Management Urban Flooding

National Disaster
Management Guidelines
Management of Urban Flooding

National Disaster Management Guidelines: Management of Urban Flooding
A publication of:
National Disaster Management Authority
Government of India
NDMA Bhawan
A-1, Safdarjung Enclave
New Delhi - 110 029
ISBN: 978-93-80440-09-5
No. of Copies: 4000
September 2010
When citing this report, the following citation should be used:
National Disaster Management Guidelines: Management of Urban Flooding.
A publication of the National Disaster Management Authority, Government of India.
ISBN: 978-93-80440-09-5, September 2010, New Delhi.
National Disaster Management Guidelines: Management of Urban Flooding has been formulated
under the Chairmanship of Shri M. Shashidhar Reddy, MLA and Hon'ble Member, NDMA in
consultation with various stakeholders, academic experts and specialists in the concerned subject
and officials from the Ministries and Departments of Government of India and State Governments.
Inputs were also received from US participants in the Indo-US workshop organised on January
7-9, 2009.
National Disaster
Management Guidelines
Management of Urban Flooding

Government of India
iv
Contents
Foreword ix
Acknowledgements xi
Abbreviations xiii
Glossary of Terms xvii
List of Tables and Figures xxi
Executive Summary xxiii
1 Introduction 1
1.1 Overview 1
1.2 Urban Flooding is Different 1
1.3 Contributory Factors 2
1.4 Trend of Urbanization in India 2
1.5 Census Towns 3
1.6 Urbanisation and Pressure on Land 4
1.7 Weather Systems causing Rainfall 4
1.8 Rainfall Description Terms 6
1.9 Monthly Variability of Rainfall 6
1.10 Micro-Climate and Urban Heat Island Effect 8
1.11 Climate Change 9
1.12 City Scenarios 11
1.13 Genesis of National Guidelines 12
2 Institutional Framework and Arrangements 14

2.1 Institutional Framework 14
2.2 Role of Central Ministries and Departments 18
2.3 The State Governments 23
2.4 Urban Local Bodies 23
2.5 Urban Development Authorities 24
2.6 Cantonment Boards 24
2.7 Notified Area Councils 25
3 Early Warning System and Communication 26

3.1 Overview 26
3.2 Data Networks for Monitoring and Early Warning 26
3.3 National Hydro-meteorological Network 26
3.4 National Meteorological Network 27
v
CONTENTS
3.5 Regional Networks 27

3.6 Local Networks for Real-Time Rainfall Data 27
3.7 Doppler Weather Radars 29
3.8 Data Integration and Sharing 30
3.9 National Hydrological Information System 30
3.10 Sensor Web Development - A Service-Oriented Architecture Approach 30
3.11 Infrastructure and other Baseline Data 31
3.12 Flood Early Warning System 32
3.13 Operational Support 33
3.14 Measurement of Flood Levels 33
3.15 Decision Support System 34
3.16 Flood Alert System 36
3.17 Road Map 36
3.18 Establishing Technical Umbrella for Urban Flood Forecasting and Warning 38
4 Design and Management of Urban Drainage System 40

4.1 Overview 40
4.2 International Status 40
4.3 National Status 41
4.4 Drainage Systems 42
4.5 Stormwater Drainage System Inventory 42
4.6 Requirements for Urban Drainage Design 43
4.7 Catchment as basis for Design 43
4.8 Contour Data 43
4.9 Rainfall Requirements 43
4.10 Real-Time Rainfall Data 44
4.11 Runoff Co-efficient for Long Term Planning 45
4.12 Operation and Maintenance 45
4.13 Special Design Considerations 47
4.14 Best Management Practices 48
4.15 Source Control 48
4.16 Rainwater Harvesting 49
4.17 Rain Gardens 50
4.18 Water Bodies 50
4.19 Detention Ponds 51
4.20 Lined Channels 51
4.21 Integrated Planning and Interactions 51
4.22 Specific Adaptation Strategies for Cities 52
4.23 Encroachments 53
vi
CONTENTS
5 Urban Flood Disaster Risk Management 54

5.1 Overview 54
5.2 Issues in Urban Flood Disaster Risk Management 55
5.3 Watershed as Basis for Management of Urban Flooding 57
5.4 Vulnerability Analysis and Risk Assessment 58
5.5 Estimation of Possible Inundation levels 59
5.6 Estimation of Flood Damages 60
5.7 Ward level Risk Reduction and Vulnerability Assessment 61
5.8 Reducing Vulnerability 62
5.9 Spatial Decision Support Systems for Urban Flood Management 63
5.10 National Database for Mapping Attributes 63
5.11 National Urban Information Systems 64
5.12 State Urban Flood Disaster Management Information System 65
5.13 Data Providers for Disaster Risk Management 66
5.14 Updating of Database through Additional Surveys 67
5.15 Development Planning for Disaster Reduction 69
5.16 Flood Management Master Planning Process 69
5.17 Urban Flooding Cells 70
5.18 Participatory Planning 71
5.19 Rapid Assessment Flood Inundation Mapping for Mumbai 73
5.20 Early Warning System for Urban Flood Management in Chennai 74
5.21 Urban Flood Impact Assessment for Hyderabad 74
6 Techno-Legal Regime 75
6.1 Overview 75
6.2 Town Planning in Ancient India 75
6.3 Legal Support for Planned Development of Urban Areas 76
6.4 Central Legislation/ Guidelines 76
6.5 Study by Experts Committee (2004) 79
6.6 Subsequent Amendments 79
6.7 Urban Sprawl 85
7 Response 86
7.1 Overview 86
7.2 City Disaster Management Plan 87
7.3 Response Actions 87
7.4 Emergency Response 89
7.5 Specialised Response Teams 91
7.6 Medical Preparedness and Response 93
7.7 Involvement of the Corporate Sector 94
7.8 Challenges in Responding to Urban Flooding 95
vii
CONTENTS
7.9 Challenges to Evolve Disaster Response Capability 95

7.10 Disaster Response Mechanism 96
8 Capacity Development, Awareness 98

Generation and Documentation
8.1 Overview 98
8.2 Urban Flood Education 98
8.3 Target Groups for Capacity Development 99
8.4 Institutional Capacity Development 100
8.5 Community Capacity Development 100
8.6 Mock Drills 101
8.7 Role of Civil Society 101
8.8 Handling Societal Impacts of Urban Flooding 102
8.9 Objectives of Awareness Generation 105
8.10 Target Groups 106
8.11 Household Level 106
8.12 Community Level 107
8.13 Institutional Level 107
8.14 Role of Public Representatives 108
8.15 Role of Media 108
8.16 Linking Awareness to Techno-Legal Regime 109
8.17 Awareness on Insurance 109
8.18 Documentation 110
8.19 International Experiences 111
8.20 Indian Experiences 114
9 Implementation of the Guidelines:

Preparation of DM Plans 119
9.1 Overview 119
9.2 Mainstreaming DM into Development 119
9.3 Role of Nodal Ministry 120
9.4 Implementing the Guidelines 120
9.5 Implementation and Coordination at the National Level 121
9.6 Institutional Mechanisms and Coordination at State and ULB Levels 122
9.7 Financial Arrangements for Implementation 122
9.8 Implementation Model 123
10 Summary of Action Points 124
Contributors 142
Contact Us 160
viii
Vice Chairman
Government of India
FOREWORD
Urban flooding has been experienced over decades in India but sufficient attention was not given
to specific efforts to deal with it. In the past, any strategy on flood disaster management largely focused
on riverine floods affecting large extents of rural areas. Urban flooding is significantly different from rural
flooding as urbanisation leads to developed catchments and in the event of heavy/ high intensity rainfall
there is higher runoff which increases the flood peaks from 1.8 to 8 times and flood volumes up to 6
times. Consequently, flooding occurs very quickly due to faster flow times, sometimes in a matter of
minutes. Taking this into account, NDMA has de-linked Urban Flooding from the subject of (riverine)
Floods for the first time and commenced its efforts to come up with separate guidelines.
The National Guidelines for the Management of Urban Flooding have been formulated after a
'nine step' process taking on board, various Central Ministries, Departments, States and UTs and
several Urban Local Bodies and Development Authorities. The process also included wide consultations
with experts from scientific, technical and academic institutions and humanitarian organisations. The
draft guidelines document was circulated to all the Ministries/ Departments at the Centre and the States/
UTs and ULBs for their feedback. All workable suggestions have been incorporated.
These guidelines will give a boost to the efforts for urban flood disaster management and strengthen
the national vision of moving towards a more proactive pre-disaster preparedness and mitigation-
centric approach. These contain all the details that are required by planners and implementers and will
help in the preparation of plans by the Central Ministries/ Departments and the States/ UTs.
I am grateful to the members of the core group, steering committee and all others who contributed
to this effort. Finally, I am pleased to place on record my sincere appreciation for Shri M. Shashidhar
Reddy, MLA and Member, NDMA, who guided and coordinated the entire process of putting together
this document which is looking at Urban Flooding in a holistic manner for the first time.
New Delhi General NC Vij

27 September 2010 PVSM, UYSM, AVSM (Retd)
ix
Member
Government of India
ACKNOWLEDGEMENTS
Evolving the National Guidelines for Management of Urban Flooding has been very challenging
since this is the first ever document being put together on this subject in India, looking at Urban Flooding
in a holistic manner. I am thankful to the members of the Core Group and Steering Committee for their
efforts in helping NDMA in this task. I must place on record my very sincere appreciation of the untiring
efforts made by Prof. Kapil Gupta, Department of Civil Engineering, Indian Institute of Technology
Bombay and for his contribution, valuable inputs and feedback.
I would also like to express my sincere thanks to the representatives of various concerned central
ministries and departments, experts from S&T and academic institutions, representatives from States/
UTs and urban local bodies, experts from national and state level institutions and all other key stakeholders
for their valuable contributions that helped us to build the contents of the document. I would also like to
place on record my appreciation for the contributions made by the US participants in the Indo-US
Workshop held in Hyderabad in January 2009.
We have also referred to a large number of reports and technical documents, etc., from both
within the country and outside, besides several websites, which have not been cited in the Guidelines.
I wish to acknowledge all the inputs so derived.
I am also happy to acknowledge the support extended by my SRO Dr. Susanta Kumar Jena, my
personal staff Mr. Srinivasulu Gunda, Mr. K. Ramprasad Babu and Mr. Ch. Gangadhar Rao during
the various workshops and meetings and for all their assistance in the preparation of these Guidelines.
I also wish to acknowledge the support extended by the NDMA Administration.
xi
Finally, I would like to express my gratitude to General N.C. Vij, PVSM, UYSM, AVSM (Retd),
Vice Chairman, NDMA for his valuable guidance and constructive criticism at various stages of the
preparation of the Guidelines. I must also acknowledge my gratitude to the distinguished Members of
the NDMA for their valuable insights and feedback.
New Delhi M. Shashidhar Reddy, MLA

27 September 2010
xii
Abbreviations
AICTE All India Council for Technical Education

ALTM Airborne Laser Terrain Mapping
APFM Associated Programme on Flood Management
ARG Automatic Rain Gauge
ASSOCHAM Associated Chambers of Commerce & Industry
ATI Administrative Training Institute
AUWSP Accelerated Urban Water Supply Programme
AWS Automatic Weather Station
BAUT Boat Assault Universal Type
BMPs Best Management Practices
BPL Below Poverty Line
CBDM Community-Based Disaster Management
CBOs Community-Based Organisations
CCMNC Cabinet Committee on Management of Natural Calamities
CCS Cabinet Committee on Security
CDMP City Disaster Management Plan
CDP City Development Plan
CGWB Central Ground Water Board
CII Confederation of Indian Industry
CMG Crisis Management Group
CPHEEO Central Public Health and Environmental Engineering Organisation
CPWD Central Public Works Department
CSR Corporate Social Responsibility
DDC Data Distribution Centre
DDMA District Disaster Management Authority
DEM Digital Elevation Model
DIT Department of Information Technology
DRM Disaster Risk Management
DSS Decision Support System
DTM Digital Terrain Model
DWR Doppler Weather Radar
xiii
ABBREVIATIONS
EIA Environmental Impact Assessment

EMPs Ecological Management Practices
EOC Emergency Operation Centre
EWS Early Warning System
FHM Flood Hazard Mapping
FICCI Federation of Indian Chambers of Commerce & Industry
FRA Flood Risk Assessment
FRL Full Reservoir Level
FTL Full Tank Level
GIS Geographic Information System
GPS Global Positioning System
GWP Global Water Partnership
HFL High Flood Level
IC Incident Commander
ICP Incident Command Post
ICT Information and Communication Technology
IDF Intensity-Duration-Frequency
IDRN India Disaster Response Network
IDSMT Integrated Development of Small and Medium Towns
IIT Indian Institute of Technology
IMG Inter-Ministerial Group
IPCC Inter-governmental Panel on Climate Change
IRC Indian Roads Congress
IRS Incident Response System
IRT Incident Response Team
JNNURM Jawaharlal Nehru National Urban Renewal Mission
LID Low Impact Development
LIDAR Light Detection and Ranging
MA&UD Municipal Administration and Urban Development
MCGM Municipal Corporation of Greater Mumbai
MOHFW Ministry of Health and Family Welfare
MSW Municipal Solid Waste
MWL Maximum Water Level
NASA National Aeronautics and Space Administration
xiv
ABBREVIATIONS
NATMO National Thematic Mapping Organisation

NBC National Building Code
NBSSLUP National Bureau of Soil Survey and Land-use Planning
NCC National Cadet Corps
NCCF National Calamity Contingency Fund
NCMC National Crisis Management Committee
NDC National Data Centre
NDEM National Database for Emergency Management
NER North Eastern Region
NERUDP North Eastern Region Urban Development Programme
NIC National Informatics Centre
NISA National Industrial Security Academy
NIT National Institute of Technology
NLCP National Lake Conservation Plan
NMHS National Meteorological and Hydrological Services
NSS National Social Service
NUIS National Urban Information System
NWP Numerical Weather Prediction
NYKS Nehru Yuva Kendra Sangathana
PMF Probable Maximum Flood
PWD Public Works Department
QPE Quantitative Precipitation Estimate
QPF Quantitative Precipitation Forecast
RO Responsible Officer
RWA Resident Welfare Association
SDA Slum Dwellers Association
SDI Spatial Database Infrastructure
SEC State Executive Committee
SHG Self Help Group
SOP Standard Operating Procedure
SPCB State Pollution Control Board
SRSACs State Remote Sensing Application Centres
SUDS Sustainable Drainage Systems
SWAN State Wide Area Network
xv
ABBREVIATIONS
TF Task Force
UDA Urban Development Authority
UDPFI Urban Development Plan Formulation and Implementation
UFDM Urban Flood Disaster Management
UFDMIS Urban Flood Disaster Management Information System
UGC University Grants Commission
UIDSSMT Urban Infrastructure Development Scheme for Small and Medium
Towns
ULB Urban Local Body
UNDP United Nations Development Programme
VG Volunteer Group
VSAT Very Small Aperture Terminal
WSUD Water Sensitive Urban Design
xvi
Glossary of Terms
Backwater courses, streams, rivers, lakes, and wetlands.

The man-made elements of the conveyance
Water level upstream from an obstruction which
system include gutters, ditches, pipes,
is deeper than it would normally be without the
channels, and most retention/detention
obstruction.
facilities.
Best Management Practices
Design Storm
A structure or practice designed in stormwater
A selected rainfall event of specified amount,
management to prevent the discharge of one
intensity, duration and frequency used as the
or more pollutants to the land surface thus
basis of design.
minimising the chance of wash-off by
stormwater. It can also be referred to a structure
Detention Facility
or practice to temporarily store or treat urban
stormwater runoff to reduce flooding, remove An above or below ground facility, such as a
pollutants, and provide other amenities (such pond or tank, that temporarily stores
as recreation, fishing spots, etc.). stormwater runoff and subsequently releases
it at a slower rate than it is collected by the
Catchment drainage facility system. There is little or no
infiltration of stored stormwater.
A topographically defined area, draining surface
water to a single outlet point. It may frequently
Detention
include an area of tributary streams and flow
paths as well as the main stream. The release of stormwater runoff from the site
at a slower rate than it is collected by the
Channel stormwater facility system, the difference being
held in temporary storage.
The bed and banks of a stream or constructed
drain that carries all flows.
Drain
Conveyance System A buried pipe or other conduit (closed drain). A
ditch (open drain) for carrying off surplus surface
The drainage facilities, both natural and man-
water or ground water. (To) Drain to provide
made, which collect, contain, and provide for
channels, such as open ditches or closed drains,
the flow of surface and stormwater from the
so that excess water can be removed by
highest points on the land down to a receiving
surface flow or by internal flow. To lose water
water. The natural elements of the conveyance
(from the soil) by percolation.
system include swales and small drainage
xvii
GLOSSARY OF TERMS
Drainage Basin Floodplain

