and road sectors by adopting underground cabling and
construction of all weather roads. (Para 4.8.7) GENERAL RECOMMENDATION
The Committee is of the view that financial position of SDRF in both the States of Odisha and
Andhra Pradesh is not strong enough to withstand the damage caused by frequent disasters and the
relief amount is not adequate to meet the demands of the State Governments to finance the
rescue/relief/reconstruction programs in order to bring back the disaster affected States back on the
rail. In this direction, the Committee notes the recommendation of 14 th Finance Commission for
strengthening the financial position of the State Governments by devolution of financial autonomy.
However, till the financial position of the disaster affected States are not strengthened, the State
would heavily depend on NDRF. The Committee, therefore, strongly recommends that the Central
Government must revisit NDRF/SDRF guidelines, for providing adequate compensation to the
disaster affected States. When village infrastructure is totally devastated, it should be deemed that
the food resources of BPL families have been totally wiped out and accordingly they should be
entitled for gratuitous relief assistance, irrespective of the fact whether they have been shifted to
relief camps or not. (Para 4.9.1)
The Committee during its visit to Odisha and Andhra Pradesh came across the issue that all
critical infrastructure like airports, electrical installations etc. are not insured against natural
52
disasters. This is a situation beyond reasonable understanding. The Committee, therefore, desires
that the Government should revisit the issue and explore the possibility for insuring the Government
properties which are built at the cost of tax payers.
(Para 4.9.2)
It was brought to the notice of the Committee that Government properties are not covered at
present in the NDRF/SDRF guidelines. The Committee is of the view that instead of placing repair of
Government properties under Relief Fund, fast track mechanism should be put in place by the Union
as well as State Governments, so that the Ministries and the State Governments can initiate the
repair/ reconstruction of Government properties.
(Para 4.9.3)
The Committee further observes that at present there is no incentive for a State Government
to take up preventive disaster mitigation measures. Therefore, the Committee is of the view that a
scheme should be put in place, whereby State Governments can be encouraged for taking up
preventive measures in a big way. (Para 4.9.4)
The Committee expresses its concern that none of the two State Governments appeared to be
using 10% flexi fund provision under centrally sponsored schemes for disaster mitigation. The
Committee observes that the Scheme was announced in January, 2014 but the same has not been
implemented at the ground level. The Committee recommends that the Ministry of Finance may
review and revise the scheme to ensure the implementation of the scheme which appropriately aims
at mainstreaming disaster reduction measures by undertaking development projects and
incorporating the elements of disaster mitigation. (Para 4.9.5)
The Committee feels that capacity building is a very important requirement in disaster
management, and therefore, recommends that concerted efforts should be made to strengthen the
SDMAs so that disaster management professionals are available in adequate numbers with due
training to ensure all necessary measures by way of mock drills, rehearsals, preventive measures and
planning exercises well before a disaster strikes. (Para 4.9.6)
The issue of late submission of memorandum by the State Government of Odisha appeared
before the Committee during its visit to the State causing a delay in the visit of IMCT. The
Committee, therefore, recommends that whenever a delay of more than two weeks takes place either
from the date of receipt of the State Memorandum up to the date of report of the IMCT, or from the
date of report of the IMCT to the date of meeting of the High Level Committee, an advance release
from NDRF should be made, to the extent of the entitlement of the concerned State Government of
one SDRF installment which would be subject to adjustment after the assessment through due
process. (Para 4.9.7)
The Committee observes that at present the coverage of property insurance in disaster prone
areas is inadequate. As a result, when a disaster occurs, people look up to the Government for
compensation while Manual on Administration of Disaster makes provision only for relief due to
which the daily life and economic activities of the affected people come to a standstill and remains
scarred for a long time. Therefore, the Government must identify vulnerable districts prone to
recurrent disasters like floods, cyclones etc. and initiate a comprehensive infrastructure insurance
scheme wherein all private and public infrastructure including houses, schools, offices, shops,
hospitals etc. are adequately insured against such disasters. (Para 4.9.8)
MINUTES
V
FIFTH MEETING
The Committee met at 2.30 P.M. on Tuesday, the 11th November, 2014 in Main Committee Room,
Parliament House Annexe, New Delhi.
MEMBERS PRESENT

RAJYA SABHA
4. Dr. V. Maitreyan
5. Shri Derek O’ Brien
7. Shri D. Raja
LOK SABHA
13. Shri Ramen Deka
14. Shri Chandrakant Khaire
17. Shri Ram Mohan Naidu Kinjarapu
24. Shri Bishnu Pada Ray
59
60
SECRETARIAT
1. Shri P.P.K. Ramacharyulu, Joint Secretary
2. Shri Vimal Kumar, Director
3. Shri D.K. Mishra, Joint Director
4. Shri Bhupendra Bhaskar, Assistant Director
5. Shri Sanjeev Khokhar, Assistant Director
6. Shri Anurag Ranjan, Assistant Director
WITNESSES
Representatives of Ministry of Home Affairs

