Chapter2:

Disaster Risk Management

 2.1 Disaster Risk Management Cycle

• The systematic process of using administrative directives, organizations, and operational skills and capacities
to implement strategies, policies and activities to lessen the adverse impacts of hazards and the possibility of
disaster is called disaster risk management.
• As a process, disaster risk management translates the concept of disaster risk reduction into action done in a
systematic process.
• It is why; the term disaster risk management is commonly used in Disaster Management programmes as this
highlights the implementation of the key areas of disaster risk reduction.
• In simple terms, disaster risk management is the practice while disaster risk reduction is the concept that
guides the practice
 2.2 Tools for Disaster Risk Assessment

•It is described that the community disaster risk assessment as a “participatory process of determining the nature,
scope and magnitude of negative effects of hazards to the community and its households within an anticipated time
period.”
•Step 1: identifies hazards in the community. Its output should identify, list down and describe the nature of hazards
in terms of its recurrence, seasonality, and location, possibility of early warning and general knowledge of the
people about the hazard.
•Step 2: captures the hazards, vulnerability and natural resources and facilities of the community in community
and/or digitized maps.
•Step 3: identifies and assesses the vulnerabilities and capacities of the community in general but makes sure that
there is gender disaggregation of data; special needs groups like the children and disabled are given utmost
considerations as well.
•Community disaster risk assessment also facilitates a process of “determining the probable or likely negative effect
(damage and loss) on elements at risk (people – lives and health; household and community structures, facilities and
services – houses, schools, hospitals; livelihood and economic activities (jobs, equipment, crops, livestock); lifelines
– access to roads and bridges)” (ADPC, CBDRM).
 2.2 Tools for Disaster Risk Assessment

1. Participatory Disaster Risk Assessment (PDRA)

•PDRA is both a dialogue and a negotiated process
•involving those at risk, authorities and other stakeholders.
•It is a process whereby all parties concerned collect and analyze disaster risks information
•in order to make appropriate plans and implement concrete actions to reduce and/or eliminate disaster risks that will
adversely affect their lives.
•PDRA is the basis for Participatory Disaster Risk Management Planning.
•This is founded on the belief that local people can and will help themselves to prevent or reduce disaster risks.
•“For the people, by the people, to the people” concept.
•Datas are qualitative. i.e you cannot express in terms of numerical values
 2.2 Tools for Disaster Risk Assessment

2. PRA
•PRA uses participatory rural appraisal tools in community disaster risk assessment and planning.
•Use of PRA in community risk assessment invites community participation, lively exchange of ideas, and negotiated
decisions between the community and other stakeholders.
•PRA was developed in India and Kenya during the early 80s and since then has been widely used by development
workers and practitioners of CBDRM. PDRA and PRA share the same goal of community empowerment and
promote the same principles of participation, reflection and action.
•Datas are quantitative. i.e you can express in terms of numerical values

•Facilitation:
•In PDRA, team members facilitate discussions using PRA tools. Each group has a facilitator to moderate group
discussions and a note-taker to record the minutes of discussions and observations on community processes.
•As a general rule, PDRA facilitators should ensure that every member of the group is given the opportunity to share
and that no one dominates the discussion or makes the decision for the group.
•There should also be no physical barriers like tables separating the facilitators and community members.
•Forming groups in circles allows everyone to interact with each other.
 2.2 Tools for Disaster Risk Assessment

2. PRA
•PRA Tools Used in Disaster Risk Assessment
a) Timeline
• is a very simple tool that narrates the disaster history and significant events that happened in the community. One
column gives the year and the other column lists down the events that took place.