A geographic and hydrologic subunit of a Area susceptible to inundation by a base flood
watershed. including areas where drainage is or may be
restricted by man-made structures which have
Drainage Channel been or may be covered partially or wholly by
A drainage pathway with a well-defined bed and flood water from the base flood.
banks indicating frequent conveyance of
surface and stormwater runoff.
Groundwater Table
The free surface of the underground water that
Drainage Inlets is frequently subjected to conditions such as
The receptors for surface water collected in fluctuating atmospheric pressure with the season,
ditches and gutters, which serve as a withdrawal rates and restoration rates. Therefore,
mechanism whereby surface water enters the groundwater table is seldom static.
storm drains and this refers to all types of inlets
(such as grate inlets, curb inlets, slotted inlets,
Hydraulics
etc.). The study of water flow; in particular the
evaluation of flow parameters such as stage and
Embankment velocity in a river or stream.
A structure of earth, gravel, or similar material
raised to form a pond bank or foundation for a
Hydrograph
road. A graph showing stage, flow, velocity, or other
characteristics of water with respect to time. A
Estuary stream hydrograph commonly shows rate of
An area where fresh water meets salt water, or flow; a groundwater hydrograph shows the
where the tide meets the river current (e.g., water level or head.
bays, mouths of rivers, salt marshes and
lagoons). Estuaries serve as nurseries and
Hydrology
spawning and feeding grounds for large groups The science of the behaviour of water in the
of marine life and provide shelter and food for atmosphere, on the surface of the earth and
birds and wildlife. within the soil and underlying rocks. This
includes the relationship between rainfall,
Flood Zoning runoff, infiltration and evaporation.
Definition of areas, based on flood risk, within
floodplain appropriate for different land uses
Infiltration
The downward movement of water from the
Floodplain Regulation soil surface at ground level into the underlying
Laws defining acceptable use of land in defined subsoil. Water infiltrates into the soil profile and
areas, thus controlling the extent and type of percolates through it. The infiltration capacity
future development is expressed in terms of mm/hr. Infiltration
xviii
GLOSSARY OF TERMS
depends heavily on the vegetative cover of the networks to provide area-wide stormwater
soil surface, while permeability depends on the retention/detention and interception of
soil texture and compactness. contaminants.
Inlet Orography
A form of connection between the surface of a
The study of the physical geography of
ground and a drain or sewer for the admission
mountains and mountain ranges.
of surface and stormwater runoff.
Rain Gardens
Local Network
Rain gardens are part of the Low Impact
A network of Automatic Rain Gauges set by at
Development (LID) paradigm for stormwater
a high density within urban areas.
management. Rain gardens consist of a porous
soil covered with a thin layer of mulch into which
Land Use Planning
the stormwater runoff.
Control and supervision of land use in floodplain
(zoning, regulation, acquisition, relocation). Rational Method
A means of computing storm drainage flow
Major System
rates (Q) by use of the formula Q = CIA, where
A system that provides overland relief for C is a coefficient describing the physical
stormwater flows exceeding the capacity of the drainage area, I is the rainfall intensity and A is
minor system and is composed of pathways that the area.
are provided, knowingly or unknowingly, for the
runoff to flow to natural or man-made receiving Recharge
channels such as streams, creeks or rivers.
Replenishment of groundwater by downward
infiltration of water from rainfall, streams and
Minor System
other sources. Natural recharge occurs without
A system, which consists of the components of assistance or enhancement by man. Artificial
the storm drainage system that is normally recharge occurs when the natural recharge
designed to carry runoff from the more frequent pattern is modified deliberately to increase
storm events. These components include curbs, recharge.
gutters, ditches, inlets, manholes, pipes and other
conduits, open channels, pumps, detention Retention
basins, water quality control facilities, etc.
The process of collecting and holding surface
and stormwater runoff with no surface
On-site and Off-site
outflow.
On-site facilities are located on individual lots
to enhance local stormwater retention/ Return Frequency
detention and interception of contaminants. Off-
A statistical term for the average time of
site facilities are located on stormwater
expected interval that an event of some kind
xix
GLOSSARY OF TERMS
will equal or exceed given conditions (e.g., a runoff to some point. They are either closed
stormwater flow that occurs every 2 years). conduits or open channels connecting two or
more inlets.
Runoff
The flow of water across the ground or
Stormwater Drainage System
an artificial surface generated by rain falling Constructed and natural features which function
on it. together as a system to collect, convey, channel,
hold, inhibit, retain, detain, infiltrate, divert, treat
Sediment or filter stormwater.
Sediment is naturally-occurring material that is
Stormwater Management
broken down by processes of weathering and
erosion, and is subsequently transported by the The process of controlling the quality and
action of fluids such as wind, water, or ice, and/ quantity of stormwater to protect the
or by the force of gravity acting on the particle downstream environment.
itself.
Water Bodies
Silt Waterways, wetlands, coastal marine areas and
A separate of soil consisting of particles shallow groundwater aquifers.
between 0.002 and 0.02 mm in equivalent
Water Sensitive Urban Design
diameter.
A design philosophy that provides a framework
Source Control for managing water-related issues in urban
Non-structural or structural best management areas. Water Sensitive Urban Design (WSUD)
practices designed to minimise the generation incorporates the sustainable management and
of excessive stormwater runoff and/or pollution integration of stormwater, wastewater and
of stormwater at or near the source and protect water supply into urban design. WSUD
receiving environments. principles include incorporating water resource
management issues early in the land use
Stormwater planning process. WSUD can be applied at the
That portion of precipitation that does not lot, street, neighbourhood, catchment and
naturally percolate into the ground or evaporate, regional scale.
but flows via overland flow, interflow, pipes and
Watershed
other features of a stormwater drainage system
into a defined surface water body, or a A geographic region within which water drains
constructed infiltration facility. into a particular river, stream, or body of water.
The watershed may be composed of several
Stormwater Drain sub-watersheds and catchments and/or sub-
A particular storm drainage system component catchments.
that receives runoff from inlets and conveys the
xx
List of Tables and Figures
List of Tables
Table 1.1 Factors Contributing to Urban Flooding 2
Table 1.2 Trend of Urbanization in India 3
Table 1.3 Distribution of Urban Population by Class of Towns, 3
India - 2001 Census
Table 1.4 Description terms for the Spatial Distribution and 6
Intensity of Rainfall
Table 3.1 Status of Local Networks for Real-Time Rainfall Data 28
Table 3.2 Flood Management Decision Support System 34
Table 3.3 Illustrative Flood Characterization and Associated 35
Flood Management Decision
Table 4.1 Classification of Source Control Options 49
Table 5.1 Details of Contrasting Approaches to the 56
Management of Urban Floods
Table 5.2 Current Efforts for Core Spatial Data Generation in 68
the Country
Table 8.1 Interventions for Capacity Development 104
List of Figures
Fig. 1.1 Monthly Variability of Rainfall in some Important 7
Indian Cities
Fig. 1.2 Monthly Variability of Rainfall in some Important 8
World Cities
Fig. 1.3 Rising Heat and Cloud Formation as a Result of the 9
Urban Heat Island Effect
Fig. 1.4 Winds Interact with Urban-induced Convection to 9
Produce Downwind Rainfall
Fig. 3.1 Schematic Version of an Integrated Flood Early 37
Warning System
xxi
Executive Summary
Overview Urban areas are centres of economic

activities with vital infrastructure which needs
As a part of its mandate, the National Disaster to be protected 24x7. In most of the cities,
Management Authority (NDMA) has been damage to vital infrastructure has a bearing not
making efforts to prepare guidelines for the only locally but could even have global
management of different disasters and some implications. They are also densely populated
cross-cutting themes. Even though urban and people living in vulnerable areas, both rich
flooding has been experienced over decades and poor, suffer due to flooding. It has
in India but sufficient attention was not given sometimes resulted in loss of life, damage to
to plan specific efforts to deal with it. In the property and disruptions in transport and power,
past, any strategy on flood disaster bringing life to a grinding halt, causing untold
management largely focused on riverine floods misery and hardships. Even the secondary
affecting large extents of rural areas. effects of possible epidemics and exposure to
infection takes further toll in terms of loss of
Mumbai floods of July 2005 turned out livelihood, human suffering, and, in extreme
to be an eye-opener. Realizing that the causes cases, loss of life. Therefore, management of
of urban flooding are different and so also are urban flooding has to be accorded top priority.
the strategies to deal with them, NDMA has
for the first time decided to address urban Increasing trend of urban flooding is a
flooding as a separate disaster, delinking it from universal phenomenon and poses a great
floods. NDMA commenced its efforts to challenge to urban planners the world over.
formulate the Flood Guidelines in 2006 and Problems associated with urban floods range from
released them in 2008. Even while the Flood relatively localised incidents to major incidents,
Guidelines were under preparation, efforts resulting in cities being inundated from a few
commenced to formulate these Urban Flood hours to several days. Therefore, the impact
Guidelines in August 2007. can also be widespread, including temporary
relocation of people, damage to civic amenities,
Urban Flooding is Different deterioration of water quality and risk of epidemics.
Urban flooding is significantly different Urban Flood Risk in India

from rural flooding as urbanisation leads to
developed catchments which increases the There has been an increasing trend of
flood peaks from 1.8 to 8 times and flood urban flood disasters in India over the past
volumes by up to 6 times. Consequently, several years whereby major cities in India have
flooding occurs very quickly due to faster flow been severely affected. The most notable
times, sometimes in a matter of minutes. amongst them are Hyderabad in 2000,
xxiii
EXECUTIVE SUMMARY
Ahmedabad in 2001, Delhi in 2002 and 2003, intensity has been experienced. Further, the
Chennai in 2004, Mumbai in 2005, Surat in 2006, systems very often do not work to the designed
Kolkata in 2007, Jamshedpur in 2008, Delhi in capacities because of very poor maintenance.
2009 and Guwahati and Delhi in 2010.
Encroachments are also a major problem in
A special feature in India is that we have many cities and towns. Natural streams and
heavy rainfall during monsoons. There are other watercourses have formed over thousands of
weather systems also that bring in a lot of rain. years due to the forces of flowing water in the
Storm surges can also affect coastal cities/ respective watersheds. Habitations started
towns. Sudden release or failure to release growing into towns and cities alongside rivers and
water from dams can also have severe impact. watercourses. As a result of this, the flow of water
In addition, the urban heat island effect has has increased in proportion to the urbanization of
resulted in an increase in rainfall over urban the watersheds. Ideally, the natural drains should
areas. Global climate change is resulting in have been widened (similar to road widening for
changed weather patterns and increased increased traffic) to accommodate the higher
episodes of high intensity rainfall events flows of stormwater. But on the contrary, there
occurring in shorter periods of time. Then the have been large scale encroachments on the
threat of sea-level rise is also looming large, natural drains and the river flood plains.
threatening all the coastal cities. Cities/towns Consequently the capacity of the natural drains
located on the coast, on river banks, upstream/ has decreased, resulting in flooding.
downstream of dams, inland cities and in hilly
areas can all be affected. Improper disposal of solid waste, including
domestic, commercial and industrial waste and
Issues in Urban Flooding dumping of construction debris into the drains
also contributes significantly to reducing their
Among the important cities of India, the capacities. It is imperative to take better
average annual rainfall varies from 2932 mm in operations and maintenance actions.
Goa and 2401 mm in Mumbai on the higher side,
to 669 mm in Jaipur on the lower side. The Role of Science and Technology
rainfall pattern and temporal duration is almost
similar in all these cities, which receive the The management of urban flooding is an
maximum rainfall from the south-west emerging subject, and as such it has to be
monsoons. The average rainfall for the month treated holistically in a multi-disciplinary manner.
of July in Mumbai is 868 mm and this far There are many issues that need to be considered
exceeds the annual average rainfall of 611 mm in order to develop sound, reliable and most
in London. representative urban flood/disaster management
strategies. A significant part of this management
Stormwater drainage systems in the past framework is dependent upon the use of science
were designed for rainfall intensity of 12 - 20 and technology for improved monitoring, modeling/
mm. These capacities have been getting very forecasting and decision-support systems. One
easily overwhelmed whenever rainfall of higher way of improving the preparedness for urban
xxiv
EXECUTIVE SUMMARY
flooding is by setting up a vulnerability-based recommendations have been made for

geospatial framework to generate and analyse enhancing capabilities, using state-of-the-art
different scenarios. This will help in identifying equipment.
and planning for the most effective/ appropriate
actions in a dynamic way to incorporate day-to-day Chapter 4 reviews the existing
changes that take place in urban areas, having the international and national status, practices for
potential to alter the prevailing vulnerability profile. the design and maintenance of urban drainage
systems. Gaps have been identified and
Structure of Guidelines recommendations made to develop efficient
drainage systems with improved operations and
These guidelines are an important step maintenance actions.
towards the development of plans for the
Chapter 5 covers urban flood risk
management of urban flooding. These have
management issues, vulnerability analysis, risk
been prepared to provide guidance to ministries/
assessment and hazard mapping, damage
departments, States/UTs and urban local bodies
assessment and data generation options, etc.
for the preparation of their Disaster
Management (DM) plans. These guidelines call
Chapter 6 looks at town planning
for a proactive, participatory, well-structured, fail-
concepts, central and state legislations and a
safe, multi-disciplinary and multi-sector approach
gist of relevant provisions under layout
at various levels.
approvals and building permissions.
The guidelines are presented in 10
Chapter 7 deals with response actions
chapters as detailed below:
including putting in place an incident response
system.
Chapter 1 provides an introductory
review about how urban flooding is different
Chapter 8 deals with capacity
from riverine flooding, factors contributing to
development at institutional and community
urban flooding, different weather systems in
levels, awareness generation and the role of
India, variability of rainfall, different city
different stakeholders and the need for proper
scenarios and genesis of the Guidelines.
documentation of events and actions.
Chapter 2 provides present status of the
Chapter 9 deals with implementation
institutional framework at the national, state and
stategies, mainstreaming of DM into
the local levels, role of central ministries and
development planning, role of nodal ministry,
departments, states and urban local bodies and
mobilization of financial resources and
other local authorities/organisations.
implementation methodology, etc.
Chapter 3 discusses present status of
Chapter 10 provides the chapter-wise
flood forecasting, warning and communication
summary of action points.
system. The gaps are identified and
xxv
EXECUTIVE SUMMARY
Gist of Some of the Key Action Points

1. Ministry of Urban Development will be the Nodal Ministry for Urban Flooding
2. Establishment of the Urban Flooding Cell in Ministry of Urban Development (MoUD), State
Nodal Departments and ULBs
3. Establishing a Technical Umbrella for Urban Flood Forecasting and Warning both at the
National Level and State/UT levels
4. IMD will establish a 'Local Network Cell'
5. Establishment of Local Network of Automatic Rainfall Gauges (ARGs) for Real-time
Monitoring with a density of 1 in every 4 sq km in all 2325 Class I, II and III cities and
towns
6. Strategic Expansion of Doppler Weather Radar Network in the country to cover all Urban
Areas for enhanced Local-Scale Forecasting Capabilities with maximum possible Lead-time
7. India Meteorological Department (IMD) will develop a Protocol for Sub-Division of Urban
Areas on the basis of Watershed and issue Rainfall Forecast on the Watershed-basis
8. Establishing Urban Flood Early Warning System
9. Catchment will be the basis for Design of Stormwater Drainage System
10. Watershed will be the basis for all Urban Flooding Disaster Management Actions
11. All 2325 Class I, II and III cities and towns will be mapped on the GIS platform
12. Contour Mapping will be prepared at 0.2 - 0.5 m contour interval
13. Inventory of the existing stormwater drainage system will be prepared on a GIS platform
14. Future Stormwater Drainage Systems will be designed with a Runoff Coefficient of up to
0.95 in using Rational Method taking into account the Approved Land-use Pattern
15. Pre-Monsoon De-silting of Drains will be completed before March 31 every year
16. Involve the Residents' Welfare Associations (RWAs) and Community Based Organisations
(CBOs) in monitoring this and in all Urban Flood Disaster Management (UFDM) actions
17. Every building shall have Rainwater Harvesting as an integral component of the building
utility
18. Encroachments on Drains and in Floodplains will be removed by providing alternative
accommodation to the poor people
19. Better Compliance of the Techno-legal Regime will be ensured
20. Establish the Incident Response System for Coordinated Response Actions
21. Capacity Development at the Community and Institutional level to enhance UFDM
capabilities
22. Massive Public Awareness programmes covering Solid Waste Disposal, problems of
Encroachments, relevance of Techno-legal Regime besides all other important aspects
23. Involve elected Public Representatives in Awareness Generation
xxvi
1 Introduction
1.1 Overview flooding occurs very quickly due to faster flow

times (in a matter of minutes).
1.1.1 As a part of its mandate, the National
1.2.2 Urban areas are densely populated
Disaster Management Authority (NDMA) has
and people living in vulnerable areas suffer
been making efforts to prepare Guidelines for
due to flooding, sometimes resulting in loss
the management of different disasters and
of life. It is not only the event of flooding but
some cross-cutting themes. Even though urban
the secondary effect of exposure to infection
flooding has been experienced over decades in
also has its toll in terms of human suffering,
India but sufficient attention was not given to
loss of livelihood and, in extreme cases, loss
plan specific efforts to deal with it. In the past,
of life.
any strategy on flood disaster management
largely focused on riverine floods affecting large 1.2.3 Urban areas are also centres of
extents of rural areas. economic activities with vital infrastructure
which needs to be protected 24x7. In most of
1.1.2 Mumbai floods of July 2005 turned the cities, damage to vital infrastructure has a
out to be an eye-opener. Realizing that the bearing not only for the state and the country
causes of urban flooding are different and but it could even have global implications.
so also are the strategies to deal with them, Major cities in India have witnessed loss of
NDMA has for the first time decided to life and property, disruption in transport and
address urban flooding as a separate disaster power and incidence of epidemics. Therefore,
delinking it from floods. NDMA commenced management of urban flooding has to be
its efforts to formulate the Flood Guidelines in accorded top priority.
2006 and released them in 2008. Even while
1.2.4 Increasing trend of urban flooding is
the Flood Guidelines were under preparation, a universal phenomenon and poses a great
efforts commenced to formulate these Urban challenge to urban planners the world over.
Flood Guidelines in August 2007. Problems associated with urban floods range
from relatively localised incidents to major
1.2 Urban Flooding is Different
incidents, resulting in cities being inundated
1.2.1 Urban flooding is significantly different from hours to several days. Therefore, the
from rural flooding as urbanisation leads to impact can also be widespread, including
developed catchments, which increases the temporary relocation of people, damage to civic
flood peaks from 1.8 to 8 times and flood amenities, deterioration of water quality and risk
volumes by up to 6 times. Consequently, of epidemics.
1
1.3 Contributory Factors

Floods in urban areas can be attributed to one or a combination of different factors listed
in Table 1.1.
Table 1.1: Factors Contributing to Urban Flooding
Meteorological Factors Hydrological Factors Human Factors
• Rainfall • Soil moisture level • Land use changes (e.g. surface

sealing due to urbanization,
• Cyclonic storms • Groundwater level prior to
deforestation) increase runoff and
storm
• Small-scale storms sedimentation
• Natural surface infiltration
• Temperature • Occupation of the flood plain and
rate
• Snowfall and snowmelt thereby obstructing flows
• Presence of impervious
• Inefficiency or non-maintenance of
cover
infrastructure
• Channel cross-sectional
• Too efficient drainage of upstream
shape and roughness
areas increases flood peaks
• Presence or absence of over
• Climate change effects, magnitude
b a n k f l o w, c h a n n e l
and frequency of precipitation and
network
floods
• Synchronization of run-
• Urban micro-climate may enforce
offs from various parts of
precipitation events
watershed
• Sudden release of water from dams
• High tide impeding
located upstream of cities/towns *
drainage
• Failure to release water from dams
resulting in backwater effect *
• Indiscriminate disposal of solid
waste *
Source: Adapted from Urban Food Risk Management: A Tool for Integrated Flood Management,
AFPM document, GWP and WMO, 2008
* Three more human factors are added in the Indian Context.
1.4 Trend of Urbanization in population. Urban population is projected to be

India around 433 million by 2021. There is a marked
impact of globalisation on urban growth, which
1.4.1 In 2001, there were about 286 million is increasingly concentrated in and around urban
people residing in urban areas in the country areas, large and small. The trend of urbanisation
accounting for about 27.8 % of the total in India is shown in Table 1.2.
2
Introduction
Table 1.2: Trend of Urbanization in India
Year
Sl.
Details
No. 2021
1951 1991 2001
(Estimated)
1. No. of Urban Agglomerations, Cities & Towns 2765 3768 5161 --------------
2. Urban Population (in million) 62.44 216.61 285.35 433.00
3. Percentage of total population 17.3 25.71 27.8 32.3
Source: Office of the Registrar General India, 2001 (Population totals for India and States for the Census of India – 2001)
1.5 Census Towns proper representation, the Census also provides