1. Shri Anil Goswami, Secretary (Home)
2. Smt. Sneh Lata Kumar, Secretary (BM)
3. Shri Rajiv Gauba, Additional Secretary
4. Shri K.K. Pathak, Joint Secretary
5. Shri S.C. Karol, Director
6. Shri Sanjay Roy, Director
7. Shri Sanjay Agarwal, Director
Representatives of Ministry of Power

1. Shri Devendra Chaudhary, Special Secretary
2. Shri R.P. Sasmal, Director (Operations), PGCIL
3. Shri P.K. Pahwa, Member (GO&D), CEA
Representatives of Government of J&K

1. Shri Shantmanu, Divisional Commissioner, Jammu
2. Shri Vinod Kaul, Commissioner & Secretary
3. Shri Mushtaq Ahmed, Custodian & PRO
Representatives of Government of Orissa

1. Shri P.K. Mohapatra, Principal Secretary
2. Shri P.R. Mohaptra, Deputy Relief Commissioner
Representatives of Government of Andhra Pradesh

Shri M. Jagannadham, Additional Commissioner
Representative of Indian Meteorological Department

Dr. M. Mohapatra, Scientist-E
2. * * * *
I. * * * *
3.0 * * * *
*** Relate to other matters.

3.1 * * * *
3.2 * * * *
57
II. Rescue, Relief and Rehabilitation in the Aftermath of Hudhud Cyclone
4.0 The Home Secretary, then, briefed the Committee about the development of the cyclone Hudhud in the
North Andaman Sea on the morning of 6 th October, 2014. The National Crisis Management Committee
started reviewing the preparedness measures of the Central and the State Governments, from 9 th October
onwards. All possible logistic assistance was provided to the affected State Governments for managing the
cyclone and its aftermath and it was due to the close coordination between the Central and the State
Governments the loss of human lives was minimized.
4.1 Thereafter, presentation was made before the Committee pertaining to cyclone Hudhud i.e., on the
technical description of the cyclone by the Indian Meteorological Department; the efforts made by the
Central Government to help the States to deal with the cyclone; damage caused in Andhra Pradesh, and the
damage caused in Odisha.
4.2 During the course of presentation members raised several queries like the provision of central
assistance and payment of its installments to State Government of Andhra Pradesh, compensation to
cyclone hit victims by the State Governments of Andhra Pradesh and Odisha, the demand of additional
fund from NDRF by the State Government of Odisha, the degree of velocity of cyclone, the assessment of
preparatory arrangements by Government Departments, the role played by NDMA, the Emergency
Response System (ERS) of State Governments and so on, which were suitably replied by the Union Home
Secretary and the representatives of State Governments of Andhra Pradesh and Odisha.
5. A Verbatim record of the Proceedings of the meeting was kept.
6. The Committee then adjourned at 4.55 P.M.
VII SEVENTH
MEETING
The Committee met at 3.00 P.M. on Thursday, the 4th December, 2014 in Committee Room “A”
Parliament House Annexe, New Delhi.
MEMBERS PRESENT
RAJYA SABHA
3. Dr. V. Maitreyan
5. Shri D. Raja
LOK SABHA

SECRETARIAT
3. Shri D.K. Mishra, Joint Director
4. Shri Bhupendra Bhaskar, Assistant Director
2.0 At the outset, the Chairman welcomed the Members to the meeting of the Committee. He, thereafter,
apprised Members of the following agenda of the meeting which was to consider and adopt the following
two draft Reports of the Committee:-
(i) * * * *
*** Relates to other matter.
62
(ii) * * * *
I. * * * *
2.1 * * * *
2.2 * * * *
3. * * * *
II. Visit to Andhra Pradesh and Odisha
4. The Committee, thereafter, discussed its future course of action. The Chairman proposed that the
Committee should visit the Andhra Pradesh and Odisha to assess the impact of cyclone Hudhud in the two
States. After a brief discussion, the Committee decided to visit Andhra Pradesh and Odisha from 9 th to 11th
January, 2015. The Committee authorized the Chairman to finalize the detailed tour programme and to
approach Hon’ble Chairman, Rajya Sabha for seeking his permission for the said visit.
III. Future course of Action
5. * * * *
6. The Committee then adjourned at 3.23 P.M.

