HUDCO’s Role and Contribution in Disaster Preparedness and Mitigation
Structural mitigation is required in all disaster pror
zones, it represents Important possible solutIon to
Introduction
Human settlements are frequently affected by natural disasters — earthquakes, floods, hurricanes, cyclones, landslides—which take a heavy toll on human lives, destroy buildings and Infrastructure and have far reachIng economic and social consequences for communitIes. The vulnerability of human settlements to natural disasters is continuously rising due to the concentration of population and economic activItIes in large uroan agglomerations and the precarious sItuation of low- income settlements in both urban and rural areas
Enormous efforts are being made throughout the world to overcome the problems of natural hazards. However in this decade of the International Decade for Natural Disaster Reouction (iDNDR) of tne uN, wilt arouna only 79 days left for the next millenium a lot more needs to be done in this direction. Even the well-developed countries like USA and Japan have suffered from severe disasters in the recent past. But with an integrated approach to Regional Development Planning with community participation and integrated anoroach to disaster mitigation, these countries have been able to reduce the impact of unexpected disasters to a great extent, over a period of time in addition, these countries are continuous! v engaged in collecting the data!
information, undertaking research on development of disaster pre vent/on and mitigation techniques and creation of an awareness among the manes through series of actions, training and education. Most of the developed countries are still continuously engaged in strengthening their disaster management capabilities in the form of short term and long term strategies in this International Decade for Natural Disaster Reduction (iDNOR)
The Indian Scenario
Based on the size of the problem in India where 59% of its area is vulnerable to one or multiple hazard, an approach for any disaster mitigation programme needs to be conceived at three ieveis i.e. individual community and nationa!. Efforts have to be from multidisciplinary teams w.r.t disaster preparedness in terms of pre-disaster Initiatives as well as post disaster rehabilitatIon. Adequate measures need to be taken at the developniental planning stage of the new habitav township and strengthening/retrofitting measures for the existing structure! building in order to safeguard lives and properties.
Disaster Preparedness
This would cover series of initIatives related to preparedness and prevention and protection to minimise loss of life/property. The success of disaster preparedness is entirely dependent on the following strategies
• risk assessment and degree of efficiency
• forecasting, warning and prediction to be given based on scientific database on occurrence Of impending disasters
• appropriate tools for speedy communications and use of technologies for information flow and evacuation
• imparting public awareness on how to respond in pre disaster situations
• introduction of land use controls, building byelaws and their monitoring
• preparedness and contingency plans at local and national levels
• structural mitigation
v. Suresh
chairman and Managing Director Housing ana Urban Development corporation Ltd (HIJDCOJ
The evacuation and sheitering of ‘likeiy to be affected persons/belongings’ has been successfully organised with increasing degree of efficiency over the years. This Is more successful now in most cases of flooding and cyclone disasters. in the case of earthquakes and landslides, we are still notable to make predictions well in advance that could result in timely warning. However, adequate and quicK timeiy response to symptomatic events can help to a large extent.
Cyclone Shelter
in the cyclone prone coastal areas, the frequency of occurrence and prevalent ecosystems demand provision of alternative to living on the coastline during the cyclone and the subsequent flooding The fishermen community whose bread and butter is dependent on living nearest to the sea does not like to move permanently to the distant places. In India, a coastline of 3000 kms is affected every year by cyciones ana fiooaing
Therefore, one of the successful means to evacuate anc shelter the people likely tO be affected, b~ cyclones include designing and constructing special multi-purpose cyclone resistant community relief shelters, for providing safe and secure accommodation. The cyclone relief shelters can take care of population ranging from SO to 300 people imen, women and childrenl. This should be located at relatively elevated areas, to be protected from floods and also with proviso for community kitchen, ensuring water supply, sanitation, battery operated electric supply, and in some cases, helipad landing facility on roof for relief suppFy, etc.
The structures are provided of particular shapes, which are able to withstand extreme cyclonic storms due to aerodynamic effects. Further, a new initiative has been taken to develop a low cost, anti-cyclone core unit for each family designed to provide for secure deposit of personal belongings, during cyclones in the existing viliages. When the families evacuate, the personal belonging can be stored in the anti cyclone core unit located in base villages. This would help to resume economic activity and livelihood soon, on return.