data on the Urban Agglomerations (UAs), which
1.5.1 As per the 2001 Census, there are
comprise core town(s) and its outgrowths
5161 census towns. The towns include
meeting the urban characteristics. Delhi,
statutory towns (as notified by government)
Kolkata, Chennai and Mumbai are examples
and census towns as identified by the census
of such Urban Agglomerations. There are 4378
on the basis of well-defined criteria. In India,
Urban Agglomerations in the country.
a census town is one which has a minimum
population of 5,000, at least 75 per cent of 1.5.2 The size of urban population is
whose male working population is engaged in categorized by the class of towns/ urban
non-agricultural pursuits and density of whose agglomerations. The census towns are divided
population is more than 400 per sq km. When into six classes on the basis of population.
towns grow in area and population, the areas Distribution of urban population in India by class
adjoining the notified core town(s) also may and towns along with area covered is shown in
acquire urban characteristics. Therefore, for Table 1.3.
Table 1.3: Distribution of Urban Population by Class of Towns, India - 2001 Census
Total Area in sq
Size Class No. of Towns Total Population Per cent Per cent Density
km
All Classes 5161 286119689* 100 77370.50 100 3675
Class I 441 178224290 62.3 24717.34 31.95 7157
Class II 496 34451500 12 10145.08 13.11 3371
Class III 1388 42119280 14.7 19412.17 25.09 2161
Class IV 1561 22593015 7.9 15406.14 19.91 1466
Class V 1041 7889668 2.8 6742.61 8.71 1169
Class VI 234 841936 0.3 947.17 1.22 848
Source: Office of the Registrar General India (2001)
* Information from 27 cities and towns under all classes is not available
3
1.5.3 While the total area covered by 5161 1.7 Weather Systems causing
cities/towns belonging to all classes cover Rainfall
77370.50 sq km, 2325 cities and towns of class
I, II and III is about 54274.59 sq km. Major weather systems causing rainfall
in different seasons in India are briefly discussed
1.6 Urbanisation and Pressure below.
on Land 1.7.1 Southwest Monsoon
1.6.1 Urban areas are normally centres of
1.7.1.1 Southwest monsoon (also known as
commercial activity and continue to attract
Summer Monsoon) season (June-September)
migrants in large numbers in search of
is the main rainy season in India during which
employment from different areas. Rapid
the country receives over 70 to 75 per cent of
urbanization puts a lot of pressure on land and
its annual rainfall. The regions which receive the
as a result, habitations keep coming up in the
largest rainfall are along the west coast of India,
natural areas/flood plains. This is happening
north-eastern states, West Bengal and coastal
universally including in U.K. According to
Orissa. Heavy rainfall is a day-to-day occurrence
the Pitt’s Report (2008), most of the houses
during this season in some part or the other.
affected by the floods in UK in 2007 were
In India, urban flooding is mostly due to heavy
constructed during the last 25 years.
rainfall during this season.
1.6.2 In Indian cities and towns, large
habitations are coming up in low-lying areas, 1.7.1.2 Embedded in monsoon system, there
often encroaching over drainage channels. In are other synoptic systems such as vortices
some cases, houses are constructed even on (lower/mid-tropospheric cyclonic circulation,
top of nallahs and drains. Encroachment in the off-shore vortices along the west coast, low
immediate upper catchments of hilly urban area pressure areas, depressions and cyclones),
has also caused serious flooding in the flood troughs (monsoon trough, off-shore trough
plains of cities surrounded by hills. along the west coast, north-south troughs
over peninsular India during break monsoon
1.6.3 In the absence of a proper sewerage
conditions) and east-west wind shear zone in
system, most of the habitations discharge their
the lower troposphere that largely enhance the
sewage into the existing stormwater channels.
The net result has been that the width of monsoon rainfall activity. Besides monsoon
the natural drainage channels has become systems, orography plays a very crucial role in
inadequate and the capacity for draining the enhancing rainfall distribution. Heavy rainfall
rainwater has been greatly reduced. associated with each of these individual
systems, by and large, follows a set pattern.
1.6.4 Moreover, urbanisation leads to
increase in impervious areas which, in turn, 1.7.2 Northeast Monsoon
significantly increases the rate of runoff, 1.7.2.1 After the retreat of southwest monsoon,
resulting in overwhelming of designed capacity northeast monsoon (also known as Winter
of the stormwater drainage system. As a result Monsoon) starts around the middle of October,
of all these happenings, even small amounts of
causing significant amount of rainfall over
rainfall can cause urban flooding.
4
Introduction
southern parts of peninsular India covering Himachal Pradesh, Jammu & Kashmir, Punjab,
South Andhra Pradesh, Tamil Nadu, Puducherry, Delhi, Rajasthan and Uttarakhand) round the
Kerala, South Karnataka, Andaman & Nicobar year. Their frequency and intensity varies from
Islands and Lakshadweep. Heavy rainfall is a season to season. These are more frequent and
common occurrence over these areas during more intense between November and March.
this period of northeast monsoon covering
1.7.5 Thunderstorms
middle of October to end of December.
1.7.5.1 Thunderstorms are very common
1.7.3 Depressions and Cyclones tropical weather phenomena observed in
1.7.3.1 Depressions are low pressure systems India round the year in some part or the other.
around which wind blows in an anti-clockwise Individually, these are localized short duration
manner in the Northern Hemisphere and where transient weather phenomena. These weather
wind speed is between 31 km/h and 49 km/h systems can also cause localized heavy to
over the sea. In India, a depression may originate very heavy rainfall sometimes leading to local
over the sea or land and may cause copious flooding. Thunderstorms are very frequent and
rainfall along its path. Some depressions sometimes very severe in summer, especially
originating over the ocean may develop into over north-east India causing heavy rainfall and
tropical cyclones where wind speed in the floods. Thunderstorms during the monsoon
circulation is 62 km/h or more. The tropical season, though less frequent, greatly enhance
cyclone can intensify and move towards land. the quantity of rainfall locally and are the major
These are associated with hazards like very source of short duration heavy rainfall leading
strong winds, very heavy rainfall and storm to flash floods/ flooding.
surges. After crossing the coast, they weaken
1.7.6 Cloudburst
into depressions and move across the land
providing heavy to very heavy rainfall along its 1.7.6.1 Cloudburst is a disastrous weather
path over much of the land it covers. Rainfall event in which, heavy rainfall occurs over a
associated with cyclone is dependent on the localized area at a very fast rate. The rate of
size, forward speed, direction of movement, rainfall may be of the order of 100 mm/hr.
duration and intensity of the system. Total Cloudburst in India occurs during the monsoon
rainfall at a place is more for a slow-moving season over the orographically dominant regions
cyclone as compared to a fast moving one. like Himalayan region, north-eastern states
Also, for large cyclones, the rainfall is greater and Western Ghats and in other areas as well.
when compared with relatively small-sized Associated convective clouds can extend upto
cyclones. a height of 15 km.
1.7.4 Western Disturbances 1.7.7 Interaction of Trough in the

Westerlies and Monsoon
1.7.4.1 Western disturbances are extra-tropical
Systems
weather systems (low pressure areas) which
move from west to east, regularly, causing 1.7.7.1 Interaction of extra-tropical trough in
widespread rainfall over the extra-tropical the westerlies and monsoon systems, at times,
areas (covering the states of Haryana, causes extensive rainfall in its forward sector,
5
with widespread heavy-to-very heavy rainfall in the annual rainfall, followed by the north-east
north India causing floods. monsoon.
1.9.2 Fig. 1.1 shows the monthly rainfall
1.8 Rainfall Description Terms in some of the major cities of India. It can be
1.8.1 In India, rainfall is measured at 0830 seen that the average annual rainfall varies
IST everyday for the past 24 hours. Description from 2932 mm in Goa and 2401 mm in Mumbai
terms for the spatial distribution and intensity on the higher side to 669 mm in Jaipur on the
of rainfall are shown in Table 1.4. lower side. Looking at the rainfall in Mumbai,
it can be seen that the rainfall pattern and
1.9 Monthly Variability of temporal duration is similar to all other cities
which receive maximum rainfall from the
Rainfall
south-west monsoon. While Mumbai receives
1.9.1 The monsoons make a major a maximum of 2401 mm of rainfall during
contribution to rainfall in India. The south-west the monsoon, in the month of July alone it
monsoon contributes over 70 to 75 per cent of receives 868 mm.
Table 1.4: Description Terms for the Spatial Distribution and Intensity of Rainfall
I. Spatial Distribution of Rainfall
Distribution No. of Places Description
Isolated One or two places <25% of stations gets rainfall
Scattered At a few places (26–50)% of stations gets rainfall
Fairly Widespread At many places (51–75)% of stations gets rainfall
Widespread At most places (76–100)% of stations gets rainfall
Dry - No station reported rainfall
II. Intensity of Rainfall

Descriptive Term used Rainfall amount in mm (24 hours)
No Rain 0.0
Very Light Rain 0.1- 2.4
Light Rain 2.5 – 7.5
Moderate Rain 7.6 – 35.5
Rather Heavy 35.6 – 64.4
Heavy Rain 64.5 – 124.4
Very Heavy Rain 124.5 – 244.4
Extremely Heavy Rain >244.5
Exceptionally Heavy Rain When the amount is a value near about the highest recorded
rainfall at or near the station for the month or season. However,
this term will be used only when the actual rainfall amount
exceeds 120 mm.
Source: India Meteorological Department
6
Introduction
Monthly Variability of Rainfall in mm in Indian Cities having Average Annual Rainfall above 1500 mm
*Value in brackets is average annual rainfall in mm
Fig. 1.1 Monthly Variability of Rainfall in some important Indian Cities (Compiled on the basis of IMD Data)
Note: Different scales are used for rainfall for different categories of cities
7
Monthly Variability of Rainfall in some Important International Cities in mm
*Value in brackets is average annual rainfall in mm
Fig. 1.2 Monthly variability of Rainfall in some important World Cities (Compiled on the basis of WMO data)
Note: Different scales are used for rainfall for different categories of cities
1.9.3 Fig. 1.2 shows the rainfall in major 1.10 Micro-Climate and Urban
cities of the world including Mumbai. It can be Heat Island Effect
seen that the average monthly rainfall of 868
mm in July in Mumbai far exceeds the average While general weather systems cover extensive
annual rainfall of 611 mm of London. It is also areas, micro-climate in urban areas has great
interesting to note that while Singapore receives relevance for urban flood DM. It has been
the annual rainfall of the order of 2150 mm, this observed that there is a significantly higher
is spread more or less uniformly throughout the rainfall recorded over many urban areas over
year, as in the case of London. the years. Apparently, the urban heat island
1.9.4 In view of high intensity monsoon effect is responsible for this. It has been
rainfall in India, different strategies are required observed that the temperature over urban
to deal with urban flooding. areas is higher than the surrounding areas.
8
Introduction
Whenever the rain bearing clouds pass over

these areas, the hot air pushes the clouds up,
resulting in highly localized rainfall which may
sometimes be of high intensity.
1.10.1 Urban Heat Island Effect and

Increasing Rainfall
It is now well-documented that
urbanization leads to an increase in rainfall. As
early as 1921, scientists noted thunderstorm
formation over large cities while there were
Fig. 1.4 Winds Interact with Urban-induced Convection to
none over rural areas. Recent studies such as Produce Downwind Rainfall
the Metropolitan Meteorological Experiment Source: National Aeronautics and Space Administration, USA
(METROMEX) conducted in St. Louis, USA, precipitation for an urban station showed an
found that urbanisation led to a 5-25 per cent increase in the frequency of intense (>20 mm/h)
increase in summer precipitation within and 50- rain showers and that the day time Heat Island
75 km downwind of the city. This can be very Effect was associated with the intensification of
well explained by the Urban Heat Island Effect – rain showers. In India, urban heat islands over
the rising heat induces cloud formation while the Pune and Chennai have been reported. There
winds interact with urban induced convection has been an increase in the average annual
to produce downwind rainfall. National rainfall of Hyderabad from 806 mm in 1988 to
Aeronautics and Space Administration (NASA) 840 mm in 2002.
has indicated increased rainfall intensities over
urban areas due to the Urban Heat Island Effect. 1.11 Climate Change
1.11.1 Climate Change and Sea-level
Rise
1.11.1.1 Global warming is the increase in the
average temperature of Earth’s near-surface
air and oceans. According to the 2007 Fourth
Assessment Report by the Intergovernmental
Panel on Climate Change (IPCC), global surface
temperature that increased 0.74 ± 0.18 0 C
(1.33 ± 0.32 0 F) during the 20th century,
Fig. 1.3 Rising Heat and Cloud Formation as a Result of the was caused by increasing concentrations of
Urban Heat Island Effect
Source: National Aeronautics and Space Administration, USA greenhouse gases as a result of burning of fossil
fuel and deforestation.
1.10.2 Moreover, in a study of urbanization
effect on convective precipitation in Mexico, 1.11.1.2 Climate model projections summarized
analysis of historical records of hourly in the IPCC report indicate that the global
9
surface temperature is likely to rise a further 1.1 1.11.2 Climate Change and Increasing
to 6.40 C (2.0 to 11.50 F) during the 21st century. Rainfall
An increase in global temperature will cause
1.11.2.1 The IPCC has observed that “the
sea levels to rise and will change the amount
marked increase in atmospheric concentrations
and pattern of precipitation. Other likely effects
of carbon dioxide (CO2), methane (CH4) and
include changes in the frequency and intensity
nitrous oxide (N2O) since 1750 is the result of
of extreme weather events.
human activities” and that “the implications of
1.11.1.3 The temperature increase is widespread global warming over the coming decades for our
over the globe and is greater at higher northern industrial economy, water supplies, agriculture,
latitudes. Average Arctic temperatures have biological diversity and even geopolitics
increased at almost twice the global average are massive”. If carbon emissions continue
rate, in the past 100 years. Land regions have unabated, these are likely to result in an increase
warmed faster than the oceans. Observations in the total precipitation (and hence run-off) and
since 1961 show that the average temperature increased storm intensities.
of the global ocean has increased to depths of i) Precipitation is projected to be
at least 3000 m and that the ocean has been concentrated into more intense events
taking up over 80% of the heat being added to with longer periods of little precipitation,
the climate system.
ii) Wet extremes becoming more severe
1.11.1.4 Increases in sea-level are consistent in many areas where the mean
with warming. Global average sea-level rose at precipitation increases,
an average rate of 1.8 [1.3 to 2.3] mm per year, iii) Precipitation intensity (e.g.,
over 1961 to 2003, and at an average rate of proportionately more precipitation per
about 3.1 [2.4 to 3.8] mm per year, from 1993 precipitation event) is projected to
to 2003. increase over most regions,
iv) Increase in precipitation extremes
1.11.1.5 As a result of sea-level rise, there
is greater than changes in the mean
will be increasing submergence of coastal
precipitation,
cities, resulting in damage to property
v) The increase in mean and extreme
a n d l o s s o f e c o n o m i c a c t i v i t y. Fu t u r e
precipitation in various regions has been
strategies should recognize that sea-level
attributed to contributions from both
rises worldwide cannot be reversed. The
dynamic and thermodynamic processes
only alternative is to have increased
associated with global warming,
investment in flood defences. For example,
the Municipal Corporation of Greater vi) The greater increase in extreme
Mumbai (MCGM) is now in the process precipitation compared to the mean is
of installing floodgates in combination attributed to the greater thermodynamic
with high-discharge pumps at eight of the effect on the extremes due to increases
hitherto ungated sea outlets. in water vapour, mainly over subtropical
areas. Changes in circulation also
10
Introduction
contribute to the pattern of precipitation change over the region. Therefore, if the trend
intensity changes at middle and high of the global warming continues, the extreme
latitudes, point rainfall events also may continue to
vii) Increased rainfall intensity and an implied occur in the future. They would pose serious
increase in flooding shows a projected problems in some parts due to their adverse
increase in extreme rainfall intensity with impact on the socio-economic issues like the
the extra-tropical surface lows, particularly damage to life and the property. Such spells,
over Northern Hemisphere (NH) land, with especially at the hill stations would result in
an implied increase in flooding, the environmental degradation due to soil
erosion, river silting, landslides, etc. In view of
viii) Similar results for summer precipitation
these points, it is imperative that proper care
with implications for greater flooding in
need be exercised in near future for the work
the Asian monsoon region in a future
of town planning, DM and the environmental
warmer climate, and
protection for the sustainable development of
ix) Globally averaged time series in the the human beings over the Indian region.
multi-model analysis shows simulated
(Excerpts from Indian Institute of Tropical
increases in precipitation intensity
Meteorology, Research Report No. R.R. 123,
during the 20th century continuing
August 2009)
through the 21st century along with a
somewhat weaker and less consistent
1.12 City Scenarios
trend of increasing dry periods between
rainfall events for all scenarios. 1.12.1 Cities may be situated on the coasts,
river banks, near downstream/ upstream of
Irish Academy of Engineering in a
dams, inland or in hilly areas. There are several
landmark report on Ireland At Risk – Critical
cities which may fall under more than one of
Infrastructure and Climate Change warned that
these categories.
storm surges combined with a sea-level rise of
50 cm would mean that a one-in-100-year flood Rainfall occurs in different seasons on
could happen as often as every five years. differently located cities in India. Local rainfall
Source: Report published by Irish Academy of Engineering,
finds its way into streams/ nallahs and finally
November 2009
joins a river or the sea through local drains
A study of 165 stations across the Indian in coastal areas. Geographically, the cities/
region with a long data series, shows that towns may be categorized as per the following
majority of them have reported their highest scenarios:
24-hour rainfall during 1961-1980 with an
alarming rise in their intensity thereafter. 1.12.2 Coastal Cities
Record rainfall events on different time scales Coastal cities/towns, which are located
(hourly to annual) have also taken place in on the coastline, experience flooding due
the recent decades. These events may be to localized rainfall, storm surges caused by
associated with the global and regional cyclones. They also get affected by high tides,
warming signalling the effect of the climate coinciding with localized rains.
11
1.12.3 Cities on Major Rivers Sometimes, habitations in hilly areas comprising

a part of large cities/towns, also get affected in
Many cities/towns are located on the
a similar manner.
banks of small and big rivers. Floods in those
rivers cause inundation of the flood plains as
1.13 Genesis of National
very often urban growth has indiscriminately
spread into flood plains, reducing the area into Guidelines
which floods can naturally overflow. 1.13.1 NDMA took a path-breaking decision
1.12.4 Cities near Dams/Reservoirs to deal with urban flooding as a separate
disaster, delinking it from riverine floods. The
There are cities/towns which are
first initiative was taken by organizing a Brain-
located along a river, either downstream or
storming Session in August 2007, followed by a
upstream of dams/ reservoirs. Those located
downstream of reservoirs can get flooded National Workshop on October 11 and 12, 2007
by release of water in excess quantities. at Pune. It was attended by representatives
Sometimes cities/towns located upstream from Central, State Governments and Urban
of a dam/reservoir also get affected by rising Local Bodies (ULBs) from different parts
level of backwaters when release of water of the country, experts from academic and
is sometimes withheld during the flood scientific communities. Different committees
season. There have been instances when water were constituted and, subsequently, Regional
was released suddenly without appropriate Workshops, State level Workshops, Core Group
notice, causing severe loss of life and Meetings, Review Meetings and an Indo-US
property. Workshop were held during 2007-2009.
1.12.5 Inland Cities 1.13.2 A nine-step process has been followed

that includes review of the present status and
Cities/towns located inland can
assessment of critical gaps. This has been done
experience floods largely because of localized
by taking on board the nodal agencies, ministries/
heavy rainfall within the watershed due to
departments of GoI and State governments/UTs,
overwhelming of the stormwater drainage
academic, scientific and technical institutions
system capacity.
and NGOs, and obtaining exhaustive feedback
1.12.6 Cities in Hilly Areas from city/town level through interaction with
Cities/towns located in the hilly areas Members of Parliament (MPs), Members of
experience flash floods due to localized heavy Legislative Assemblies (MLAs) and elected
rainfall which can also result in landslides. representatives from ULBs.
12
Introduction
International Indo-US Workshop on “Urban Flood Disaster Management:

Administrative, Technical and Scientific Issues” by NDMA and USAID
An International Indo-US Workshop with the theme “Urban Flood Disaster Management:
Administrative, Technical and Scientific Issues” was organized in Hyderabad, from 7 to 9 January
2008, jointly by NDMA and USAID, to get an overview of the American practices for managing
urban flooding and to incorporate the feasible measures in the NDMA Guidelines.
The Workshop was attended by the Asst. Secretary of the Army (Civil Works) of the US Government,
officers of the US Army Corps of Engineers and US Association of State Floodplain Managers,
from the US side. From the Indian side, it was attended by representatives of the Government
of India, state governments, academic and scientific institutions and other stakeholders.
There was extensive coverage of key issues from both sides, related to urban flood disaster
management (UFDM), such as flood risk management state and local roles, urban regulation
issues, challenges in UFDM, role of science and technology in flood disaster management,
flood-risk communication and perception, development of flood warning and response systems,
emergency management technologies for monitoring and mitigation of flooding events, New
York City Hurricane preparedness plan, impact of global climate change on planning for flood
management and future research and development priorities.
The Workshop provided valuable inputs to the Guidelines on these issues.
13
2 Institutional Framework and