Time Line Events

1994 Normal annual flood and road project

1996 Big flood and occurrence of swamp fever

1999 Normal annual flood

2001 Normal annual flood, availability of telephone and water utilities Big
flood

2002 Big flood, occurrence of leptospirosis, then followed by long drought

2003 Normal annual flood, dengue, road project

2004 Normal annual flood, dengue, road project

 2.2 Tools for Disaster Risk Assessment

2. PRA
•PRA Tools Used in Disaster Risk Assessment
b) Seasonal calendar
contains a lot of information about seasonal changes and
related hazards, diseases, community events and other
information related to specific months of the year.
 2.2 Tools for Disaster Risk Assessment
Table : Historical Transect Period Events
2. PRA 1960-1970 Ocean was quite far from the roads and
c) Transect: streets
There were many trees around.
•Transect is a highly enjoyable activity since this involves There were many fishes to catch.
Only few houses near the river.
walking in the community Rice fields were small due to absence of
irrigation system.
•following a certain path or direction. Only few people were living in the
mountains.
There were many birds
Historical Transect: Easy living
• Historical transect is the graphic presentation of the 1970-1980 Same environment as years 1960 – 1970
but there were more residents and houses
history of disasters and development in the community. as before.
Community members can review their history based on 1980-1990 Started cutting the trees.
a ten-year or a five year period. Birds were few
People started to plant bananas
The rice fields widened because of the
presence of irrigation system.
Residential houses expanded.

1990-2000 Seashores expanded toward the streets.

More people were living near the shore
and mountains.
Many people cut coconut trees and plants.
Few fishes
Few birds
 2.2 Tools for Disaster Risk Assessment

2. PRA
d) Ranking:
•Analyzing problems or weighing solutions can be facilitated by the use of ranking exercises.
•One very useful tool is to use different sizes of leaves or stones to order the problems, needs or solutions.
•Leaves and stones do not cost anything and are found everywhere in the community.
•Ranking is usually a long exercise because community members discuss the reasons why problems or needs must
be order in such a way.
•The value of this exercise to the community is that it facilitates discussion and negotiation.
 2.2 Tools for Disaster Risk Assessment

2. PRA
d) Ranking: matrix ranking
D.1 Matrix Ranking:
lightening
•Ranking tools are used to prioritize hazards or disaster
risks, needs or options.
storm
•There are many variations of ranking.
•The example below uses a set of criteria to determine volcano
the impact of the disasters on people’s lives.
•The community members use beans to rank the hazards. earthquake
Ten beans are used to indicate the most significant
indicator and 1 bean to indicate the least significant flood
indicator.
D.2 Proportional piling landslide
•another tool to rank priorities.
0 1 2 3 4 5 6 7 8 9
•Using piles of beans or corn seeds to rank is more matrix ranking
flexible than using markers.
•Community members can add or reduce the number of
corn seeds.
 2.2 Tools for Disaster Risk Assessment
 Capacities Vulnerabilities
2. PRA Physical/Material Hazards: Flooding (annual flood, big
e) Data Collation Using CVA Framework: What productive resources, skills, and flood); floods
hazards exist? happen every year for the past 10 years;
Capacity and vulnerability go hand in hand biggest flood
was in 1996 and 2002
Houses are along the river banks;
houses expanding
along the river
Water system is bad; lack of clean water

Social/Organizational Crimes committed in the community

What are the relations and Drug addiction among the young
organizations among people?

Motivational/ Attitudinal
How does the community view its ability to create change?
Risk Perceptions Flood is accident
It is not will by God.

Capacities
Availability of early warning system in case of flood
Availability of communication facilities like phones
Many people know how to swim
 2.3 Post Disaster Management

a) Rescue and response

 Search and rescue, providing immediate assistance, assessing
damage
 The aim of emergency response is to provide immediate
assistance to maintain life, improve health and support the
morale of the affected population.
 Such assistance may range from providing specific but
limited aid, such as assisting refugees with transport,
temporary shelter, and food to establishing semi-permanent
settlements in camps and other locations.
 It also may involve initial repairs to damaged or diversion to
infrastructure.
 The focus in the response phase is on keeping people safe,
preventing the next disasters and meeting the basic needs of
the people until more permanent and sustainable solutions can
be found.
 The main responsibility to address these needs and respond to
a disaster lies with the government or governments in whose
territory the disaster has occurred.
 2.3 Post Disaster Management
b) Emergency relief
 Emergency water supply and sanitation

• The aftermath of a natural disaster can severely disrupt and

contaminate water supplies, further increasing the risk of
death and illness.

• Along with medical aid, existing provision of clean

drinking water and basic sanitation are therefore vital in the
period immediately after a major disaster.
 Logistical planning
• Establishing access to disaster struck areas and planning for
provision of emergency supplies

• access for relief workers is a key challenge facing agencies

in the immediate and often chaotic aftermath of disaster.