Protection of sea Front
sea coast protection is done by building coastal revetment to avoid sea erosion, construction of earth bunds and the development of shelter plantation all along the coast line to provide a buffer or cushion against the onslaught of high speed cycionic storms of-ISO to 250 km/hour. The shelter protection plantation belt of casoarina trees which are fast growing and recyclable have substantially helped to protect the human settlements built on the leeward side. other than this, regulatory controls for keeping ne~ settlements at a distance away~ say 200 to 500 meters away from coastline Is also considered to be a precautionary measure.
Structural Mitigation in Seismic Zones
in addition to the various measures that can be covered under pre-disaster activity, another major InitiatIve that can be taken is to ensure the least amount of damages at the time Of occurrence of a the naturai disaster.
reducing the losses in earthquake situations. This can be aone Dy provioing appropriate strengcnenlng of the structure and providing dIsaster resistant features in housing and buildIng construction programmes as per codal provisions to be taken up in different vulnerable areas. However, this can succeed only if the local building regulatory medra through building byelaws Insist on mese features during building aopllcation
For incorporation of disaster resistant structural features in the buildings, the country is divided into seismic zones of various intensity based on a recently compiled ‘Vulnerability Atlas: develooed by the BMTPC. The buildings com~ng under seismic zone no ill, IV & v should receive special attention. Accordingly, for important bulldlngs IS
- 1893 and NBc provide for strengthening measures In seismic zones. SImilarly IS 875 provides for structural strengthening against high winds The AEcoE of cyclone protection housing are.
A	-	Anchorage
B	-	Bracing
c	-	connection
o	-	Detailing	‘f
E	-	External Environment
codes for structural mitigation could be of invaluable use for normal housing and for structures which are constructed by people or what is generally called ‘non- engineered’ buildings. The level of technology inputs have to be left at a workable level by giving the earthquake resistant construction features for walling roofing. foundation, doors and windows fixing etc. using local materials like mud, stone, steel, cement, concrete, roofing material etc. The information of how to effectIvely use local materials for disaster resistant construction would need to be wideiy disseminated by providing graphical interpretation through Do’s and Dotl’ts brochures. Various Indian Standard codes and the National Building Code provide substantial guidance for t~e same.
The large amount o~ coastal housing done over the last decade with various cyclone resistant features have been able to withstand the vagaries of natural disasters well
Post-Disaster Activities
in India, presently the awareness and spread of implementation of pre—disaster initiatives is yet to be wIdely used and in this situatIon the importance of quick response In post disaster situations becomes very Important. Most common problems faced by the population during and after such disasters are
i. Damages to houses and other man made structures
ii. Blocking of Roads
iii. occurrence of fire
iv. Land slides and rock fails causing damages or blockade
v Damage to communication facilIties
vi Failure/Dislocation of essential services like water supply, electricity
vii Bodies buried under debris
vill Panic and rumor problems
ix. Depression in morale of the affected population
x Disruption of law and order and vandalism of public and private properties
xi Lack of presence of emergency shelters
xii. Disposal of human dead bodies, cattle and animals
xiii. ~ac~ of immeniate ana sufficient first aid treatment to injured.
xiv Spread of disease and epidemics
xv. Family separation requIring reunion and psychological trauma
xvi. Evacuation and emergency camping
xvi. Rehabilitation of destitute persons
Many of the above problems can be eliminated or minimised by pre-disaster planning and preparedness, some are taken care of by relief work and emergency aid while others are of a type that need a more permanent solution in the post disaster period.
Immediate Post-Disaster Assistance
This covers efforts for rescuing and providing shelter in either the various relief shelters already constructed eariier or in tne makesnift shelter througn evacuation of public asset buildings like schools, community centres, other community asset buildings including places of worship, etc. as done In Tamil Nadu, orissa and Kerala. Removal of the damaged elements of the structures including ~e~ris ana recovering people wno are eitner injured or deceased also is a very major task that has taken place during the uttarkashi, Latur and Jabaipur Earthquake. The challenge of building on the upper hill regions of the Himalayas is not only of strengthening. It is also of building in the shortest possible time to provide provision for extreme weather conditions and protection from wild animals which prowl such areas.
Reconstruction/Rehabilitation Programme
After the immediate relief is provided to the victims of natural disasters the next step is to start a reconstruction and rehabilitation programme. And the foremost activity is assessing the extent of damages to the houses/buildings. Based on the quick assessment done by the central Govt / State Govt. special team of the damage, an overall package for tne reconstructionlrenabilitation/repair work for the various housing and building and infrastructure work can be taken up.