Arrangements
2.1 Institutional Framework disasters as may be determined by the central

government. The general superintendence,
2.1.1 National Disaster Management direction and control of the National Disaster
Authority Response Force (NDRF) are vested in and will
2.1.1.1 The NDMA, as the apex body in the GoI, be exercised by the Authority. The National
has the responsibility of laying down policies, Institute of Disaster Management (NIDM) will
plans and guidelines for DM and coordinating work within the framework of the broad policies
their enforcement and implementation for and guidelines of NDMA.
ensuring timely and effective response to
In essence, NDMA will concentrate on
disasters. The Guidelines will assist the central
prevention, preparedness, mitigation,
ministries, departments and states to formulate
their respective plans. It will approve the national rehabilitation, reconstruction and recovery
DM plan, prepared by the National Executive and also formulate appropriate policies
Committee (NEC) and plans of the central and guidelines for effective and synergised
ministries and departments. It will take such national disaster response and relief. It
other measures as it may consider necessary, will also coordinate the enforcement and
for the prevention of disasters, or mitigation, or implementation of policies and plans.
preparedness and capacity building, for dealing
with a threatening disaster situation. To this
2.1.2 National Executive Committee
end, it will be the responsibility of every central 2.1.2.1 NEC comprises the Secretary to
ministry or department to provide assistance the GoI in the Ministry/Department having
to NDMA, and the state governments will also administrative control of the subject of DM, as
extend necessary cooperation and assistance. the chairperson, and the secretaries to the GoI
It will oversee the provision and application in the ministries/departments of Agriculture,
of funds for mitigation and preparedness Atomic Energy, Defence, Drinking Water Supply,
measures. It has the power to authorise the Environment and Forests, Finance (Expenditure),
departments or authorities concerned, to Health, Power, Rural Development, Science and
make emergency procurement of provisions or Technology, Space, Telecommunications, Urban
materials for rescue and relief in a threatening Development, Water Resources and the Chief
disaster situation or disaster. It will also provide of the Integrated Defence Staff of the Chiefs
such support to other countries in times of of Staff Committee as members. Secretary,
14
Institutional Framework and Arrangements
NDMA, will be a special invitee to the meetings 2.1.3.2 Presently, NDRF comprises eight
of NEC. battalions with further expansion of two
additional battalions that have been sanctioned
2.1.2.2 NEC is the executive committee of
by the Government and are in the process of
NDMA, and it is mandated to assist NDMA in
being formed. These battalions are located
the discharge of its functions and also ensure
compliance of the directions issued by the at strategic locations and will be deployed
central government for the purposes of DM. proactively as required. This force is being
One of the important functions assigned to NEC trained and equipped as a multi-disciplinary,
is to coordinate the immediate response in the multi-skilled, high-tech force with state-of-the-
event of any threatening disaster situation or art equipment. To ensure prompt response
disaster on behalf of NDMA. Based on the policy during any disaster, each of the NDRF battalions
and guidelines, NEC will be responsible for will have three to four states/ UTs as their areas
preparing the national plan, getting it approved of responsibility. Further, a National Academy
by NDMA and then operationalising it. NEC will will be set up to provide training for trainers
also require any department or agency of the in DM and to meet the related national and
government to make available to NDMA or state international commitments.
authorities, such men or material resources as 2.1.3.3 Each battalion will have three to four
are available with it, for the purposes of handling Regional Response Centres (RRCs) at high
threatening disasters, emergency response, vulnerability locations where trained personnel
rescue and relief. It will also perform such other with equipment will be pre-positioned. NDRF
functions as NDMA may require it to perform. units will maintain close liaison with the state
2.1.2.3 T h e f u n c t i o n s p r e s e n t l y b e i n g administration and be available to them pro-
discharged by the Inter-Ministerial Group (IMG) actively, thus avoiding long procedural delays
in appraising the assessments made by the Inter- in deployment in the event of any serious
Ministerial Central Teams of the damage, the threatening disaster situation. Besides, NDRF
requirement of funds from the National Calamity will also have a pivotal role in Community
Contingency Fund (NCCF) and recommending Capacity Building and Public Awareness. NDRF
the quantum of assistance to be provided to the is also enjoined with the responsibility of basic
states will now be discharged by NEC. training of personnel of the State Disaster
Response Force (SDRF), Police, Civil Defence,
2.1.3 National Disaster Response
Home Guards and other stakeholders in disaster
Force
response.
2.1.3.1 The DM Act 2005 has mandated
2.1.4 State Disaster Response Force
the constitution of the NDRF for the purpose
of specialised response to a threatening 2.1.4.1 All States and UTs will be required
disaster situation or disaster. The general to train some personnel of their existing
superintendence, direction and control of the armed police battalions in DM, as they are
force is vested in, and exercised by, NDMA and critical first responders. States will ultimately
the command and supervision of this force is aim at equipping and training, one battalion
vested in the Director General of NDRF. equivalent force, progressively to generate
15
specialist response from within their existing 2.1.7 State Disaster Management
resources. These forces will also train some Authority
female personnel for looking after the needs of
2.1.7.1 At the state level, the State Disaster
the women. NDRF Battalions and their Training
Management Authority (SDMA) headed by the
Institutions will assist the states/ UTs in this
Chief Minister, will lay down policies and plans
effort. The states/ UTs will also be encouraged
for DM in the state. It will, inter alia, approve the
to set up DM training facilities in their respective
state plan in accordance with the guidelines laid
Police Training Colleges and include this subject
down by NDMA, coordinate the implementation
in their basic and in-service courses, for the
of the state plan, recommend provision of funds
non-gazetted and gazetted officers in those
for mitigation and preparedness measures and
Colleges.
review the developmental plans of the different
2.1.5 National Reserves departments of the state to ensure integration
2.1.5.1 The experience of major disasters of prevention, preparedness and mitigation
in the last decade has clearly established the measures.
need for a national initiative for pre-positioning 2.1.7.2 The state government will constitute
of some essential reserves at crucial locations, a State Executive Committee (SEC) to assist
including some for high altitude areas. Those the SDMA in the performance of its functions.
reserves are intended to augment the resources The SEC will be headed by the Chief Secretary
of the states. They will be co-located with to the state government and coordinate and
NDRF battalions at nine different locations in monitor the implementation of the national
the country and released to the states on the policy, the national plan and the state plan. It
recommendation of the NDMA. will also provide information to NDMA relating
2.1.6 National Institute of Disaster to different aspects of DM.
Management 2.1.8 District Disaster Management
2.1.6.1 NIDM has institutional capacity Authority
development as one of its major responsibilities, 2.1.8.1 At the cutting edge level, the District
along with training, documentation of research, Disaster Management Authority (DDMA),
networking and development of a national level headed by the District Magistrate, with the
information base. NIDM will function closely elected representative of the local authority
within the broad policies and guidelines laid as the co-chairperson, will act as the planning,
down by NDMA and assist in developing training coordinating and implementing body for DM and
modules, impart training to trainers and DM take all necessary measures for the purposes
officials and strengthening of Administrative of DM in the district, in accordance with the
Training Institutes (ATIs) in the state. It will guidelines laid down by NDMA and SDMA.
also be responsible for synthesising research It will, inter alia, prepare the district DM plan
activities. NIDM will be geared towards including the response plan for the district,
emerging as a ‘Centre of Excellence’ at the coordinate and monitor the implementation of
national and international levels. the national and state policies, the national, state
16
and district plans and ensure that the guidelines of civil defence will be community capacity
for prevention, mitigation, preparedness and building and creating public awareness in
response measures, laid down by NDMA and pre-disaster phase. The proposal envisages
SDMAs, are followed by all departments of the converting the town specific set-up of civil
government at the district level and the local defence to a district specific set-up. It is
authorities in the district. proposed to have 18 persons employed, on full
time basis, in each district-specific set-up, out
2.1.9 Civil Defence
of which eight will be the trainers and their duty
2.1.9.1 In any disaster, it is the community will be to train volunteers. Till the revamping is
that is always the first responder. Outside help finalised, states should start using the existing
comes in only later. Training the community and set up for training more and more volunteers and
making such response organised, is therefore spreading awareness on the different aspects
of utmost importance. of DM. The state governments will also activate
2.1.9.2 The mandate of the civil defence the remaining non-activated towns in a phased
has already been redefined to assign them an manner. The state governments/SDMAs and
effective role in the field of DM. They will be DDMAs will coordinate the human resources
deployed for strengthening the community of the civil defence set up as well as those of
preparedness and public awareness. A culture other agencies for performing/ responding to
of voluntary reporting to duty stations in the various disaster-related activities.
event of any disaster will be encouraged. A 2.1.9.4 In the meanwhile, the Civil Defence
proper civil defence set up in every District set-up already existing in the country will be
will be a boon for disaster response as the immediately utilised to train the community for
neighbourhood community is always the first disaster response in the concerned districts
responder in any disaster. The proposal to make of the already activated towns. The DG, Civil
civil defence District centric and be involved in Defence, in their respective states will work out
disaster response has already been approved training modules for DM covering awareness
by the GoI. Its phase-wise implementation has generation, first aid and rescue drills. NIDM
also begun. State governments will ensure their will prepare a comprehensive training module
operationalisation in their respective districts. simultaneously and circulate it, which will be
2.1.9.3 Integration of the Capacity Development incorporated in the already ongoing training.
into DM can work as a great catalyst for
2.1.10 The Cabinet Committee
organising community capacity building. Civil
on Management of Natural
defence has been authorised in 225 designated
Calamities and the Cabinet
towns in the country out of which 121 have
Committee on Security.
already been activated where volunteers have
been recruited and trained. There is a plan to 2.1.10.1 Cabinet Committee on Management
revamp civil defence, extending its coverage to of Natural Calamities (CCMNC) has been
all the districts in the country and assigning it constituted to oversee all aspects relating to
an important role in DM framework. According the management of natural calamities, including
to the proposal for revamping, the primary role assessment of the situation and identification
17
of measures and programmes considered 2.2.1 Ministry of Home Affairs

necessary to reduce its impact, monitor and
2.2.1.1 Ministry of Home Affairs (MHA) has
suggest long-term measures for the prevention
been the nodal ministry for DM in India since
of such calamities formulate and recommend
2002. It provides administrative support to
programmes for public awareness for building
NDMA. It is also the nodal administrative agency
up society’s resilience to them. In specific
for NDMA. MHA initiated the enactment of DM
cases, Cabinet Committee on Security (CCS)
Act 2005 and on the basis of this NDMA, SDMAs
will also be kept informed of the manner in
and DDMAs are constituted in the country.
which these disasters are being managed.
NDMA’s linkages with these committees will 2.2.1.2 MHA has taken initiatives for a
be institutionalised. number of programmes including GoI-UNDP
Disaster Risk Management (DRM) Programme,
2.1.11 National Crisis Management
Information and Communication Technology
Committee
(ICT) for Disaster Reduction, Program for
2.1.11.1 The National Crisis Management Enhancement of Emergency Response (PEER),
Committee (NCMC), comprising high-level National Programmes for Capacity Building of
officials of the GoI, headed by the Cabinet Architects in Earthquake Risk Management
Secretary, will also deal with specified major (NPCBAERM), Capacity Building of Engineers
crises. It will be supported by the Crisis in Earthquake Risk Management (NPCBEERM),
Management Groups (CMG) of the central Model Amendment in Town and Country Planning
nodal ministries. The Secretary, NDMA, will be Legislations, Regulation for Land Use Zoning
a member of this Committee. and Building Byelaws for Structural Safety,
Development of City Disaster Management
2.2 Role of Central Ministries Plans under the Urban Earthquake Vulnerability
and Departments Reduction Project and Model techno-legal
regime for multi-hazard risk management in the
As DM is a multi-disciplinary process, States.
many central ministries and departments
will have a key role in assisting NDMA in the 2.2.2 Ministry of Urban Development
discharge of its functions. The nodal ministry Ministry of Water Resources/Central
and other ministries and departments of Water Commission (MoWR/CWC) has been
the GoI, i.e., the Ministries of Home Affairs, the nodal ministry/agency for dealing with
Agriculture, Civil Aviation, Environment Floods, focusing on riverine floods affecting
and Forests, Health, Atomic Energy, Space, large extents of rural areas. NDMA had taken
Science and Technology, Earth Sciences, a decision to address urban flooding as a
Water Resources, Mines, Railway, Department separate disaster de-linking it from Floods
of North Eastern Region, etc., will continue for the first time in the country and evolved
to address specific disasters as assigned to these guidelines. Taking into consideration
them. Further, Ministry of Home Affairs (MHA) the fact that stormwater drainage system,
will act as the administrative ministry on the which is one of the important components
subject of DM.
18
of UFDM is allotted to Ministry of Urban The total fund earmarked for the project is
Development (MoUD) under the business Rs. 50,000 crores. The duration of the Mission is
rules, NDMA had proposed that MoUD should seven years, beginning from the year 2005- 2006
be designated as the nodal ministry for Urban and it covers 65 cities. The Mission, for planned
Flooding. Consultations were held with MHA, urban perspective frameworks for a period of
MoWR/CWC, Ministry of Earth Science/ India 20-25 years (with 5-yearly updates) indicating
Meteorological Department (MoES/IMD), policies, programmes and strategies of meeting
Department of Space/ National Remote fund requirements, would be prepared by every
Sensing Centre (DoS/NRSC), Department of identified city.
Science and Technology/ National Spatial
In order to access funds under
Data Infrastructure (DST/NSDI) and SoI, MoES
JNNURM, each city has to prepare a City
and MoUD and they concurred with the
Development Plan (CDP), Detailed Project
proposal.
Reports (DPRs) for the projects being proposed,
MoUD will be at the centre stage of all action and sign a Memorandum of Agreement
points recommended in these guidelines. containing the timeline for reforms. Funds can
Adequate capacities must be built in the be released to cities based on the progress
ministry in order to carry out identified made on implementing the reforms and on
functions in a challenging manner. utilization of the funds released.
MoUD has launched various programme 2.2.2.2 Urban Infrastructure Development