59
VII SEVENTH
MEETING
The Committee met at 10.00 A.M. on Friday, the 18th December, 2015 in Committee Room “A”
Ground Floor, Parliament House Annexe, New Delhi.
MEMBERS PRESENT
RAJYA SABHA
2. Shri Vijay Goel
6. Shri D. Raja
LOK SABHA
9. Shri Ramen Deka
SECRETARIAT
3. Shrimati Arpana Mendiratta, Joint Director
4. Shri Bhupendra Bhaskar, Deputy Director
I. Opening Remarks
2. * * * The chairman then informed the Members about the agenda of the meeting i.e. to consider and
adopt the following draft Reports:-
(i) * * * * (ii) * * * *
*** Relates to other matter.
64
(iii) Draft 195th Report on devastation caused by natural disaster Hudhud cyclone in Andhra
Pradesh and Odisha.

II. * * * *
3.1 * * * *
3.2 One of the Members gave an alternative suggestion recommending for grant of a financial
package directly by the Central Government for the WPRs The Committee agreed to this
suggestion and after a brief discussion the report was adopted.
III. * * * *
4.0 * * * *
IV. Consideration and Adoption of Draft 195th Report
5.1 The Committee then took up the Draft 195th Report on devastation caused by natural
disaster Hudhud cyclone in Andhra Pradesh and Odisha.
5.2 One of the Members gave a suggestion regarding introduction of comprehensive

insurance scheme in the disaster prone areas. The Committee agreed to incorporate this suggestion
and after a brief discussion adopted this report with the above suggestion.
6.0 The Committee also authorized the Chairman to carry out any typographical/factual errors and if
necessary further vetting.
V. * * * *
7.1 * * * *
7.2 * * * *
8.0 * * * *
9.0 * * * *
10.0 The Committee authorized its Chairman to finalise the tour programme and obtain permission of
Hon’ble Chairman, Rajya Sabha.
11.0 A Verbatim record of the Proceeding of the meeting was kept.
12.0 The Committee then adjourned at 10.30 A.M.

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DEPARTMENT-RELATED PARLIAMENTARY STANDING COMMITTEE

ONE HUNDRED NINETY FIFTH REPORT

Devastations caused by Natural Disaster, Hudhud

Rajya Sabha Secretariat, New Delhi

2. INTRODUCTION ...................................................................................................................... (v)-

CHAPTER I Background On Cyclone ‘Hudhud’ ......................................................... 1-4

CHAPTER II Experience of Odisha............................................................................... 5-21

CHAPTER III Impact on Andhra Pradesh ...................................................................... 22-37

CHAPTER IV Disaster Management : The Road Ahead ................................................. 38-46

5. RECOMMENDATIONS/OBSERVATIONS — AT A GLANCE.......................................................... 47-56

6. MINUTES ............................................................................................................................... 57-65

1. Shri P. Bhattacharya — Chairman

2. Shri K. Rahman Khan

11. Shri Prem Singh Chandumajra

1. Shri P. Bhattacharya — Chairman

2. Shri Vijay Goel

11. Shri Prem Singh Chandumajra

I, the Chairman of the Department-related Parliamentary Standing Committee on Home Affairs,

(ii) Annual Report (2014-15) of the Ministry of Home Affairs;

(iii) Outcome Budget (2015-16) of the Ministry of Home Affairs;

(iv) Report of Fourteenth Finance Commission (2015-20);

Agrahayana, 27, 1938 (Saka) Standing Committee on Home Affairs

AIR – All India Radio

APIIC – Andhra Pradesh Industrial Infrastructure Corporation

AMAL – Anakapalle Merchents Association of Lingamurthy

APDRP – Andhra Pradesh Disaster Recovery Project

BDO – Block Development Officer

BSNL – Bharat Sanchar Nigam Limited

BHEL – Bharat Heavy Electricals Limited

BMTPC – Building Materials and Technology Promotion Council

CSS – Centrally Sponsored Schemes

CRS – Catholic Relief Services

CWD – Cyclone Warning Division

CSR – Corporate Social Responsibility

CARE – Cooperative for Assistance and Relief Everywhere

CIAT – Counter Insurgency and anti terrorists

CBO – Community Based Organisation

CPI – Communist Party of India

DDMA – District Disaster Management Authority

DoT – Department of Telecommunication

DRDA – District Rural Development Agency

FFC – Fourteenth Finance Commission GOI –

GIS – Geographic Information System

GOI – Government of India

GoAP – Government of Andhra Pradesh

GVMC – Greater Visakha Municipal Corporation

HPCL – Hindustan Petroleum Corporation Limited

HPVT – Heavy Plates & Vessels Plant

IIT – Indian Institute of Technology

IMG – Inter-Ministerial Group

IAG – Inter Agency Group

IUCN – International Union for Conservation of Nature

IMD – Indian Meteorological Department

IMCT – Inter-Ministerial Central Team

LWE – Left Wing Extremism

MPLADS – Members of Parliament Local Area Development

MHA – Ministry of Home Affairs

NITI – National Institution for Transforming India

NDA – National Democratic Alliance

NGO – Non Governmental Organisation

NCMC – National Crisis Management Committee

NDRF – National Disaster Response Fund

NEC – National Executive Committee