~uoco has played a very major role in the reconstruction! rehabilitation/repairs and renewal programme of houses! buildings which are either fully or partially damaged through the natural disaster like earthquake, cyclone, flood, sea erosion and land slides some of the salient features on earthquake reconstruction are given in Table 1. Further, retrofittIng covering strengthening of partially damaged buildings and reconstruction in original site is also becoming relevant
Apart from above it was realised that most important requirement was to build the capacities of the local taskforce and communities who are tile first to be able to take necessary pre-disaster as well as post disaster actions in the wake of disasters HIJDCO has endeavou red to do so with Its network of 553 building centres in the country. The beneficiaries getting training in Building centres go to the field and further implement the cost effective and disaster resistant technologies
As most of the non-engineered structures, especially housing, is built by people themselves through petty contractors, it was recognised that an effort was required to translate codal provisions to a simplified local language, which could be understood by local communities Tnis Initiative was taken by HUOCO by dlsseminating on InformatIon using local materials and technology through brochures on Do’s and Don’ts in the local language. HUOCO has also been sensitizing mixed groups of professionals on the benefits and optIons of preparing built environment to mitigate impacts of disaster through its training programmes on disaster mltpgatlon at I4SMI
HUDCOs Role in Disaster Mitigation in India
HUDCO has been on the forefront of disaster mitigation efforts In india. It has played a very major role ln the reconstructlon/rehabulitat$on!repaIrs and renewal!
retrofitting programme of houses/buildings which are either fully or partially damaged through the natural disaster like earthquake, cyclone, flood, sea erosion and land slides HUDCO has been actively associated in the rehabilitation work for the gas victims of Bhopal, earthquake rehabilitation in Uttarkashi, Latur & Jabalpur, re-housing flood victims of Mewat in Haryana and the cyclone-affected people of Andhra Pradesh
HuDco, as a techno-financing institution, is involved in a vanety of efforts towards mitigation - prior, during and post-disaster. The three P’s Prevention, Preparedness and Protection are the keys to the pre-disaster action which is not complete with out understanding and estimating actions which are post-disaster covering the efforts for emergency operation including searcn ana rescue, relief and rapid damage assessment, post-disaster planning, physical reconstruction including efforts of social and economic rehab/litation.
HUDCO, being the only techno-financial institution in housing, has been playing an important role. not only in financing the Housing and Urban Development programmes in disaster affected areas but also looking into the soclo-economic and technology aspects of such projects. Mitigation of the consequences and over coming natural disaster situation with the least possible social and economical cost requires corresponding iegisiatlon giving the possibility for long-term and integrated planning along with niobllisation of trained personnel with due scientific, technical, economic and administrative preparation.
In total, HUOCO has financed the construction Of a total
of 7,32267 dwelling units with a cumulative project cost
Of Ps. 807.69 crores with a HUDCO loan amount Of
Ps. 497.41 crores.
HUDCO has so far assisted for rehabilitation of 72,158 Dwelling Units for victims of Earthquakes at a project cost of P5.120 crores and with a Hl.lDco loan asslstancelKfW grant of Psi 06 crores in the country.
HUDCO nas been assisting for provioing shelter for reconstruction of houses for cyclone victims. HuDC0 has so far assisted for rehabilitation of more than 2,37,232 Dwelling units in cyclone affected areas ata total cost of Ps.291.37 crones with HUOCO loan assistance of Ps.194.89 crores. in aadition, for the recent cyclone and flood in Andhra Pradesh. HUDcO has offered a Dackage of assistance to the extent of P5.190 crores for reconstruction, repairs and rehabilitation programmes
In aadition, HUDcO has also given assistance for rehabilitation of 4,30.083 Dwelling units for victims of flood affected areas at a project cost of Ps. 396.64 crores with a HUDCO loan assistance of Rs.21 5.02 crores.
HUDCO’s Role in Latur
At 3.56 a m. on the 3oth of September 1993 an earthquaxe measuring 64 on the Richter Scale with its epicentre near Killari village in Latur district resulted in the death of 7,928 people and injuring more than 16,000 people. This earthquake devastated 52 villages and nearly 27,000 houses and supporting infrastructure, otner than this arouna 1,90,000 houses suffered damage of various degrees in
2,500 villages across 11 districts of the Marathwada region. Infrastructural facilities worth over Rs 4000 Millions was damaged and the estimated property lost was to the extent of Ps 1,1821 Millions.