including JNNURM, Urban Infrastructure Scheme for Small and Medium
Development Scheme for Small & Medium Towns
Towns (UIDSSMT) and North Eastern Region UIDSSMT aims at improvement in
Urban Development Programme (NERUDP), urban infrastructure in towns and cities in a
which have a lot of relevance for management planned manner. It has subsumed the existing
of urban flooding. The ministry is also putting schemes of Integrated Development of Small
in place the National Urban Information System and Medium Towns (IDSMT) and Accelerated
(NUIS). They have also set up a Committee Urban Water Supply Programme (AUWSP). The
of Experts for preparation of a Stormwater scheme applies to all cities/towns as per 2001
Drainage Manual. census, excepting 65 JNNURM cities/towns.
2.2.2.1 Jawaharlal Nehru National Urban The objectives of the scheme are to:
Renewal Mission
i) Improve infrastructural facilities and
JNNURM is a flagship programme of help create durable public assets and
the Government of India, the biggest so far in the quality oriented services in cities &
urban sector. The major component of JNNURM towns,
is infrastructure provisioning including storm-
ii) Enhance public-private-partnership in
water management system and sewerage
infrastructural development, and
system and will be carried out by different cities.
This reform linked programme aims to make iii) promote planned integrated
cities self-sustaining, efficient and responsive. development of towns and cities.
19
The State Governments may prioritize planning. 158 cities and towns from Class-I to
towns and cities on the basis of their felt-need. Class-VI from each State and Union Territory
While prioritizing towns, states would take into are being covered in phases. Under this
account existing infrastructure, population of Scheme, both attribute and thematic spatial
Scheduled Castes/Scheduled Tribes/minorities data at various levels are being generated for
and special problems like hilly terrain. The urban planning and decision support. Twelve
components for assistance under the Scheme thematic spatial data layers, viz. urban land
include all urban infrastructure development use/cover, physiography (outside city area),
projects including water supply and sewerage. geomorphology (outside city area), geological
structure (outside city area), lithology (outside
2.2.2.3 North-Eastern Region Urban
city area), drainage, soil cover, texture and
Development Programme
depth (outside city area), surface water
North-Eastern Region Urban bodies, road, rail, canal and transportation
Development Programme (NERUD) is a routes are being covered in the database. The
programme run with assistance from Asian database creation uses modern data sets such
Development Bank (ADB) covering North as satellite images and aerial photographs
Eastern States. The NERUD Programme is to to generate comprehensive spatial data in 3
be implemented by MoUD in the North-Eastern scales i.e. 1:10,000 for Zonal Development
Region (NER) of India, covering Arunachal Plan/ Master Plan/Development Plan, 1:2000
Pradesh, Assam, Manipur, Meghalaya, Mizoram, for detailed Development Plan and on
Nagaland, Sikkim and Tripura. It is to enable these 1:1000 for utility planning for sewerage and
states to meet their development challenges in drainage. It is also envisaged to use ground
the urban sector with the assistance of ADB profiling/ penetrating radar technology for
for infrastructure investment in priority urban utility mapping. Such spatial data will be
services, viz. (i) Water Supply, (ii) Sewerage and integrated with the conventional data as well
Sanitation, and (iii) Solid Waste Management, as demographic database. This database will
Project Management and Capacity Development have all details of infrastructure, population,
of the ULBs through institutional and financial utilities and also digital elevation, including
reforms. In Phase – I capital cities of 5 north administrative boundaries.
eastern states, viz. Agartala (Tripura), Aizawl
2.2.2.5 Manual on Municipal Solid Waste
(Mizoram), Gangtok (Sikkim), Kohima (Nagaland)
Management
and Shillong (Meghalaya) are covered and Phase
– II will cover the state capitals of Arunachal A Committee of Experts constituted
Pradesh, Assam and Manipur. The total cost by the MoUD prepared a Manual on Municipal
of Phase-I of NERUDP is estimated at $285.7 Solid Waste Management in the year 2000.
million (`1371.4 crore @ $1 = ` 48). Among other things, it has a relevant section
on stormwater drainage.
2.2.2.4 National Urban Information System
2.2.2.6 Committee on Stormwater Manual
NUIS scheme was launched for
creating an urban information system to MoUD has constituted an Expert
meet the special requirements of urban Committee for the preparation of an Urban
20
Stormwater Drainage Manual which will take 2.2.3.3 Environmental Impact Assessment
into account current international practices,
In India, Environmental Impact
Indian rainfall pattern, the specific locations
Assessment (EIA) was been formally introduced
of the cities and future needs. It is for the first
in 1994. It relied on the institutional framework
time that such an exercise is being carried out
that has a strong legislative, administrative
in the country.
and procedural set-up. Both central and state
2.2.3 Ministry of Environment & authorities together are sharing the responsibility
Forests of its development and management.
2.2.3.1 Ministry of Environment and Forests 2.2.3.4 National Lake Conservation Plan
(MoEF) is the nodal agency in the administrative
The National Lake Conservation Plan
structure of the Central Government, for
(NLCP) was approved as a 100% centrally
the planning, promotion, co-ordination and
funded scheme during the Ninth Plan. Due to
overseeing the implementation of environmental
shortage of resources at that time, conservation
and forestry programmes.
of only 3 small lakes viz. Ooty and Kodaikanal
2.2.3.2 Municipal Solid Waste in Tamil Nadu and Powai in Mumbai were
(Management & Handling) Rules, taken up at a cost of ` 14.9 crore. The scheme
2000. now provides assistance to States at 70:30
Besides the Water (Prevention and sharing basis and till date 28 projects have
Control of Pollution) Act of 1974 and Air been approved for conservation of 42 lakes at
(Prevention and Control of Pollution) Act of 1981, an estimated cost of about ` 508 crore. Since
the Environment (Protection) Act was enacted in lakes/ water bodies act as retention/ detention
1986. It is an umbrella legislation empowering bodies, improvement/ augmentation of their
central government to take measures necessary holding capacity has a definite bearing on the
to protect and improve the quality of the management of urban flooding.
environment by setting standards for emissions 2.2.4 Ministry of Water Resources
and discharges; regulating the location of
2.2.4.1 The Central Water Commission (CWC)
industries; management of hazardous wastes,
is an apex Organization for flood management
and protection of public health and welfare. This
schemes of India. One of the major provisions
has relevance in the context of urban flooding.
of CWC is planning, establishment, Operation
Under this Act, MoEF has issued the and Maintenance (O&M) of hydrological
Municipal Solid Waste (Management & Handling) observation stations and flood forecasting
Rules, 2000. The Municipal Solid Waste (MSW) systems in the entire country. CWC has taken
Rules provide a framework encompassing the initiative of modenisation programme by
collection, transportation, treatment and installing sensor-based equipment for data
disposal of municipal solid waste. As already collection, satellite-based communication,
pointed out, improper dumping of Municipal automatic flood forecast formulation, using
Solid Waste (MSW) into drains/ nallahs is a major available computerised mathematical models
factor contributing to urban flooding. and automatic transmission/ dissemination of
21
flood forecasts/ flood information through Very IMD has taken the initiative of
Small Aperture Terminal (VSAT) technology a modernisation plan in the Eleventh Five
for expeditious data collection, transmission Year Plan. The details are discussed under
and dissemination. The installation of network Chapter 3.
density has been followed from IX Plan to XI
2.2.5.2 Indian Institute of Tropical Meteorology
Plan and under XI Plan it is proposed to have
(IITM) functions as a national centre for basic
additional 222 new telemetry systems in the
and applied research in monsoon meteorology.
country.
Its primary functions are to promote, guide and
2.2.5 Ministry of Earth Sciences conduct research in the field of meteorology in
all its aspects.
2.2.5.1 IMD under MoES is the custodian
of rainfall data in India and the rainfall data is 2.2.5.3 T h e n a t i o n a l m e t e o r o l o g i c a l
archived at National Data Centre (NDC) of India and hydrological services provide timely
Meteorological Department at Pune. advice and early warnings on weather and
climate conditions for prevention/mitigation,
The IMD is mandated as under:
sustainable development and policy formulation.
i) To take meteorological observations They contribute to the development and
and to provide current meteorological implementation of policy framework, relating
information and forecast for optimum to protection of life and property, increased
operation of weather-sensitive activities awareness and preparedness, increased safety
like agriculture, irrigation, shipping, on land, at sea and in air enhance quality of
aviation, off-shore oil explorations, life, sustainable economic growth, protection
etc., of environment, reliable and timely advice
ii) To warn against severe weather to policy makers and protection of natural
phenomena like tropical cyclones, ecosystem, including both fresh water and
norwesters, duststorms, heavy rains marine ecosystem.
and snow, cold and heat waves, etc.,
2.2.6 Ministry of Defence
which cause destruction of life and
property, 2.2.6.1 Armed forces, comprising of Army,
Navy, Air Force besides Coast Guards have
iii) To provide meteorological statistics
always played a pivotal role in DM, including
required for agriculture, water resource
rescue, evacuation, restoration of casualties,
management, industries, oil exploration
roads, dropping of relief supplies, etc. a very
and other nation-building activities,
important role during disasters. The Armed
iv) To conduct and promote research in Forces are quickest to reach the affected areas
meteorology and allied disciplines, for delivering timely action. Restoration of
and communication by them is very often a major
v) To detect and locate earthquakes contribution. The Air Force assists in search
and to evaluate seismicity in different and rescue, evacuation and airdropping of relief
parts of the country, for development supplies. The Indian Navy and Coast Guard
projects. divers assist in rescue operations as well.
22
2.2.7 Ministry of Science & Technology with the enactment of the Constitution (74th
2.2.7.1 Survey of India (SoI) under the Ministry Amendment) Act in 1992. Until the Amendment,
of Science & Technology has a major role in local governments in India were organised on
mapping of urban areas, which will be the basic the basis of the ‘ultra vires’ principle [beyond
requirement for urban planning and therefore the powers or authority granted by law] and
very relevant to urban flooding. the state governments were free to extend or
control the functional sphere through executive
2.2.8 Ministry of Space decisions without an amendment to the
2.2.8.1 NRSC under the Ministry of Space has legislative provisions. This is an initiative made
an important role in preparing Airborne Laser to improve the performance ability of urban local
Terrain Mapping (ALTM) data and National bodies, so that they are able to discharge their
Database for Emergency Management (NDEM). duties efficiently.
Data provided by ALTM will be very useful for
2.4.2 The important provisions specified in
geospatial urban planning. NRSC has initiated
the Act include constitution of three types of
the urban flooding programme under the Indian
municipalities, devolution of greater functional
Space Research Organisation’s (ISRO) Disaster
responsibilities and financial powers to
Risk Management Programme.
municipalities, adequate representation of
weaker sections and women in municipalities,
2.3 The State Governments regular and fair conduct of municipal elections,
2.3.1 At the local level the initiatives by state and constitution of Wards Committees, District
govt. departments like Municipal Administration Planning Committees, Metropolitan Planning
and Urban Development (MA&UD), Public Committees and State Finance Commissions.
Works Department (PWD)/ Irrigation/ Roads 2.4.3 In order to provide the common
and Buildings, Education, Health, State Pollution framework for Urban Local Bodies (ULBs) and
Control Board (SPCBs), State Remote Sensing help to strengthen the functioning of the local
Application Centres (SRSACs), etc. have a bodies as effective democratic units of self-
definite role in the context of management of government. The Act provides constitutional
urban flooding. However, at the cutting-edge status to “municipalities” which are of 3
level, it is the ULBs which are responsible for types:
the management of urban flooding.
i) Municipal Corporation for a larger
2.3.2 The department/section under the urban area,
municipal local bodies dealing with Town and
ii) Municipal Council for a smaller urban
Country Planning, engineering, sanitation,
area, and
besides water supply and sewerage, have a
definite role in UFDM. iii) Nagar Panchayat-for transitional area
(an area which is being transformed
2.4 Urban Local Bodies from rural to urban area).
2.4.1 An important initiative of the Government 2.4.4 The Constitution (74th Amendment)
of India was to strengthen municipal governance Act, 1992 provides a basis for the State
23
Legislatures to guide the State Governments of development and investment plan and
in assignment of various responsibilities to prioritization of the implementation such
ULBs and to strengthen municipal governance. plan, to undertake execution of projects
Accordingly, several State Governments and schemes as per the said plan and/or
have amended their Municipal Acts/Laws/ through action plans for any sector or area in
Legislations, so as to bring these in conformity their jurisdiction, to act as an apex body for
with the Constitutional Provisions. coordination and execution of the projects or
schemes for the planned development and to
2.4.5 Like other responsibilities, ULBs
coordinate the development activities of various
are responsible for all DM efforts. They have
local authorities and departments in the area
to be specially geared up to deal with urban
besides others including providing alternative
flooding, especially in terms of early warning,
areas for rehabilitation of persons displaced by
preparedness, mitigation, rescue, relief and
projects and schemes which provide for such
restoration. They will prepare City DM Plan in
requirements, etc. They also allocate finances
consonance with the Guidelines of NDMA. As
based on the plans and programmes of the
the agency is responsible for administering the
local bodies for undertaking development of
techno-legal regime, they will have a very critical
amenities and infrastructure. They also have a
role to play in mitigation.
role in enforcing the techno-legal regime.
2.4.6 Management of urban flooding is the
responsibility of the ULB at local level. The state 2.6 Cantonment Boards
government may also take various schemes/
programmes which have impact on urban 2.6.1 Many cities in India, such as Ahmedabad,
flooding. However, the role of ULBs is crucial Belgaum, Bengaluru, Ambala, Kanpur, Bathinda,
in the management of urban flooding in their Delhi, Pune, Sialkot, Secunderabad and
respective cities/towns. Rawalpindi, contained large cantonments of
the former British Indian Army. While in the 18th
2.5 Urban Development and 19th century cantonments in India were
viewed as semi-permanent, by the turn of the
Authorities
20th century they became permanent garrisons
2.5.1 Urban Development Authorities and today many of them have large civil areas
(UDAs) have been set up in the states for with high population densities as they have fully
the purposes of planning, coordination, merged with the contiguous municipal areas.
supervising, promoting and securing the
2.6.2 India currently has 62 cantonments
planned development of the area under their
in 17 different states. Each cantonment
jurisdiction in view of rapid urbanization.
is administered by a Cantonment Board.
Some cities like Mumbai and Bengaluru
Cantonment Act of 2006 was enacted with
have established Regional Development
a view to impart greater democratisation,
Authorities while Hyderabad has a Metropolitan
improvement of their financial base to make
Development Authority.
provisions for developmental activities and
2.5.2 The main functions of the Urban for matters connected therewith or incidental
Development Authorities include preparation thereto.
24
2.7 Notified Area Councils regard to finance, public health, public works,
education and any other special subject
2.7.1 The General administration is relating to the purpose of the Act. Executive
managed by a council which elects its Officer with the supporting staff carries out
chairman and vice-chairman. The resolution day-to-day administration.
passed by the councils are executed by the
Executive Officer, who is an officer deputed 2.7.2 There is a Special Planning Authority
by the state Govt. The financial resources of playing active role in urban planning and
the National Area Councils (NACs) are mainly administration. This organisation looks after
derived from various taxes within the urban urban regional planning for development of the
area and the grants received from Govt. The urban area. Besides, it also acts as the executing
council discharges the duties, as provided agency for area development programmes in
under the Orissa Municipality Act, 1910 with infrastructure and social service sectors.
Actions recommended for ULBs in these guidelines will be applicable to all Cantonment Boards,
Notified Area Councils, wherever they exist and Metropolitan/Urban Development Authorities
(as applicable).
25
3 Early Warning System and

Communication
3.1 Overview the network density is insufficient and national

network stations are situated according
3.1.1 The management of urban flooding
to hydrological and meteorological needs.
is an emerging subject, and as such it has to
However, to meet the needs of urban flood
be treated holistically in a multi-disciplinary
warnings, rainfall measuring stations have to
manner. There are many issues that need to be
be situated locally and densely, based on land
considered in order to develop sound, reliable
development, terrain, watershed, catchment
and most representative UFDM strategies. A
geometry, etc. For these reasons, many
significant part of this management framework
countries have established local monitoring
is dependent upon the use of science and
networks in addition to their national networks
technology for improved monitoring, modelling/
in coordination with National Meteorological and
forecasting and decision-support systems. One
Hydrological Services (NMHSs).
way of improving the preparedness for urban
flooding is by setting up a vulnerability-based
3.3 National Hydro-
geospatial framework to generate and analyse
different scenarios. This will help in identifying
meteorological Network
and planning for the most effective/ appropriate 3.3.1 Currently, CWC maintains a network of
actions in a dynamic way, incorporating day-to- 878 stations across the country for collection
day changes that take place in urban areas, with and analysis of river basin scale data. For
the potential to alter the vulnerability profile. expeditious data collection on 24X7 basis,
3.1.2 There is an urgent need for reliable CWC has installed 55 hydrological stations in
and accurate temporal and spatial data at the Chambal and Mahanadi basins; 168 stations,
local level on real-time basis for enhancing early covering Godavari, Krishna, Mahanadi, Yamuna,
warning using robust computer models as it is Damodar and Brahmaputra basins. During the
the most basic pre-requisite. XI Plan, CWC has proposed to install additional
222 new stations in the country for which the
3.2 Data Networks for Monitoring locations are under identification.
and Early Warning CWC should maximize the real-time hydro-
3.2.1 Information from national monitoring meteorological network to cover all the urban
networks is often insufficient for local authorities centers in support of the emerging priorities in
to evaluate flood risk at the local scale. Often,
26
Early Warning System and Communication
dealing with urban flooding. The requirement can become useful input for distributive rainfall
will be assessed taking into consideration all runoff and urban hydrological models.
cities/ towns which are particularly located
3.5 Regional Networks
on river banks, upstream and downstream
of major and medium dams and island 3.5.1 Currently, the following local scale
cities. Based on that assessment, CWC will networks of AWSs and ARGs have been
initiate the process to prepare a plan and set up and are functional for serving various
implementation strategy to seek the support applications:
of the government for commissioning such
i) Narmada Control Authority – 90
hydrological networks during the XII 5-year
ARGs,
plan on priority.
ii) ISRO South Network around SHAR
[Action: CWC, MoUD and States/UTs]
Centre – 200 AWSs,
3.4 National Meteorological iii) ISRO Network over NE India – 80

AWSs,
Network
3.4.1 IMD is the custodian of rainfall data iv) Karnataka State Rainfall Monitoring
in India. Other rainfall observing authorities Network – 700 ARGs (under further
normally exchange rainfall data with IMD expansion), and
for storage and processing for future use. v) A n d h r a Pr a d e s h S t a t e Ra i n f a l l
Catchment-wise daily/hourly rainfall data are Monitoring Network – 1200 ARGs
collected and archived for various applications (Under Commissioning).
by the IMD at its NDC, located at Pune.
3.6 Local Networks for Real-
3.4.2 As a part of the modernization plan,
IMD will establish about 3800 satellite-linked Time Rainfall Data
Automatic Rain Gauge (ARG) stations, 1170 3.6.1 Traditionally, point rainfall data has
Automatic Weather Stations (AWS) and 55 been used in the calibration of models, as well
DWR for 24X7 monitoring of weather in real- as for analysing the past flood events and their
time with the state-of-the-art observational associated hydrological characteristics at the
and communication technology support river basin scale. In an urban scenario, it will
infrastructure. During 2010-2012, IMD is in the be difficult to have a good length of historical
process of establishing 1350 ARGs, 675 AWSs data available, covering the urban catchment/
and 12 DWRs. Real-time reception of data watershed particularly in the required density.
from these telemetry networks will facilitate
However, every effort should be made to start
nowcasting of high intensity rainfall. On the
obtaining all such available data for building
other hand, numerical models can provide
a most representative data of the urban
Quantitative Precipitation Estimate (QPE) and
environment to the extent possible.
Quantitative Precipitation Forecast (QPF) at
grid points and with lead time of 2-3 days. The 3.6.2 Lack of spatial and temporal rainfall
data from ARGs/AWSs and grid point QPE/QPF data over urban areas on a real-time basis is
27
a very critical gap. Therefore, establishment recommended rain gauge density for urban
of local networks for real-time rainfall data areas is 1 ARG per 4 sq km while in Malaysia, it is
has to be accorded the highest priority. This 1 ARG per sq km. However, the area covered by
will be immensely useful for much improved all 2325 class I, II and III cities is about 54274.59
early warning, resulting in better response and sq km and also total no. of rain gauge stations
management of urban flooding. Such rainfall required to cover all these cities/towns on the
data will also enable robust designing of urban basis of 1 per 4 sq km will be about 13569.
drainage infrastructure in future. In UK, the
Table 3.1: Status of Local Networks for Real-Time Rainfall Data
Ord Rain
S. Area in sq Proposed/ Requirement
City AWS/ARS Gauge
No. km Installed* (1/4 sq km)
Stations
1. Delhi 1483.00 11 6 30 371
Greater 35*
2. 603.00 2 2
Mumbai 65 151
3. Ahmedabad 190.84 1 1 7 48
4. Bangaluru 226.00 1 4 - 57
5. Chennai 176.00 1 3 30 44
6. Kolkata 197.54 1 2 - 49
7. Hyderabad 625.00 1 2 150 156
Installation of 35 automatic weather stations (rain gauges) after 26 July 2005 floods in Mumbai
On 26th July 2005, Mumbai suffered severe flooding due to 944 mm rainfall in 24 hours recorded
at Santa Cruz observatory at Mumbai airport. According to the Government of Maharashtra,
over 60 % of Mumbai city was inundated to various degrees. At that time, there was no reliable
real-time rainfall forecast mechanism and IMD was unable to issue advance warnings due to the
lack of state-of-the-art equipment like tipping bucket rain gauges, etc. Thus, disaster managers
had no means of knowing the spatial or temporal variation of rainfall in real-time. To improve the
response and determine the spatial and temporal variation of rainfall in real-time, a network of
35 weather stations with tipping bucket rain gauges has been setup in the city by the MCGM
and Indian Institute of Technology Bombay in June 2006. Majority of them are installed on the
roof of the fire station control rooms. These rain gauges have been programmed to give rainfall
intensity in realtime (every 15 minutes) to the emergency control room at MCGM headquarters
through internet. The average rain gauge density is 1 per 16 km2 and inter-station distances
ranges from 0.68 km to 4.56 km. This network has enabled monitoring of rainfall in real-time and
has been of immense benefit to disaster managers for mobilizing rescue and relief to the flood
affected areas during the heavy rainfall since 2006. An automatic Doppler flow gauge has also
been set up in the upstream reaches of Mithi River to measure the flow levels and issue early
warnings. IMD is also in the process of setting up a DWR very shortly.
28
i) IMD will set up a ‘Local Network Cell’ in the IMD headquarters,

ii) Local Networks with ARGs will be installed in all 2309 Class I, II and III cities and towns with
a density of 1 per 4 sq km. Class I cities will be covered by the end of 2012 and the rest by
the end of 2015,
iii) The density will be further increased to 1 per sq km, based on the experience gained in
urban flood management,
iv) The sampling of rainfall should be uniformly fixed between 5 to 15-minute interval (depending
upon topography) to capture the high intensity rainfall data which is crucial for early warning,
better response actions, future drainage design, and
v) Emergency Operation Centres (EOCs) will be set-up by the ULBs and connected to the
ARG network.
[Action: MoUD, States/UTs, IMD, CWC and ULBs]
3.7 Doppler Weather Radars 3.7.3 The advanced meso-scale numerical

weather analysis forecast systems that can
3.7.1 DWRs can play a very important role be configured exclusively for megacities are
in providing a lead time of 3 to 6 hours for capable of assimilating AWS observations from
monitoring all developing high impact rainfall the local networks and DWR products viz. radial
events at the local scale and contribute to velocities and winds generated on continuous
effective urban flood emergency response basis. At present, 7 DWRs are operational at
management. The DWR has the capability to Delhi, Hyderabad, Kolkata, Visakhapatnam
identify the zones of severe thunderstorm/ Machlipatnam, Sriharikota and Chennai. IMD is
rainfall in urban areas by closely monitoring the is in the process of commissioning additional
movement of cloud bands. DWRs at Agartala, Bhopal, Goa, Karaikal, Kutch,
Lucknow, Mohanbari, Mumbai, Nagpur, Paradip,
3.7.2 The data sets from DWR are available
Patna and Patiala by 2012.
in fine temporal and spatial resolution which
is critical for understanding, monitoring and i) DWRs will be calibrated with
nowcasting (very short-term warning) of real-time rainfall data from the local
severe weather events in near real-time, networks,
particularly, in the estimation of rainfall rate and ii) City/ town maps will be incorporated on
its accumulation. The rainfall forecast from the the DWR images,
DWRs will be calibrated and fine tuned with iii) Cities/ towns will be sub-divided on the
real-time rainfall data from the network of ARGs basis of watersheds and a protocol will be
set up in cities and towns. Mosaics of rain rate developed for forecasting rainfall in urban
and accumulated quantum of rainfall generated areas on the basis of watershed,
in real-time from adjacent DWR stations, when iv) IMD and MoUD will work out a strategic
established, will enhance the warning time scale expansion of DWR network in the country
of developing high intensity rainfall events in the on priority basis to cover all urban centres
vicinity of urban environments. with specified timelines, and
29
v) An appropriate redundancy plan for and generate a most representative rainfall