• Ensuring land and securing harvests, seeds livestock and

food production often takes priority over shelter in rural
communities in developing countries. 
2.3 Post Disaster Management
Relief shelters and sheltering material
• Relief shelters may be needed to protect people from the elements
after a disaster.

• They have to be strong, microclimatically appropriate and easy to

install.

• They should also be sensitively designed for habitation by people

who are likely to have been traumatized.

• They may be in active use for several years after reconstruction

has been underway

• Designs should be lightweight and removable to permit re-use

elsewhere.
 Project planning and management
• Once basic and essential services are re-established, there is an
immediate need for professionals to establish good lines of
communication with each other, the local community and the
relevant authorities.

• to assess the immediate and medium term priorities for affected

communities and local authorities, come up with a strategic
action plan and plan, manage and implement recovery projects.
 2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures undertaken by the
Government of Nepal
• The devastating earthquake of 7.8 in Richter scale that struck the country with its epicenter at Mandre, Barpak VDC-
02, Gorkha at 11:56 am on 2072 Baisakh 12 (corresponding to 25 April 2015) and its frequent aftershocks chiefly the
two fatal ones dated 26 April and 12 May 2015
• The Government has declared the fourteen districts (Gorkha, Kavrepalanchok, Dhading, Nuwakot, Rasuwa,
Sindupalchok, Dolakha, Ramechhap, Okhaldunga, Makwanpur, Sindhuli, Kathmandu, Bhaktapur and Lalitpur) as the
crisis-hit districts and started rescue and relief works. In view of such a large scale of devastation, the Government of
Nepal has taken various initiatives for rescue, relief and rehabilitation as well as reconstruction works. They are as
follows:
• 1.Immediate Response:
• By enforcing the Essential Services Operation Act, 1957, the Government ensured the supply of essential goods and
services to the affected region. The Central Natural Disaster Relief Committee (CNDRC) has been coordinating and
overseeing all the rescue and relief works.
• The Ministry of Foreign Affairs regularly briefed the diplomatic community in Kathmandu on the ongoing rescue and
relief operations, and urged for assistance in such hour of great tragedy.
 2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures undertaken by the
Government of Nepal
• 2.Relief, Rehabilitation and Reconstruction Measures:
• The Government constructed temporary safe shelters in sixteen different parts of the valley. A Cabinet-level decision
was taken on 30 April 2015 on the various relief measures, some of them were changed/modified from time to time to
make them more realistic:
• a. Cremation Cost and Assistance to the Family of Victims:
• Family that has lost its member in the earthquake will get NPR 40,000.00 per dead person as cremation cost, which
was increased from previously stated NPR 15,000.00 per person. Additionally, the Government will provide a fixed
sum of NPR 100,000.00 to each family that has lost its one or more members (i.e. losing more than one member will
not multiply this amount).
• b. Temporary Shelters/Rehabilitation of those Rendered Homeless:
• The Government is committed to ensuring that all the affected population in the crisis-hit districts got tents/tarpaulin
and other basic items and making necessary arrangements for resettling them safely. Those who wish to repair their
partially damaged houses will get a sum of NPR 25,000.00 per family as maintenance cost. And those who wish to
rebuild their houses on their own will get a relief assistance of NPR 200,000.00 plus a concessional loan up to NPR
25,00,000.00 in the valley and NPR 15,00,000.00 outside the valley at just two per cent interest rate under "Earthquake
Victim Special Loan" scheme. The Government later decided to provide tin-sheets or NPR 15,000.00 to each affected
family for managing a temporary accommodation in view of the coming monsoon. This amount together with all other
relief amounts previously provided will be deducted from the relief of NPR 200,000.00 to be provided to the victims
later.
 2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures
undertaken by the Government of Nepal

• c. Rehabilitation and Reconstruction Plan backed by the NRRF:

• An appropriate plan of land pooling for rehabilitation in the affected areas with adequate facilities
will be implemented.
• The Government has announced to rebuild all the damaged structures of the individuals, the
public houses/infrastructures and the heritages devastated by the earthquake in one year, two
years and five years respectively.
• The National Planning Commission (NPC) has recommended a low-cost model of houses to the
Government for necessary approval.
• A National Reconstruction Consultation Committee under the chairmanship of the Prime Minister
has also been formed to make the reconstruction campaign more effective and coordinated. The
Committee had its first meeting on 26 and 27 May 2015.
 2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures
undertaken by the Government of Nepal

• d. Priority Items:
• The Government of Nepal issued an indicative list of priority items (that cover shelter, food,
hygiene, clothes; drug and surgical items and construction; emergency veterinary medicines,
vaccines, disinfectants and feeds; and agricultural nutrients) required in connection with the
immediate relief operations.
• e. Injured in the Earthquake:
• The Government initially decided to provide NPR 25,000.00 per injured person to the hospitals
that are providing treatment facilities to the people injured in the earthquake, through the Ministry
of Health and Population for treating more serious injuries.
• f. Information Dissemination:
• The Government has effectively disseminated, through different mediums of communication, all
types of information for the safety, security and well-being of its citizens.
2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures
undertaken by the Government of Nepal
• 3. Data Collection:
• With a view to collecting data on the loss of lives/properties with all vital details, the
Government has sent various teams to the affected districts.
• For maintaining uniformity of the data and also to manage the teams
• The data will be utilized for effective relief, rehabilitation and reconstruction works.
• 4.International Donors' Conference:
• The Government of Nepal will organize an International Donors' Conference on post-
earthquake reconstruction and rehabilitation works, after completing a
comprehensive need assessment, in Kathmandu on 25 June 2015.
• 5.Call for Contributions to PMDRF:
• The Government has advised all the contributors (countries, organizations and
individuals) both at home and abroad to contribute to the Prime Minister's Disaster
Relief Fund (PMDRF) to reach out to the real victims of the earthquake.
• NPR 4,210,032,106.00 has been collected including NPR 745891.00 through online
transfers.
2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures undertaken by the
Government of Nepal

• 6.Resolution Motion of the Government's Response:

• To implement the instructions, the Government has prepared and has put into effect
the Integrated Action Plan for Post-Earthquakes Response and Recovery, 2072. Some
important ones are as follows:
 Constructing temporary emergency shelters for the earthquake affected senior
citizens, single women, diseased, pregnant and new mothers, disabled, etc.
 Providing the children who have lost their guardians/parents in the earthquake and
those who are rendered homeless with shelters and free education
 Making necessary arrangements for providing the affected farmers with free of cost
seeds and subsidies for fertilizers.
 Making a review of the National Building Code, 2060 and ensure its effective
enforcement.
 Undertaking a review of the land-use policy.
 Dismantling the cracked structures that pose dangers. Also, dismantling the structures
at the cost of the owners who built the houses by violating the building codes.
 2.3.1 Post-Earthquake Relief, Rehabilitation and Reconstruction Measures undertaken by the
Government of Nepal
• 7.Deployment of Youth Volunteers:
• There is a plan to deploy youth volunteers to assist in rescue, relief and rehabilitations works.
• 8.Earthquake Victim Identity Card:
• Necessary arrangements are underway to issue “Earthquake Victims’ Family Identity Card" to
each family
• 9.Nepalese Missions Abroad:
• The Government instructed all the Nepalese missions abroad to
• 1. Open an account for the ease of contributors and send the collected amount periodically to the
PMDRF
• 2. Inform the contributors about the online facility to make generous contributions through their
VISA/MASTER Cards
• 3. Make an appeal to contribute to the Government's plan for post-earthquake rehabilitation and
reconstruction through NRRF. The missions abroad have been sending the collected amounts to
the PMDRF, and the total amount deposited through the missions as of 01 June 2015 is NPR
662061998.78.
2.4 Government Regulations, Policies and Legal Framework of Disaster Risk Management