The construction programme undertaken by HLJDCO for 4 villages in Maharashtra for rehabilitation Of these earthquake victims is an example of post disaster planning and reconstruction including the social and economic
aspects. construction Of 1519 houses in the four villages
of chincholi- Tapse, Utka , Tungi and Tembhi as taken up, Th~ housing was financed through an overseas grant of Ps. 20 crores from the government of FRG and the KfW. It also established 10 building centres in the affected areas.
HUOCO also provided training and technical suppor through its building centres for promotion of cost effective and appropriate earthquake resistant technology. For creation of an awareness among the technical personnel and general public, H~DC0 published 4 brochures in simple and vernacular languages with simple graphics for different types of buildings/houses prevailing in the area with an emphasis to appropriate, cost effective ano earthquake resistant technoiogies for repair retrofitting/strengthening of damaged structures and new construction to be taken up in future, also as ~ step for LONC TERM APPROACH for disaster mitigation.
Further, retrofitting covering strengthening of partially damaged buildings and reconstruction in original site is also becoming relevant. , IuDcos efforts for retrofitting in Tembe Village in Latur District is a good example on this count Further, the much needed technology transfer would have tO be imparted for people affected by natural disaster through the fieid level technology transfer centres including production centres
On the conclusion Of the Maharashtra Government
Programme for Rehabilitation of Latur earthquake victims,
HLJDCO was awarded a shield for its services towards the
rehabilitation of the affected victims by His Excellency the
Governor of Maharashtra
The case of Jabalpur The tragedy in Jabalpur
More recently tragedy befell the town of .jabalpur and neighboring areas in Madhya Pradesh in the wee hours of May 22, 1997 in form Of a massive earthquake, resulting in the loss of 32 lives, injuring hundreds and destroying thousands of houses and causing major damage to Other oroDerties. Having an intensity of 6 1 on the Richter scale, the epicenter of the earthquake was located about 35 kilometers south of the Jabalpur town in a village called Kosamghat.
According to the survey conducted by HuDco, about 8500 houses had been razed to the ground of which 6000 were in urban areas and 2500 in the rural areas. Besides an estimated 55,000 Houses were fully or partially damaged requiring Reconstruction or maior repairs Of these, 25,00c were houses in the rural areas and 30,000 in the urban areas HUOCO involvement in rehabilitation efforts in Jabalpur range from financing, training, and information dissemination.
Huoco offered to extend a loan package of RS. 1~4 crores for the rehabilitation work at the lowest interest rates of 9% for EWS category and at 13 per cent for LIG category under which the majority of the affected persons fall.
Other than assistance through its ioan financinc mechanism H~OCO also is actively involved in developing the old and the new structures in the region so tnat in case such a mishap reoccurs the damage to life and shelter will be far less.
The existing construction system in Jabalpur did not take into account tne earthquake resistant features for foundations, wailing roofing and other elements as was clearly visible from the extent of damages suffered by the buildings The need for introducing earthquake resistant features in the reconstruction of houses wa recognised and HUDCO promised to provide necessar~
coliapse
Total collapse of building
clearing site and reconstruction
technical inputs En the form of brochures indicating KDos & Don’tsm in Hindi to be widely disseminated. For the effective Implementation of these technologies HUDCO simpiified these technical documents. These brochures have been brought out in association with Building Materials and Technology Promotion council (BMTPC) and the MP Government, under the overall guidance of Dr AS Arya, an internationally renowned earthquake-engineering expert The brochures are in Hindi for wider and better dissemination among the oeoole of the affected area These include guidelines for construction of earthquake resistant houses using bricks (for predominant urban applications), using mud (for preoominant rurai appilcations) as also for repairsi strengtheningl retrofitting of buildings and mud houses. The technIcal brochures on retrofitting were infact the first of its kind ever brought out in such a simple form.