radar coverage of local systems with analysis for utilization in UFDM models. All
shorter radial coverage (30-50 Km), necessary interfaces will be developed to fuse
using either ‘C’ or ‘S’ band radars will be the information for a comprehensive rainfall
worked out by a national level Standing scenario, developing with updates every 15 – 60
Advisory Committee to guide suitable minutes depending upon the rainfall intensities/
urban flood monitoring mechanisms. events.
[Action: IMD and MoUD] 3.9.2 Objectives
i) Serve as an access point to a
3.8 Data Integration and
distributed network of national, state
Sharing and other local (surface water / ground
3.8.1 It has been emphasized that the data water /irrigation) agency hydrological
collection and integration is a very important databases,
exercise for the organization entrusted with the ii) Reduce confusion about water
responsibility of integrating multi-agency/sensor data and lessen the chance of
rainfall and weather monitoring networks. misinterpretation,
Therefore, it is essential that these issues are
addressed appropriately, so that reliable and iii) Simultaneously access water data
good quality data becomes available to the local from many databases, without
organizations for effective design of urban flood having to know about the database
management systems. they are connecting to or how to
connect to it, and
It is essential to design and strengthen local
iv) Make the release of data in a more
hydro-meteorological data networks to cater
efficient and simple fashion, based on
for the needs of urban flooding holistically.
an agreed national standard.
Coordination mechanism will be established
among all agencies for deriving maximum
3.10 Sensor Web Development
benefit from the efforts of each individual
organization.
– A Service-Oriented
Architecture Approach
[Action: IMD, CWC, MoUD, States/UTs, and
ULBs] 3.10.1 Sensor webs will have to be
dynamically configured to
3.9 National Hydrological i) Accept inputs from other sensor
Information System systems,
3.9.1 The real-time availability of rainfall ii) Interact with the available
information from heterogeneous networks communication environments, based
operated by various national/regional/local scale on what they detect or are tasked to
agencies provides an opportunity to integrate perform,
30
iii) Collect observations and model results 3.11 Infrastructure and other
in real-time, Baseline Data
iv) Dynamically acquire and fuse data from
3.11.1 In addition to the hydro-meteorological
models, satellite and in situ sensors,
data, a large amount of data on infrastructure
v) Validate data observations in near real- and other related items is also required. In
time, present-day context, geospatial technologies
vi) Provide intelligent sensor control and Geographical Information System (GIS)
feedback to enable real-time sensor tools can be very valuable and indispensable
tasking, and to provide a Spatial Database Infrastructure
(SDI), that is, ready to use IT-based solutions
vii) Enable discovery of, and access
for managing urban flooding. Such SDI is
to, sensor web components and
facilitated by the space-based platforms like
services.
high resolution data from CARTOSAT series of
3.10.2 Building an Underlying Sensor satellites and geospatial technologies like ALTM,
Web Flow GIS, and Global Positioning System (GPS). These
3.10.2.1 Having established robust sensor tools help in capturing, integrating, visualizing
level service architecture for accessing and (modelling) diverse and large scale datasets.
processing multiple web-based data sources of The tools also assist in building query-based
various rainfall monitoring networks to account information systems between varied features
for various UFDM tasks: and objects of interest along with integration
of bio-physical and socio-economic data to
i) 24X7 event monitoring (network of rain strengthen Decision Support Systems (DSSs).
gauges, monitoring systems),
3.11.2 In City/Town Development Plan,
ii) Urban Flood Hazard Mitigation Models monitoring and management of various details of
to predict potential events, terrain such as elevation, relief, slope/gradient and
iii) Event detection or model prediction aspect, in addition to other surface details such as
triggers for near real-time sensor buildings (planimetry and height), infrastructure,
observation task, vegetated areas and surface drainage details
are required. The Digital Elevation Model and
iv) New observation and improved
Digital Terrain Model (DEM/DTM) details would
forecast to feed DM portals, and
not only help to delineate the macro and micro
v) Fuse data products and identify inundation/flooding of low-lying catchment areas,
mismatches where calibration is but also to measure the built up area footprints
needed. and impediments while calculating the surface
runoff as indicators for refining the urban flooding
A dedicated high bandwidth communication
models. The terrain DEM can be integrated
channel is to be built, for ensuring smooth
with other infrastructure details like road/street,
underlying sensor web flow of all available
rail network, public utilities/facilities such as
information and products.
water supply, sewer/stormwater lines and other
[Action: DIT and SWAN] communication networks.
31
3.11.3 Spatial distribution, extent and ii) Institutional mechanism will be evolved
geographic location of different land use to share data/information with the
footprints would also be required for urban institutions and other concerned
planning. Different land use details should authorities at local level. Information
pertain to residential (housing), commercial, should be shared with states and
public/semi-public, industrial, recreation areas, vulnerable cities under the overall
etc. within the urban limits. Land cover should architecture of NUIS.
include details, such as vegetated/ tree covered
[Action: MoUD, NRSC, SoI, SRSACs and
area, garden/parks and vacant/ open land, not ULBs]
only within urban limits, but also in the urban
fringes falling within the watershed. Water 3.12 Flood Early Warning System
bodies, such as tanks/lakes are necessary
3.12.1 Meteorological forecasts prepared
because they would act as pockets of areas
by IMD, largely include a description of the
to absorb/store and also minimize the surface
current and forecasted meteorological weather
water flow during flooding. Surface or natural
situation, supplemented by information on the
drainage such as small streams would allow
anticipated rainfall, temperature, wind velocity,
carrying flood waters to nearby bigger streams/
etc. generated by Numerical Weather Prediction
rivers or tanks.
(NWP) models. They are prepared by weather
3.11.4 Landform or geomorphologic features forecasters for larger regions.
within and outside the city would provide
3.12.2 Nowcasting systems with ultra-short-
insight about the surface expressions of the
term forecasts at 5 to 30 minutes with all
terrain with respect to its form of materials
supporting tools for weather forecasters will
and processes involved in developing them, be used for operational practice in the near
for example, flood plain areas close to the future. Urban area hydrological forecasts will
proximity of rivers. Landforms also manifest be worked out for relatively smaller urban
with respect to geological and lithological rock sectors and also covering large-scale suburban
types and structures. Rock types would enable areas for rendering effective local scale urban
to provide an understanding of the hardness or flood warnings. Efforts are to be made for
softness of the terrain which is important while the development/calibration of hydrological
planning construction in towns and cities. Soil models on a watershed scale. The connection
information about its cover, texture and depth between the precipitation thresholds, leading
would be helpful while planning the foundation to the reaching of dangerous levels in the
of buildings, stormwater drainage and sewerage sections controlling small urban sectors with
networks. torrential rainfall regime, will be established
i) Data models will be built for urban by correlating the characteristics of high flood
infrastructure, involving geospatial with its triggering factors (balance between
approach with due procedures for data likely runoff versus drainage). On the basis of
standardization, collation, quality check these correlations, there can be pre-established
and annual updation, and thresholds of the precipitation characteristics
32
(amount, duration, etc.), which can cause local event based on real-time rainfall data is useful
urban flooding. with an Early Warning System (EWS), it may not
always be possible to use it in certain locations
3.12.3 Interpretation of the meteorological
and/or circumstances. It is possible that the
and hydrological situation on continuous basis
low-lying areas and/or downstream regions in a
by the ULBs is critical for effectively responding
watershed are not experiencing any rainfall but
to the emerging flood scenario.
the rainfall that occurred in upstream stretches
results in the movement of flood waters from
3.13 Operational Support
upstream to downstream reaches. In such
3.13.1 The EOC of the ULB will be the nerve situations, real-time measurements of water
centre for all DM related activities. They will be levels at key locations in the entire watershed
equipped with the state-of-the-art facilities. In the can be very important. A pre-analysis of the
context of urban flooding the software installed existing water level data and associated flooding
on computers at the EOC should be able to in downstream reaches in the drainage system
extract rainfall intensity for various durations from should be used to determine ‘critical water
an ongoing storm data transmitted in real-time. levels’ at key locations in the drainage system.
The suggested durations for the calculations of As soon as the observed water level at one of
rainfall intensity are 5, 10, 20, and 30 minutes the key locations crosses a certain fraction of the
and 1, 2, 3, 6, 12, 24, 36, 48 and 72 hours. ‘critical level’, an imminent flood threat would
The database should consist of critical rainfall be assumed to be constituted.
intensity for each of the durations in a local area
3.14.2 The input data observed in real-time
based on an analysis of the historical rainfall
collected at the EOC from the observation
data. This would be helpful in comparison of
network must be corrected for any errors and/
the emerging situational rainfall to assess the
or inconsistency in them. This is because any
imminent threat of urban flooding. Ultimately, all
error in the data gets propagated through the
this will be displayed in a form that will facilitate
mathematical models resulting in erroneous flood
the decision making process.
forecasts, which may lead to an erroneous flood
Responsibility for operation and maintenance management response being implemented.
(O&M) of all equipment set up by organisastions
3.14.3 The Flood Early Warning System
like the IMD/ CWC etc will remain with the
(FEWS) for coastal areas also needs data on sea
respective organisations. Facilities, exclusively
water level in the form of tidal data in addition
setup by the ULBs, will be operated and
to the hydro-meteorological data depending on
maintained by them. It will be important to
the hydrological setting of the area.
have a dedicated establishment at local levels
for this purpose. State-of-the-art automatic water level recorders
[Action: IMD, CWC, States/ UTs and ULBs] must be installed throughout the drainage
network of the watershed, which may
3.14 Measurement of Flood sometimes extend beyond the administrative
Levels boundary of the ULB.
3.14.1 While detection of an imminent flood [Action: States/UTs and ULBs]
33
3.15 Decision Support System generated from mathematical models.
3.15.1 Once the flood forecasts have been 3.15.2 A five-stage flood management decision
generated, these can be used to characterize support system is suggested. Depending on the
the flood severity and implement the associated combination of various climatic and hydrologic
flood management plan. The severity of the flood variables involved, a flood index of ‘None’,
can be characterized, based either on the recently ‘Minor’, ‘Moderate’, ‘Major’, and ‘Severe’ can
observed data in real-time or the flood forecasts be determined as shown in Table 3.2.
Table 3.2: Flood Management Decision Support System
S. No. Category of Flood Warning Impact/Action
1 None No threat of flood • normal functioning of the urban system

2 Minor Minor flooding in • causes some inconvenience to the
some areas public
3 Moderate Inundation of low- • may not require evacuation of houses
lying areas • disruption of roadways but not railways
and airports
4 Major Inundation of large • requires evacuation of houses

areas • wider disruption of rail, road and air
traffic
5 Severe Large scale • needs complete evacuation of houses and
inundation of many businesses
parts of the cities • towns and cities cut off from other parts
of the country
• major disruption of rail, road and air
traffic
3.15.3 The whole system has to operate The ULB will be responsible for developing
at emergency level under a severe flooding step by step procedures and actions to be
situation. Associated with each flood index is a taken under each flood management strategy.
flood management strategy with well-defined Once the flood has been characterized, the
standard operational procedures (SOPs) with associated flood SOPs will be immediately
regard to the functioning of various units of initiated.
ULBs. These are ‘Normal’, ‘Watch’, ‘Alert’,
[Action: States/UTs and ULBs]
‘Warning’, and ‘Emergency’ levels of flood
intensity respectively. 3.15.4 The main step in characterization of
a flood is to compare the rainfall depth and/
34
Table 3.3: Illustrative Flood Characterization and Associated Flood Management Decision
Flood Level at Location

S. No. D-Hr Rainfall Depth (mm) Flood Index Flood Decision
X1 (m)
1. < R2L < FL2L None Normal
2. Between R2L and R2U Between FL2L and FL2U Minor Watch
3. Between R3L and R3U Between FL3L and FL3U Moderate Alert
4. Between R4L and R4U Between FL4L and FL4U Major Warning
5. > R4U > FL4U Severe Emergency
or flood levels at key locations in the drainage table depending on the additional data available
basin (observed or forecasted) with the critical in the region in terms of other climatic variables
values of these variables that are pre-decided, and/or remote sensing images. For example, a
based on local conditions. Table 3.3 presents a column can be added in Table 3.3 to represent
guideline for sample flood characterization and the distance of a thunderstorm cell from an
management system. The flood characterization urban area, detected by a radar/satellite image.
and corresponding decision to be taken are based Lesser the distance, higher would be the flood
on only two factors, namely, rainfall depth for a risk.
D-hour duration and flood level at a key location. 3.15.6 Once Table 3.3 has been prepared,
Here, D is the duration of rainfall, considered the knowledge about flood characterization
important in the area that is critical in producing and management strategy can be embedded
intense storms and associated flooding. Normally, in the flood management DSS in the form of
duration should be taken at least equal to the IF THEN type of rules to build the knowledge
time of concentration of the catchment under base. This will require the use of advanced
consideration. technology such as expert system computer
software. The knowledge base and DSS must
3.15.5 A finer or coarser division of the range be validated before being put into use. Validation
of variables, flood index, and associated flood of the DSS can be carried out using historical
management policy may be adopted in a local data to generate flood management response
area, if required. It is to be noted that the historical strategies along with SOPs, and analysing them
rainfall and flood level data in the catchment for their suitability, feasibility and practicability/
at key locations will need to be analyzed to applicability. The DSS should also have features
prepare a similar table for each key location to automatically generate logistic requirements
in the drainage basin. The values of lower and for performing resue and relief operations like
upper bounds in each class (e.g. R stands for number of people to be evacuated, number of
rainfall and FL stands for flood level; R2L, FL2U, vehicles required for evacuation, capacity of
etc.) will need to be determined, based on local flood shelters and relief centers, food and water
conditions and analysis of historical data. It is needs for maintaining a relief centre, etc.
possible to extend the scope and size of this 3.15.7 An important feature of the flood
35
management DSS is the conversion of the flood 3.16 Flood Alert System
forecast into flood hazard mapping (FHM) in the
urban watershed/ catchment. For example, if the 3.16.1 Once a flood warning is generated
from the DSS, it needs to be communicated to
rainfall intensities or flood levels exceed certain
general public in an effective and understandable
threshold levels, it would result in flooding certain
manner. The warning must be issued through
areas in a locality, after a certain amount of time.
government officials. Dissemination of flood
The knowledge about potential areas that will
warnings must be carried out, using a wide
get affected, and after how much time, plays a
range of latest technologies. The flood warnings
key role in the early flood warning system.
can be simultaneously issued through radio,
ULBs will be responsible for converting the television, mobile phones and SMS messages,
real-time data or forecasted information into put on the official websites, of all government
flood hazard maps and available time. agencies, emergency services, media, etc. A
schematic version of integrated early flood
3.15.8 Knowledge and experience from past
warning system is shown in Figure 3.1.
flooding events can be integrated with the
rainfall, flood level, and other data to prepare 3.17 Road Map
look-up tables. For example, rainfall intensities
3.17.1 Total flood protection is neither possible
and flood levels at key locations in the catchment
nor justifiable. Therefore, flood protection
would result in flooding, in which area and after
is usually geared towards reduction of the
how much time, can be recorded in tables or in
impact of the flood loss and flood liabilities. The
the knowledge base of the DSS.
ultimate objective of urban flood management
This information can be collected from is to provide ways and means to deal effectively
residents and historical flood events and such with the possible flooding in urban areas.
data sets will be updated soon after a new
3.17.2 Every watershed/catchment is unique
urban flood event that develops from time
and needs to be analysed to identify drainage
to time.
problems under present and changing hydrologic
3.15.9 The EWS operators can look up conditions. The hydrology should then be
to the tables to arrive at a possible flood analysed with full development of the watershed/
warning/alert/watch decision. Alternatively, catchment, so as to identify the improvements
mathematical models, based on hydrological necessary to serve future developments. It
and hydraulic principles, can be developed using
is desirable to have an integrated approach
topographical information of the area. These
that recognizes drainage system complexity
tools can be integrated in GIS environment to
and interconnectivity of its elements such as
obtain graphical representation of the potential
stormwater drainage, water supply, wastewater,
flooding.
water pollution control, water reuse, soil erosion,
Inputs from scientists and technologists, solid waste management, etc. The approach
who are key stakeholders in an EWS, will be should also be sustainable which means that
sought in developing flood forecasts, flood the human needs of the present should be
hazard mapping, and development of flood met without undermining the resource and
characterization and management policies. ecological base of the future generations.
36
Figure 3.1: Schematic Version of an Integrated Flood Early Warning System
37
3.17.3 The flood preparedness plan needs to able to react appropriately to warnings.
be put in position which shall have many sub-
components, viz. flood forecasting and warning,
3.18 Establishing Technical
land-use change implications, climate change Umbrella for Urban Flood
implications, and alternative development plans Forecasting and Warning
that are in the realm of mathematical models. 3.18.1 There is an increasing trend of urban
As already discussed, the pre-requisite for using flooding in the country. Urban flooding events
such mathematical models is the availability of have the potential of severe impact on our cities
good and reliable data to be available in optimal and towns, which are emerging as the economic
space and time distribution. centre. These can lead to serious local, national,
3.17.4 Early warning systems are expected to regional and global implications of extremely
generate time-sensitive information about flood severe proportions. Enough has not been done
risk which needs to be communicated to the in the past to evolve strategies for effective
emergency responders and other stakeholders UFDM. Even a simple thing as the knowledge
about communities at risk. In case of flash of “how much it is raining and where” eludes
floods, such systems play a very crucial role in us, as we do not have local network of rainfall
saving lives. Although in most cities it is difficult gauges, even though they are not prohibitive in
to reliably forecast floods caused by exceeded terms of technology, cost or availability.
drainage capacities, it is generally practical to 3.18.2 Though we have immense wealth of
produce warnings in the case of riverine floods. technical knowledge in the country, it has not
However, the installation of hydrological and converged into UFDM capabilities. This is a clear
meteorological monitoring and forecasting gap that needs to be addressed on priority basis,
systems to generate such information at the particularly, at the state and the local levels. Even
local scale is the first step in the formation of at the national level, with the designation of the
a comprehensive urban flood EWS. The key MoUD as the nodal ministry for urban flooding,
challenge is to convert forecast information UFDM will have to be brought into sharper
into practice by setting up workable systems focus. Taking all these factors into account, it
of warning dissemination that enable people is imperative to establish a Technical Umbrella
to avoid the worst. Success of such a system with a standing and supportive mechanism at
is closely related to people’s knowledge of the national and the state level to ultimately
flood risk and their familiarity with emergency make it sustainable at the ULB level.
response procedures. Only then will they be
38
At the National Level
A Standing Mechanism will be established for continuous guidance and support to the State and
Local level initiatives to build and establish an integrated town/city-specific UFDM Framework. It
will be driven by NDMA and MoUD with representatives from related Ministries/ Departments
/Agencies, States, and experts from IITs, other Institutes of national importance and service/
professional bodies, as a part of this mechanism to shoulder the responsibility for building an
effective UFDM at the local scale with committed/continued technical support and operational
infrastructure.
[Action: NDMA, MoUD IMD, CWC, SoI and NRSC]
At the State Level

State Nodal Departments will establish a State Level Guidance, Monitoring and Approval
Mechanism for UFDM for building Effective Capacity Development/ Manpower Training/
Observational Network Design and Operational support. The ULB Scale Customization / Operation/
Upgrade and Update activities of UFDM will be shouldered by a Consortium of Local Level
Technical Institutions (NITs, Engineering Colleges, etc.) for establishing GSM/WAN telemetry
based ARG/AWS network; customization/testing/operation of urban flood EWS; customization
of all necessary spatial and non-spatial data for building DSS for UFDM.
ULBs will extend all necessary administrative/financial/logistical support for the designated
consortium of local level technical institutions to commission and operate the UFDM systems
with due technical support/ manpower development teams on sustainable basis. ULBs need
to organize an institutional back-up through developing appropriate MoUs with those technical
institutions identified for this task.
[Action: MoUD, States/UTs, SRSACs and ULBs]
39
4 Design and Management of

Urban Drainage System
4.1 Overview local climate and condition of the catchment

surface, etc.
4.1.1 Floods are caused by weather
phenomena and events that deliver more 4.1.2 The post-development runoff peak can
precipitation to a drainage basin than can be be reduced by structural measures. Structural
readily absorbed or stored within the basin. measures are physical in nature and include
Drainage basins can be rural (natural) or urban redesigning the existing drainage system, or
(man-made), the latter commonly being much by providing suitable interventions in the form
smaller than the former. Urban floods can have of storage at suitable locations in the upstream
both area-wide and local origin. Urban areas have catchment. The storage reduces the peak, but
high densities of population and infrastructure. not the volume of runoff, which contributes
Drainage systems are topographically small and to increased runoff flows over extended time
the time of flow to the nearest drain or channel periods. Non-structural measures strive to keep
is quite short, typically of the order of a few people away from the flood waters by means of
minutes. As a result of this, when it rains on the EWS and other mitigation measures.
city surface, three main effects are seen:
i. Peak rate of flow increases by upto 8
4.2 International Status
times,
4.2.1 The World Meteorological Organization
ii. Shorter (faster) time of flow (3- 45 (WMO) presented a comprehensive review of the
minutes) caused by increased velocity management of urban rainwater, urban drainage
of runoff due to channel improvement, and river flooding in cities in a publication “Urban
and Flood Management” (March, 2006). This was
iii. Runoff volumes increase by upto 6 addressed to decision makers, professionals
times. working in the area of urban environment
Rapid urbanisation has resulted in increased as administrators, legislators, engineers,
impermeable surfaces in the form of architects, geologists and others. Subsequently,
pavements, roads and built-up areas, thereby WMO published another document on “Strategy
reducing the infiltration and natural storage. and Action Plan for the Enhancement and
Cooperation between National Meteorological
The magnitude of such increases depends on
and Hydrological Services for Improved Flood
many factors, such as the frequency of storms,
Forecasting” (December, 2006). The document
40
Design and Management of Urban Drainage System
emphasizes the improvement of the capacity of have developed a real-time satellite-radar-rainfall