•2.4.1 Age of Evolution: Pioneering Efforts

•Ages before written concepts of disaster management exist, people have been striving to respond and mitigate the impact of
hazard events.
•When a massive scarcity struck India of 1630 to 1632, the builder of Taj Mahal in Agra who ruled India – Shah Jahan initiated the
first recorded relief operation by spending one eleventh of the total kingdom’s revenue to provide soup kitchens to the people
affected by the famine.
•2.4.2 Age of Realization: Applying Lessons of Development Practice
•Development practice and the three previous approaches mentioned had always run a parallel course.
•disaster management activities which do not factor in development principles only provide post traumatic relief to disaster events.
•These realizations providing an opportunity for disaster management practitioners to review the approaches based on development
principles which resulted to the following lessons learnt:
•a. Failure to involve the people: Because of their reliance on specialized technologies and professional skills, many programs are
carried out without the involvement of local people and their organizations in planning and decision ‐making.
• 
•b. Failure to address vulnerability: Many programs respond to a particular hazard type in a specific and limited time period. As
such, they cannot address vulnerability, which is a complex relationship between people and their social, physical and economic
environment.
 
•c. Susceptibility to manipulation: Because of the concentration of power and knowledge within a centralized management,
2.4 Government Regulations, Policies and Legal Framework of Disaster Risk Management
•2.4.3 Disaster risk management acts, codes and regulations
• For the first time, in 1982 the Natural Disaster Relief Act (NDRA) also known as the Natural Calamity Relief Act
(NCRA)
• National Strategy for Disaster Risk Management in Nepal (NSDRM), 2009 was formulated which is replaced by
currently endorsed Disaster Risk Reduction and Management Act, 2017.
•Soil and Watershed Conservation Act (1982) is one of the major DRM acts which has defined soil and water
conservation as a function of controlling and saving landslides, floods and soil erosion.
•Water Resource Act (1992) focuses to minimize adverse effect on environment by way of soil erosion, flood, landslide
or similar other causes.
•Forest Act, 1993 aims to design comprehensive structure of forest resources in Nepal from the perspective of disaster
management. Environment Protection Act,
•Currently endorsed Disaster Risk Reduction and Management Act, 2017 has made provision of effective disaster risk
management throughout the disaster management cycle-preparedness, response and rehabilitation and mitigation
(MoLJCAPA, 2017). This Act replaces the Natural Calamity Relief Act of 1982.
•Natural Calamity Relief Act, 1982 did not cover the broader spectrum of hazard mitigation and disaster risk
management and categorization of the diversified disasters of Nepal which require different attention.
•The new Act can be considered as an umbrella Act that covers the whole spectrum of disaster risk management from
preparedness phase to response, relief and rehabilitation.
 Local level policies, legislation, standards, plan implementation, monitoring and evaluation
related to disaster management
 Disaster preparedness and response plan, early warning system,
 search and rescue, advance store of relief materials, distribution and coordination at local level
 Local embankment, river and landslide control, river management and evaluation
 Hazard mapping and identification of settlements at risk and transformation
 Coordination between federal, state and local level and local community organizations and
coordination with private sector in order to disaster management
 Establishment of disaster management fund and operation and utilization of resources
 Plan formulation, implementation, monitoring and evaluation for disaster risk reduction
 Resettlement and rehabilitation after disaster
 Data management and study and research about local level disaster
 Development of local emergency work operation system
 Implementation of community based disaster management.
2.4 Government Regulations, Policies and Legal Framework of Disaster Risk Management
2.4.4 Role of the Ministry of Home Affairs in Disaster Management:
•According to the NCRA, 1982, the Ministry of Home Affairs is the apex body for disaster
management in Nepal.
•Formulation of national disaster policies and their implementation, preparedness and mitigation of
disasters, immediate rescue and relief works
•data collection and dissemination, collection and distribution of funds and resources are major
responsibilities of the Ministry.
•There is National Emergency Operation Centre (NEOC) under the Ministry of Home Affairs
(MoHA) to collect data and information on disaster from all over the country and disseminate them
in due time.
•There are 5 Regions and 75 administrative districts in the country. In the five Regions there are 5
Regional Administrators and in each of the 75 districts there is Chief District Officer (CDO) as the
district administrator who acts as the crisis manager at the time of natural disasters.
•The MoHA has the nationwide network. Hence, it is the key agency for immediate response during
disasters and has to play a leading role in managing the natural disasters in the country.