Recognising the urgent need to create awareness and to train the local artisans in the cost-effective earthquake resistant technologies, HUDCO launched an comprehensive training programme The training programmes included training for master artisans, who could subsequently train other local artisans to propagate the technologies as also exclusive training to the supervisors and engineers of the implementing agencies especially for the engIneers of Rural Engineering Services. DROA, PWD. MPHB, JDA. Municipal corporation, Builders, Architects etc
With a long term view to transfer technologies and training of iocai artisans, HUDCO nas sanctioned 5 Builaing centres to be located in Jabalpur, four in rural area and one in urban area, with total grant amounting to R5 I crore. Each of the Building centers could receive a maximum grant of Ps 20 lakhs. HIJDCO would also give assistance for putting up five model houses of various sizes in each of the five Building centres, which will give appropriate information and guidance to the local population
H~DCO has so far sanctioned ~s 57.97 crores for the construction of 7424 housIng units and repair!
retrofitting of 12733 unIts In .labalpur and nearby
affected areas.
Huoco in association with the MP State Apex cooperative Bank, have jointly organised more than 80 camps covering most of me affecteo viiiages in an effort to eaucate tne affected citizens about the simple loan application procedures,
Rehabilitation of Gas Victims in Shopal
On the stillness of the night of the 2~~d of oecember 1984, the capital city of Madhya Pradesh, Bhopal was affected by a grave tragedy Many Fives were lost and more than 3000 families became shelterless due to a fatal gas leakage from the union carbide Plant This unfortunate incident
has left a permanent dent on the minds of not only the affected people but also citizens in Madhya Pradesh, ~ll over India and the world. The Government of India in a effort to relieve the hardships of the affected people decided to provide them with a housing away from the location of the Union carbide Plant
in response to a request from the Madhya Pradesh Government, HLIDCO took on tne challenge to design tne houses for the beneficiaries who were in ill health and could not climb to upper floors. It decided to provide a “low rise high density development with traditional cluster planning”. in this scheme houses were planned around a community courtyard to encourage social bondage among the beneficiaries 2071 houses were constructed which had a project cost of 93L36 lakhs in which HUDCO’s loan assistance was 692.67 laths. This scheme was very well received by the beneficiaries and the larger community It received the “Excellence in Architecture” award from the indian institute of Architects in 1990 and was selected as one of the best five projects for the World Habitat Award in 1992 Besides technical assistance, the required financial assistance was also provided by HUDCO
Conclusion
Based on its experience HUDcO has for some time now been strongly advocating countr\,wide action for disaster mitigation It believes that only the institution of a efficient Techno-legal and a Techno-financal regIme could ensure that all the new buildings constructed In the regions prone to natural calamities would have adequate protection measures before the local bodies accord any statutory clearance to Et. These features would incur an addItional expenditure of only about two-percent of tne total cost of the building. However, incorporation of such technological features in the buildings would considerably help minimize the extent Of damage in the event Of natural calamities like earthquake, cyclone and floods, It wouio tnerefore be seen HUDcO nas been in the development both facets of application Of natural disaster mitigation programmes i.e as a pre-dlsaster activIty and the second as a post-disaster activIty wherein the elements that contribute to tne mitigation of damages in both the situations can have substantial relevance for reduction in loss of properties, human beings and animals
Recently the Government of Maharastra as a follow up of the Maharastra Emergency Earthquake and Rehabilitation Programme has take up the important and ambitious plan to formulate and implement a Maharastra Disaster Miti gation plan. For this purpose a It had recently convened a international workshop in which all stakeholders in this process were present to contribute towards the preparation of this state plan which is based on the accumulation Of oistrlct Disaster Mitigation Plans. This inoeeo isa positive step in tne right airection, wnich needs to be supported and followed by all other states in India.
TABLE I
CATEGORY OF DAMAGE
slight non- structural
Damage
Moderate structural
Oamage
Heavy structurar Damage
EXTENT OF DAMAGE
Fine cracks in plaster fall of small pieces of plaster.
smaii cracks p waiis, Fairly large pieces of piaster, siates slip off, cracks In chimneys, fail
Large and deep cracks in wails, chimneys fall Load carrying capacity of the buiiding is partially reduced,
RWEDIAL MEASURES
Building need not be vacated
Only architectural repairs needed. Buiiding need not be vacated. Architecturai repairs reouired to achieve parts o~ chimney’s durabiilty,
Building needs to be vacated and reoccupied oniy after structurai restoration and seismic strengthening
severe structural Oamage
caps in waiis. parts of buildings may coilapse. separate parts of building iose cohesion and show relative movement, inner walls collapse Approx. 50 per cent of the main structural elements faii.
Buliding has to be vacated Either the building has to be demolIshed or extensive structural restoration and seismIc strengthening work has tO be undertaken.
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