National Meteorological Services (NMSs) and based warning system with adequate number
National Hydrological Services. Also, under a of radars and ARGs. Regular desilting of drains
joint initiative with the Global Water Partnership is also carried out on a time bound schedule in
(GWP), the WMO has formulated the Associated many important cities.
Programme on Flood Management (APFM)
to promote the concept of Integrated Flood 4.3 National Status
Management. Under this initiative, a technical
4.3.1 T h e C e n t r a l Pu b l i c H e a l t h a n d
document on “Urban Flood Risk Management:
Environmental Engineering Organization
A Tool for Integrated Flood Management” has
(CPHEEO), under the Ministry of Urban
been published (March, 2008). The document
describes the various aspects of an integrated Development (MoUD), GoI, has published the
management process, such as risk assessment, “Manual on Sewerage” (1993). This manual
planning and implementation of measures, and has given extensive guidelines for sewer
evaluation and risk reassessment. design, but has only a small section for storm
drainage design. However, even this was not
4.2.2 Most countries have dedicated codes
being followed by many cities in the past. This
and manuals for stormwater drainage design.
manual mentions a uniform design rainfall
USA has the “Urban Drainage Design Manual”,
intensity of 12-20 mm/h for all cities and does
published by the Federal Highway Administration
not take into account the spatial distribution of
of the US department of transportation (2009,
rainfall over India or within the cities. Systems
3rd edition). Moreover, each state/ county has
designed with these values will cause flooding,
brought out its own manual and, in many cases,
whenever rainfall intensity values exceed
even individual cities have their own city-specific
manual. These are updated regularly, some on 20 mm/h. However, while taking up projects
an annual basis. European countries are now under JNNURM, rainfall data obtained from
following a common code on “Drainage and Self-Recording Rain Gauge stations is followed,
Sewer System Outside Buildings”. In Australia, which takes into account the rainfall pattern
the “Australian Rainfall and Runoff Manual” of the cities. MoUD has, in 2008, constituted
(2008, 4th edition) is used in the various states an “Expert Committee for the preparation of
of Australia, while the north-eastern state of (a separate) Urban Storm Drainage Manual”.
Queensland, which experiences the monsoon 4.3.2 The Indian Roads Congress (IRC)
type rainfall, has its own stormwater drainage brought out guidelines on urban drainage in
manual. The national meteorological agencies
1999 (SP-50-1999, IRC). This provides guidance
in most countries have developed Intensity-
for drainage design for roads, but does not
Duration-Frequency (IDF) curves from the
provide design information on rainfall intensities
rainfall records and provide these to the design
to be adopted for various cities. For example, it
engineers for carrying out urban drainage
mentions that Mumbai drains are being designed
design.
for 50 mm/h and Chennai for 25 mm/h, but does
4.2.3 For better urban flood management, not provide guidelines for future planning for
many cities like Bangkok, Tokyo, Singapore, etc., other Indian cities.
41
The comprehensive Urban Storm Drainage areas which are unserved by the sewerage
Design Manual will be released by 2012. This system and the waste water is discharged into the
will take into account current international stormwater drainage systems.
practices, the specific locations and rainfall 4.5.2 ULBs generally do not keep a systematic
pattern of the cities and future needs. This will and complete inventory, especially of the minor
be updated/ revised as per practice followed drainage system. As a result of this, it is difficult to
internationally. plan O & M and upgradation of the system. Even
[Action:MoUD] with respect to the major drains, inventories are
not maintained with clear delineation, demarcation
4. 4 Drainage Systems and details of the cross-sections and slopes.
There may be natural formations and man made
4. 4.1 Drainage systems can be categorized structures like bridge piers, transmission towers
as major and minor systems. The major drainage and cables laid across, service utilities like sewers,
system comprises of open nallahs/ and natural water supply and gas pipe lines which may reduce
surface drains, etc. The minor system is the the cross-section available for flow. Besides all
network of underground pipes and channels. The these, there may be existing encroachments,
minor system can be categorized into two types: etc.
separate and combined. Separate drainage
systems consist of two conveyance networks i) An inventory of the existing stormwater
the sanitary sewers (usually underground drainage system will be prepared on a
pipes) conveying wastewater from homes and GIS platform,
businesses to a discharge point, while the storm ii) The inventory will be both watershed
drains (underground pipes or channels) collect based to enable proper hydrologic
water from the rainfall runoff and convey it to and hydraulic analysis and ward based
a discharge point which is usually a natural to enable coordinated administrative
watercourse or coastal waters. management,
iii) Minor systems should be mapped
4.5 Stormwater Drainage clearly showing the interconnections
System Inventory with the major system besides the cross
connections with sewer lines, and
4.5.1 It is observed that a proper inventory
iv) Major systems will be mapped clearly
of water supply system is maintained starting
with delineation, demarcation and details
with details of treatment, pumping, storage and
of the cross-sections, slopes, drain
along with the main feeder lines to the smallest
crossings including natural formations
domestic connection. Similarly for the sewer lines
and man made structures like bridge
an inventory is available starting from the smallest
piers, transmission towers, service
domestic connection to the sewer trunk mains for all
utilities and existing encroachments,
the areas which are serviced with a proper
etc. This should also take into account
sewerage system. These are generally
the sewer discharges.
essential for O & M besides system upgrading
and replacement. However, there are extensive [Action: MoUD, States/UTs and ULBs]
42
4.6 Requirements for Urban contour maps of the city at intervals of 0.2 m
Drainage Design while Chennai is preparing them for 0.3 m.
Contour mapping of urban areas will be

4.6.1 There is a need for the development of
prepared at 0.2 to 0.5 m contour interval
an adequate and functioning drainage system
for detailed delineation of the watershed/
based on sound hydrologic and hydraulic design
catchment for planning drainage systems.
principles. The design of an urban drainage
[Action: MoUD, SoI, States/UTs and ULBs]
system requires knowledge of the catchment
area and topography, urbanization details,
4.9 Rainfall Requirements
rainfall intensity, hydrology, hydraulics, etc.
4.9.1 For design of a drainage system, the
4.7 Catchment as basis for conventional practice is to choose an appropriate,
statistically relevant design storm to establish
Design
the stormwater flows to be conveyed, based
4.7.1 States and cities have political and on existing national and international practices.
administrative boundaries. However, rainfall Design storms can be estimated from rainfall
and runoff processes are independent of these, data records where available.
and depend on the watershed delineation. The
4.9.2 Rainfall is the main driver of runoff
outline of the drainage divide must follow the
processes. As discussed in Chapter 1, the
actual watershed boundary rather than the
frequency and intensity of rainfall in India, not
administrative boundaries. Each urban area
only shows a great variation but the intensity
may consist of a number of watersheds. A
of rainfall also is generally much higher than in
watershed is the geographic region within which
many other countries. There is wide variation of
water drains into a stream, river, lake or sea. The
rainfall amongst the cities and, even within the
watershed may be composed of several sub-
city, rainfall shows large spatial and temporal
watersheds and catchments. The catchment is
variation; for example, in Mumbai, on 26th
the area draining surface water to a particular
July 2005, Colaba recorded only 72 mm of
location or outlet point.
rainfall while Santa Cruz, which is 22 km away,
Catchment will be the basis for planning and recorded 944 mm in 24 hours. Even isolated
designing the stormwater drainage systems high intensity rainfall over a small urban area
in all ULBs. affects a large number of people due to traffic
disruptions besides local flooding. Due to the
[Action: MoUD, States/UTs and ULBs]
high variability of rainfall in space and time,
rainfall measurements are required at high
4.8 Contour Data
temporal and spatial resolution from dense rain
4.8.1 Accurate contours are necessary for gauge networks for the adequate design of new
determining the boundaries of a watershed/ systems and/or renovation of existing drainage
catchment and for computing directions of flow. systems. Up to date IDF relationships need to
Detailed contour maps at required resolution be used to maintain design standards for new
should be prepared for proper delineation of systems and retrofitting/replacement of old
drainage catchments. Mumbai is preparing urban drainage systems.
43
4.10 Real-Time Rainfall Data 4.10.2 Design Flow

Real time rainfall data for urban areas 4.10.2.1 To protect residential, commercial,
should be collected by the ULBs as discussed industrial and institutional buildings in urban
in detail in Section 3.6 of this document. areas, safe management and passage of water,
resulting from frequent storm events (hydrologic
4.10.1 Thunderstorm Rainfall Intensity
design aspects) and adequate capacity (hydraulic
4.10.1.1 Special consideration should also be design aspects) must be considered. In the
given to rainfall caused due to thunderstorms context of urban drainage, the main objectives
which result in high intensity rainfall in short of hydrologic analysis and design are to estimate
durations (e.g. 15 mm rainfall in 15 minutes i.e. peak flow rates and/or flow hydrographs for
60 mm/h). Delhi and many other cities faced the adequate sizing and design of conveyance
severe disruption due to flooding in 2009 and and quantity control facilities. To estimate peak
2010, caused by thunderstorms embedded in
flow rates, knowledge of the rainfall intensity, its
monsoon systems which overwhelmed the
duration and frequency is required for preparing
drainage systems, designed for much lesser
satisfactory urban drainage and stormwater
values of the rainfall intensity. By the very
management projects. Due to limited data,
nature of formation, it is observed that severe
statistics and probability concepts are used
thunderstorms, no matter where they occur,
in hydrologic analysis. Current international
result in rainfall intensities of the order of 50-
practice involves frequency analysis of rainfall
70 mm/h which cause flash flooding. Hence,
intensities, based on extreme value distributions
the frequency of thunderstorms becomes an
additional consideration for planning future with adjustments for climate change effects.
urban drainage systems. Intensity-Duration-Frequency (IDF) curves
are required to be developed for systematic
i) IDF curves will be developed for each city, analysis. However, the return period concept
based on extraction of data from the raw has an element of subjectivity. Increasing rainfall
data charts at 15- minutes resolution and intensities induced by climate change, urban
from AWS at 5-minutes resolution, and heat islands and other factors, will possibly
ii) IDF relationships will be adjusted taking result in varying return periods for a given
into account climate change impacts intensity of rainfall. The rainfall intensity to be
and urban heat island effects. At the very used for design will also depend on the time
least, a trend analysis of short duration of concentration. Higher the catchment area,
rainfall intensities will be carried out and higher will be the time of concentration and
if an increasing trend in the recent years lower will be the design rainfall intensity, other
is shown, higher intensities than those factors remaining the same.
provided by IDF relationships will be
4.10.2.2 Peak flow rates can be estimated
used for resizing existing systems and
using the Rational Method. However, for
design of new systems, especially for
computation of water level profiles in the
critical infrastructure like airports, major
drainage systems or channels/rivers, suitable
roads and railway tracks.
software for flood routing should be used.
[Action: IMD, States/UTs and ULBs] The available public domain software are the
44
HEC-HMS for hydrologic modelling of the pre-monsoon de-silting of drains had become
watershed, HEC-RAS for river modeling, both an annual ritual. However, due to large scale
developed by the US Army Corps of Engineers urbanisation and lack of required sewerage
and SWMM (Stormwater Management Model) systems in place, sewage started getting
for sewer/ drainage design, developed by the discharged into these water ways. All the
US Environmental Protection Agency. same pre-monsoon de-silting is a major O&M
activity. It has been generally observed all over
4.11 Runoff Coefficient for Long the country that this does not commence and
Term Planning get completed on time and as such even the
designed capacities are not operational. As a
4.11.1 Keeping in view the projected rate of result of this, even lower intensity of rainfall
urbanisation, it is imperative to consider a 50- results in flooding.
year planning horizon. Due to development that
is bound to take place during this period, it will 4.12.3 Removal of Solid Waste
be difficult to upgrade the underground drains 4.12.3.1 Solid waste disposal and its proper
once they are laid. Therefore, it is recommended management have significant effects on drainage
that all future drainage plans for urban areas performance. Most towns and cities have open
should be carried out, taking these factors into surface drains besides the road, into which
consideration. there is unauthorized public disposal of waste.
Solid waste consists of domestic, commercial
All future stormwater drainage systems will
and industrial waste. Besides, unauthorised and
be designed taking into consideration a runoff
illegal dumping of construction and excavation
coefficient of upto C = 0.95 for estimating
debris at the household and community level
peak discharge using the rational method,
are also very common occurrences. Solid waste
taking into consideration the approved land-
increases hydraulic roughness, causes blockage
use pattern of the city.
and generally reduces flow capacity. Besides,
most of these drains carry large quantities of
sewerage all year round, effectively resulting in
4.12 Operation and Maintenance decreased capacity being available for rain-water
4.12.1 Overview to flow. In addition, blocked drains may create
insect breeding sites and encourage disease
4.12.1.1 Proper operations and maintenance
transmission. These drains need to be cleaned
(O&M) are crucial for any system to be functional
on a regular basis to permit free flow of water.
to the designed capacity and for its durability
There may also be instances of pipe bursts,
as well. Most of the stormwater drainage and
etc.
sewerage systems suffer to a great extent for
want of proper O&M. Both the major and the 4.12.4 Removal of Sediment
minor drains are equally affected by this.
4.12.4.1 Sediment is present on all urban
4.12.2 Pre-Monsoon Desilting catchment surfaces and much of this material
finds its way into the drainage system. The
4.12.2.1 Major drains and nallahs were originally
amount that enters the system is limited
water-ways for rainwater to flow. Therefore,
45
by the degree of street sweeping and the iii) All waste removed both from the major
effectiveness of the inlet catch basins or gully and the minor drains should not be
pots and their cleaning regime. Management allowed to remain outside the drain for
of such sediment is rarely carried out, even in drying, instead the wet silt should be
industrialized countries. In developing countries deposited into a seamless container and
with larger amounts of sediment and weaker transported as soon as it is taken out from
urban management systems, the extent and the drain. In exceptional cases, the silt may
magnitude of sediment in the drainage system be allowed to dry for about 4 to 24 hours
can have a significant impact on its performance. outside the drain before transporting the
As with solid waste, sediments also greatly semi-solid silt for disposal,
reduce flows. The duration of local flooding
iv) Completion of work will be certified
increases proportionately, with the extent to
by representatives of local Residents’
which the cross-section of the channel was filled
Welfare Associations (RWAs)/ Slum
with sediment. In many cases, the operational
Dwellers Associations (SDAs) / Municipal
practices are poor as clearing up drains is not
Ward Committee members and Area
done from the outlet end particularly in minor
Sabha members besides third party
drains resulting in very little net benefit.
certification. An appropriate mechanism
4.12.4.2 Due to non-availability of adequate will be evolved to ensure this,
flows in the minor drainage systems, frequent v) The Manual on Solid Waste brought out
deposit of sediments will result and ultimately by the CPHEEO, MoUD, (2000) will be
result in a loss of capacity to accommodate the followed in cleaning shallow surface
flows during high intensity monsoon rainfall, drains,
thus compounding the existing situation which vi) The amount of solid waste generated
is far from being satisfactory. varies from catchment to catchment
4.12.4.3 Lack of preventive maintenance of and depends on the type of locality,
minor drains and sewerage systems is also population, their affluence, etc. Suitable
very commonly observed. In some cities, some interventions in the drainage system
underground drains are over a 100 years old and like traps, communitors, trash racks can
are now susceptible to collapses because of age reduce the amount of solid waste going
and increased burden due to traffic load. into the storm sewers,
vii) Land will also be identified for locating
i) Pre-monsoon desilting of all major drains such structures along the drains. The
will be completed by March 31 each design of such structures will be based
year, on actual field measurements at the
ii) Besides the pre-monsoon de-silting of proposed site rather than generic values
drains, the periodicity of cleaning drains from a single site,
should be worked out, based on the viii) Due consideration will be given to
local conditions. The roster of cleaning internationally available technology for
of such drains should be worked out and removal of solid waste from stormwater
strictly followed, drains,
46
ix) De-silting of minor drains will be carried 4.13.2 City bridges

out as part of a regular preventive
4.13.2.1 Increasing road networks for the ever
maintenance schedule. The catchment
increasing urban population has resulted in the
will be the basis for planning this, as a part
construction of a large number of flyovers and
of the watershed de-silting master plan,
bridges. In many instances, due to the shortage
x) Cleaning of minor drains will be taken up
of land, the piers of roads and railway bridges
from the outlet end to upstream side.
are located in major stormwater drains and/
xi) Ageing systems will be replaced on an
or rivers in cities. These are known to cause
urgent basis,
backwater effects as much as 1 m high and as
xii) A master plan will be prepared to improve far away as 5 km upstream thereby resulting in
the coverage of the sewerage system so
flooding of the upstream catchments.
that sewage will not be discharged into
stormwater drains, and All future road and rail bridges in cities
xiii) Adequate budget will be provided to take crossing drains should be designed such
care of the men, material, equipment that they do not block the flows resulting in
and machinery. Special funds will be backwater effect.
provided for the safety equipment of the
personnel carrying out maintenance of [Action: States/UTs and ULBs]
underground man-entry sewers.
4.13.3 City road levels
[Action: MoUD, States/UTs, ULBs]
4.13.3.1 Plinth level of the houses was historically
4.13 Special Design defined with reference to the adjacent road
Considerations level. However, a recent trend that has emerged
in many cities is that the roads are being
4.13.1 Airports resurfaced without removing the older layer. As
i) Airports are critical infrastructure. a consequence, over the years, the new road
Keeping the airports operational under levels, in many instances, are now much higher
conditions of severe flooding, will be than the approved plinth level of the adjacent
very crucial for rushing emergency properties. This prevents drainage of the houses
supplies. Even in the event of the arterial and during periods of rainfall, stormwater runoff
roads being flooded, helicopters can be causes flooding of these properties even with
used to rush supplies received at the lower rainfall intensity.
airports to the affected areas.
ii) It is therefore of utmost importance All road re-leveling works or strengthening/
that these will be made flood-proof by overlay works will be carried out by milling
providing efficient drainage for a much the existing layers of the road and recycling
higher rainfall intensity and using Best of materials obtained as a result of the milling
Management Practices like provision of so that the road levels will be not be allowed
holding ponds. to increase.
[Action: Ministry of Civil Aviation, States/
UTs and ULBs] [Action: States/UTs and ULBs]
47
4.13.4 Drain Inlet Connectivity 4.14.2 More recently, best practices in

stormwater drainage has shifted away from one
4.13.4.1 It is observed that in many cities,
of purely stormwater disposal to stormwater
rainwater causes flooding on the road despite
management, incorporating the principles of
the existence of the underground drainage
sustainable development. In this approach,
system. It is seen that the inlets to drain the
stormwater is regarded as a resource to be
water from the roads into the roadside drains
managed on a catchment-scale basis including
are either not properly aligned or non-existent
incorporation of the concepts of ‘source control’.
leading to severe waterlogging on the roads.
Table 4.1 classifies the wide range of techniques
The provision of a simple connecting element
available.
namely, the drainage inlet through which the
water can flow from the roadside drain into the 4.15 Source Control
underground drain can significantly reduce the
waterlogging on the roads. 4.15.1 In source control schemes, stormwater
is not immediately discharged but is stored,
Inlets should be provided on the roads to treated, reused or discharged locally, close
drain water to the roadside drains and these to its point of generation. It involves the use
should be designed, based on current national of smaller facilities located near the source
and international practices. Indian Standard IS allowing better use of downstream conveyance
5961 provides the design details for cast iron systems. Source control includes local disposal,
grating for drainage. inlet control and onsite detention. Local disposal
[Action: States/UTs and ULBs] can be achieved through infiltration trenches/
basins, percolating recharge wells, and porous
4.14 Best Management Practices pavements. Inlet control can be through rooftop
4.14.1 Best Management practices (BMPs) storage or parking area storage followed by
are used in USA to describe both structural controlled discharge. On-site detention includes
or engineered control devices and systems ditches, dry ponds, wet ponds and underground
to reduce both pollution and runoff from concrete basins.
stormwater. On the other hand, Low Impact 4.15.2 Source control devices interact with
Development (LID) is also used in the United the urban water system and the environment in
States to describe a land planning and different ways to conventional systems, mainly
engineering design approach to manage
beneficially, by:
stormwater runoff through various techniques
such as infiltrating, filtering, storing, evaporating, i) Reducing peak runoff rates leading to
and detaining runoff close to its source. LID is lower frequency of flooding,
similar to Sustainable Urban Drainage Systems ii) Re c h a r g i n g s o i l m o i s t u r e a n d
(SUDS), a term used in the United Kingdom,
groundwater and watercourse base
Water Sensitive Urban Design (WSUD), a term
flow augmentation,
used in Australia, natural drainage systems a
term used in Seattle, Washington and “Onsite iii) Decreasing downstream channel
Stormwater Management”, a term used by the erosion through flow reduction and
Washington State Department of Ecology. velocity control,
48
Table 4.1: Classification of Source Control Options
Option Examples Advantages Disadvantages

Local Rain gardens, Runoff reduction of minor Capital cost
disposal Soakways, Infiltration storms Clogging
trenches Ground water recharge
Swales, Lawns Runoff delay Maintenance cost
Improved aesthetics
Capital cost
Porous pavements/ Runoff reduction of minor Capital & maintenance
porous parking lots storms costs
Groundwater recharge Clogging
Inlet Rooftop ponding Runoff delay Structural loading
control Cooling effect on building Roof leakage
Possible fire protection Outlet blockage
Downpipe storage Runoff delay Small capacity
e.g. water butts Reuse opportunities Access difficulties
Small size
Paved area ponding Runoff delay Restricts other uses
e.g. gully throttles Possible retrofitting when raining
Damage to surface
On-site All types of water bodies Large capacity Capital and maintenance
storage Runoff reduction of major cost
Detention ponds
storms Pest breeding potential
Ground water recharge Reduced Aesthetics
Multi-purpose use Safety hazard
Underground tanks Runoff reduction of storms Maintenance cost
No visual intrusion Access difficulties
Capital cost
Oversized sewers Runoff reduction of storms Maintenance cost
No visual intrusion Access difficulties
Capital cost
Source: Adapted from Gupta, et al, 2010
iv) Reducing pollutant load to receiving 4.16 Rainwater Harvesting

waters, and
4.16.1 Rainwater harvesting is a form of source
v) Preserving and enhancing natural
control in which water can be converted into a
vegetation and wildlife habitats in
resource. In recent years, due to urbanisation,
urban areas.
groundwater recharge has decreased and
the peak runoff from rainfall and consequent
49
flooding have increased. It is therefore necessary garden receives runoff water from roofs or
that rainwater harvesting should be carried out other impervious (hard) surfaces in the natural
extensively. This will serve the twin purposes of environment. The rain garden holds water on
lowering the peak runoff and raising the ground the landscape so that it can be taken in by
water table. Many municipal corporations in plants and infiltrate into the ground instead of
India have already made rainwater harvesting flowing on roads and down a storm drain or
compulsory. This subject has been dealt with drainage network. This also results in marked
in detail in Chapter 6. improvement in the ground water level. The
new Hyderabad airport is a very good example
Every building in an urban area will have
of the concept of rain garden developed by the
rainwater harvesting as an integral component
National Geophysical Research Institute.
of the building utility. ULBs will ensure that this
is implemented. Concept of Rain Gardens will be incorporated
[Action: States/UTs and ULBs] in planning for public parks and on-site
stormwater management for larger colonies
4.17 Rain Gardens and sites that are to be developed. People will
be encouraged to adopt this concept even for
4.17.1 Rain gardens are part of the LID
sites already developed.
paradigm for stormwater management that is
rapidly becoming recognized by environmental
managers and regulators responsible for
watershed protection. Rain gardens consist
4.18 Water Bodies
of a porous soil covered with a thin layer of 4.18.1 Urban water bodies like lakes, tanks
mulch. Various flowering plants, grasses and and ponds also play a very important role in
small plants are planted to promote evapo- the management of urban flooding by reducing
transpiraton, maintain soil permeability and the stormwater run-off by capturing it. In the
infiltration. Stormwater runoff is directed into past there have been many water bodies
the facility, allowed to pond and infiltrates but over the years their numbers have been
through the plant/mulch/soil environment. Basic dwindling for various reasons. There have been
intention is to create an engineered terrestrial encroachments. There are some instances of
ecosystem which has significant aesthetic reclaiming water bodies and area reclaimed has
value through the use of flowering plants been used for various activities. It is not only
and landscaping that are both attractive and private parties but even governments that have
functional, along with a constructed soil/media been responsible for such things.
profile.
All urban water bodies will be protected. Efforts
4.17.2 Rain gardens capture runoff from will also be made to restore water bodies by
impervious areas such as roofs and driveways de-silting and taking other measures. Efforts will
and allow it to seep slowly into the ground.
also be made to revive water bodies that have
Rain gardens provide for the natural infiltration
been put to other uses. Water bodies will be an
of rainwater into the soil, reduce peak storm
integral part of the stormwater system.
flows, helping to prevent stream bank erosion
and lowering the risk for local flooding. A rain [Action: States, ULBs]
50
4.19 Detention Ponds i) Rigid lining will be implemented in high

density urban areas where space is a
4.19.1 Detention ponds, also called holding
constraint, and
ponds, will be useful in reducing peak flows
and hence the frequency of overflow. Detention ii) Flexible linings will be provided in
may be achieved on the surface or subsurface. medium and low density areas and new
Surface detention refers to extended detention urban developments, as these permit
basins or dry detention basins (that will be infiltration and are environmentally
empty after a storm) and wet detention ponds friendly, providing habitat for flora and
(that retain water above a permanent pool). fauna and are less expensive.
Flood routing through detention ponds should [Action: States/UTs and ULBs]
be carried out for observed events in real-time to
enable the determination of time and magnitude 4.21 Integrated Planning and
of flow at crucial points to facilitate early Interactions
warning and, if necessary, initiate evacuation
4.21.1 Historically, the main components of
procedures.
urban water systems and the provision of related
Urban stormwater management systems will water services, including water supply, drainage,
include detention and retention facilities to sewage collection and treatment, receiving
mitigate the negative impact of urbanization water uses, and solid waste management
on stormwater drainage. were addressed separately. Their interactions
[Action: States/UTs and ULBs] with each other and the environment were
often overlooked or underestimated. Several
4.20 Lined Channels factors are common to most of the cities, such
as ageing drainage systems and increased
4.20.1 Stormwater drainage channels (or
population density due to new developments
flood control channels) must behave in a stable,
in core city areas. Thus, the interactions for
predictable manner to ensure that a known flood
any particular city will depend in detail on the
capacity will be available for a design storm event.
geographical location of the city and the local
Channel linings should be provided in urban
climate and weather conditions.
drainage channels to achieve channel stability
because most soil erodes under concentrated i) Integrated planning and co-ordination
flow. Linings maybe “flexible” – for example will be ensured to take into account
stone pitching (riprap), vegetation, manufactured all components of the urban water
mats or a combination of these or “rigid” – for systems, and
example concrete or asphaltic concrete. Rigid
ii) BMPs should be adopted by all ULBs
linings are capable of high conveyance and high
to reduce the load on the major drainage
velocity flow and are used to reduce the amount
system.
of land required for a surface drainage system,
especially in urban areas. [Action: States/UTs and ULBs]
51
4.22 Specific Adaptation 4.22.4 Cities Near Dams / Reservoirs

Strategies for Cities 4.22.4.1 For cities located either downstream
4.22.1 For planning DM strategies, factors or upstream of dams, the measures to be taken
such as projected population, available land/ are similar to the cities located on rivers. In
space, developmental potential and land use addition, there should be timely operation of the
should be considered. These should take into dam gates by the irrigation department, based
account the topography, specific features and on the real-time inputs from rainfall and flow
the city scenarios, namely, coastal, on banks of gauges in coordination with the local bodies of
river, downstream/ upstream of dam, inland city, the affected cities.
hilly cities, etc. A city may be a combination of 4.22.5 Inland City
these, for example Mumbai is both a coastal
4.22.5.1 Some cities may be totally landlocked
city and on the banks of the River Mithi flowing
and flooding is a result of urbanization in the
through it. Surat is a city located on a river bank
saucer-shaped catchment. In many cases,
and also located downstream of Tapi dam.
the effects of flooding can be minimized by
4.22.2 Coastal Cities careful positioning of buildings in relation to the
topography and suitable design of landscaping
4.22.2.1 Drainage in cities located near or on
features.
the coast is affected by the tidal variations in
the outfalls discharging to the sea and possible 4.22.6 Cities in Hilly Areas
rise in the sea water levels. Very often, outfalls
4.22.6.1 Surface erosion, landslides and
are not equipped with flood gates and, as a
flooding are linked phenomena for a city located
result, there is no way to prevent sea-water from in hilly areas and the flow velocities are high due
entering into the drainage system during high to the steep slopes. Therefore, integrated land-
tide. For instance, in Mumbai, only 3 out of 105 use planning should be taken up in hilly areas
outfalls are equipped with flood gates. for mitigating flooding. Management measures
4.22.3 Cities on River Banks should include Ecological Management Practices
(EMPs) for controlling sediment and water
4.22.3.1 Cities located on the banks of rivers
yield from the upper catchments, design of
are susceptible to flooding from the flows in
adequate drainage system with contour drains
the river due to rainfall occurring directly over
(catch water drain), improvement of subsurface
the catchment or in the upstream reaches of
drainage, sediment trap of different forms,
the river which may be a considerable distance
adequate culvert and drop structures.
away from the city. The upper catchment may
sometimes lie in another state as well. Many of 4.22.6.2 For cities expanding towards a valley
the incidences could have been better handled from the core of the urban centre located
if there was a SOP based on real-time inputs at ridge, buildings should be made on stilts
and better coordination. The situation could be as conventionally practised. For the cities
aggravated with heavy localised rainfall. expanding into the hills from the core of
urban centre located on plains, houses should
52
preferably be built on stilts with approach road of water has increased in proportion to the
moving uphill. If such approach is difficult due urbanization of the watersheds. Ideally, the
to economic and other practical constraints, natural drains should have been widened
houses should be constructed with minimum (similar to road widening for increased traffic) to
disturbance to the natural terrain and natural accommodate the higher flows of stormwater.
cover, with implementation of optimal EMPs. But on the contrary, there have been large scale
encroachments on the natural drains and the
i) Low-lying areas should be reserved
river flood plains. Consequently the capacity of
for parks and other low-impact human
activities, the natural drains has decreased, resulting in
flooding.
ii) Wherever unavoidable, buildings in low-
lying areas should be constructed on
stilts above the High Flood Level (HFL)/ i) Encroachments on nallahs/ drains/
Full Tank Level (FTL), watercourses will be removed by
providing alternative accommodation
iii) For chronic flooding spots, alternate
to the Below Poverty Line (BPL) people
locations may be explored for
and appropriarte rehabilitation package
accommodating people staying there,
for other categories of people,
iv) Buildings should be constructed on stilts
after taking into account the stability of ii) The nallahs/ drains/ watercourses/ flood
slopes, and plains should be clearly delineated and
v) Stormwater drainage systems for boundaries fixed in new developments.
coastal cities have to be designed taking There will be strict enforcement of the
into account the tidal variations. relevant byelaws/regulations in the new
layouts as discussed in Chapter 6, and
iii) Any encroachment on the drain will
4.23 Encroachments attract penal action and be treated
as a cognizable offence, both against
4.23.1 Natural streams and watercourses the encroachers and the officials
have formed over thousands of years due to responsible for enforcement of the
the forces of flowing water in the respective byelaws/ regulations.
watersheds. Habitations started growing
into towns and cities alongside rivers and [Action: MoUD, States/UTs and ULBs]
watercourses. As a result of this, the flow
53
5 Urban Flood Disaster

Risk Management
Yokohama Strategy
The Yokohama Strategy for a Safer World: Guidelines for Natural Disaster Prevention,
Preparedness and Mitigation and its Plan of Action adopted in 1994 provides landmark
guidance on reducing disaster risk and the impacts of disasters.
The review of progress made in implementing the Yokohama Strategy identifies major
challenges for the coming years in ensuring more systematic action to address disaster risks
in the context of sustainable development and in building resilience through enhanced national
and local capabilities to manage and reduce risk.
5.1 Overview that development cannot be sustainable

unless disaster mitigation is integrated into the
5.1.1 Sustainable management of urban planning and development process. It has been
flood risk is becoming increasingly challenging universally accepted that returns on investments
for urban communities as well as ULBs, which on mitigation are very high. It is usually said in
are responsible to address this. As already the context of disaster risk reduction that one
discussed, it was only after the Mumbai pays something for doing and pays much more
floods of July 2005 that the nation realised the for not doing. Developing appropriate coping
possibility of unprecedented rainfall intensities strategies and disaster risk reduction plans,
occurring over urban areas and the potential along with greater awareness of how to reduce
of the enormity of devastation that can be risks, is the high priority agenda for DM in India.
caused by such events. Subsequently, it has This will be based on:
been observed that urban flooding has been
happening in different cities and many of them i. Enhancing national, state and local scale
are not able to cope with these challenges in a advocacy partnerships and knowledge
holistic manner. management for mainstreaming
disaster risk reduction,
5.1.2 The reasons for this are manifold.
This requires a paradigm shift in the approach ii. Standardizing hazard risk management
to DM, which proceeds from the conviction tools, methodologies and practices,
54
Urban Flood Disaster Risk Management
iii. Developing integrated and coordinated v) Disintegrated investment decisions,

approaches backed by prudent SOPs and
at all levels of UFDM,
vi) Lack of consultation with stakeholders.
iv. Incorporating ‘Learning by Doing’ mode of
5.2.1 Risk management process is a
operations and also through exchanging
comprehensive understanding, analysis and
experiences/best practices,
assessment of urban flood risks, before
v. Promoting the diffusion/documentation flood mitigation measures are planned and
of best practices in UFDM, implemented. It is the only way to provide
vi. Initiating appropriate R&D projects as city planners with information about the
per the emerging needs on regular component of risk that is prevailing in the area
basis, under consideration. Vulnerability should be
considered in a broad context, encompassing
vii. Building appropriate communication specific physical location of the area and
protocols facilitating multi-platform human, socio-economic and environmental
and multi-lingual dissemination, dimensions that relate to social inequalities
viii. Analysing and presenting the based on age, gender, ethnicity and economic
information in an easily understandable divisions. Disaster risk reduction strategies
form, for wider use by decision- include enhancing preparedness, response and
makers, recovery. This can be achieved by improving
institutional capacities and operational abilities
ix. Encouraging integrated approaches
based on local scale vulnerability analysis
of project implementation based on
and risk assessment. Further, assessing the
Master Plan, and
vulnerability of lifeline infrastructure is crucial
x. Encouraging states/ ULBs to accord to the sustainability of social and economic
top priority to deal with recurring urban sectors.
flooding cases by leveraging more
5.2.2 Factors contributing to urban flooding,
funds.
the different city scenarios, impact of climate
change on sea-level rise, weather systems
5.2 Issues in Urban Flood
experienced in India, urbanisation trends
Disaster Risk Management and pressure on land, factors like urban heat
Following are some of the shortcomings in island effects and increasing rainfall in urban
management of Urban Flooding: areas, temporal and spatial variation of rainfall
and several other issues have already been
i) Comprehensive risk assessment, discussed in Chapter 1. Issues relating to
ii) Fa c t o r i n g r i s k s i n d e v e l o p m e n t early warning and communication, design and
planning, management of SWD systems have also been
iii) Coordination among different discussed in the respective chapters.
institutions,
5.2.3 Sharing information and experience for
iv) Lack of information sharing,
the purpose of public awareness and imparting
55
professional training of disaster managers in Consideration of new developments on a

all forms of education is essential for creating case-by-case basis, can ignore cumulative
a culture of safety and capacity development. stormwater effects on flood risks. As
Infusion of proven scientific knowledge with organisations manage different parts of the
the state-of-the-art spatial, security, ICT and urban drainage infrastructure, they make
location technologies are central to the local investment decisions based on a limited
scale disaster risk management by interfacing cost-benefit analysis that rarely considers
micro-level details such as topographic, the wider drainage issues. The sum total of
thematic, demographic and socio-economic these individual and piecemeal investment
information. strategies is unlikely to produce the most
Decisions for new development (properties effective solution. MoUD will ensure that this
and infrastructure) are often taken without is appropriately reviewed on a regular basis.
a full understanding of the risks of flooding. [Action: MoUD and States/UTs]
5.2.4 Contrasting Urban Flood Management Approaches

Table 5.1: Details of Contrasting Approaches to the Management of Urban Floods
Rescue and Relief Centric

Holistic DM Approach
Approach
1. Primary focus on hazards and Emphasis 1. Primary focus on vulnerability and
disaster events risk issues
2. Single, event-based scenarios 2. Dynamic, multiple risk issues

and development of possible
scenarios
3. Basic responsibility to respond 3. Fundamental need to assess,

to an event monitor and continuously
update exposure to changing
conditions
4. Often fixed, location-specific Operations 4. Extended, changing, shared or
conditions regional, local variations
5. Command and control, directed 5. Situation-specific functions

operations
6. Shifting, fluid and tangential
6. E s t a b l i s h e d h i e r a r c h i c a l relationships
relationships
7. Dependent on related practices,
7. Often focused on hardware and abilities, and knowledge base
equipment
8. Specialized expertise, squared
8. Dependent on specialized with public views and priorities
expertise
56
9. Urgent, immediate and short Time Horizons 9. In addition to short term measures,
time frames in outlook, planning, moderate and long time frames
attention, returns in outlook, planning and returns
10. Rapidly changing, dynamic Information use 10. Accumulated, historical, layered,
i n f o r m a t i o n u s a g e , o f t e n and Management updated, or comparative use of
conflicting or sensitive information
11. Primary, authorized or singular 11. Open or public information,

information sources, need for multiple, diverse or changing
definitive facts sources, differing perspectives,
points of view.
12. Directed, “need to know” basis
of information dissemination, 12. Multiple use, shared exchange,
availability inter-sectoral use of information
13. O p e r a t i o n a l / p u b l i c 13. Nodal communication

information based on use of
communications
5.3 Watershed as Basis for of the stormwater drainage system should be

Management of Urban shared at all times on the basis of a watershed.
This will facilitate effective UFDM actions.
Flooding
5.3.4 With enhanced real-time observational
5.3.1 A ULB consists of a number of municipal
network backed by improved early warning
wards which are usually the administrative units.
capabilities including the installation of
Planning on a ward-wise basis is usually done for
DWRs, watershed based warnings can be
most of the activities because of administrative
communicated to the public, which will be more
convenience and also as it is a constituency for
meaningful, and the ULB administration can be
the elected member of the ULB. It is a different
geared up to be better prepared to respond and
matter that the jurisdiction of a municipal ward
also to deal with future flooding events.
can change with time due to delimitation of
constituencies from time to time. Following actions for Urban Flooding
Management will be taken on Watershed
5.3.2 As already discussed, urban areas
Basis:
comprise of natural watersheds, which, in
turn, are made up of smaller catchments. The i. Preparedness and mitigation,
entire watershed, however, drains into a single ii. Early warning and communication,
water body like lake or river. While catchment
will be the basis for the purpose of designing iii. Response,
stormwater drainage system, any planning for iv. Awareness generation, and
effective urban flood management has to take
v. Community capacity development.
into the consideration the entire watershed.
Accordingly, responsibilities for management
57
5.4 Vulnerability Analysis and based on specific site conditions, to make

Risk Assessment people aware what risk is present in their lives,
and to assist them in making formal acceptance,
5.4.1 Presently, there are no flood risk based on which adequate flood protection
assessments for many of the cities/towns measures can be taken up.
for planning the DRM. An urban flood risk
5.4.4.2 Flood hazard means the threat to
management plan has to start with the
life or the threat of damage to property as
assessment of present and future flood risks. The
a consequence of flooding. Hazard maps
clear understanding and distinction between the
have to be presented in a form that is fully
three components that define the degree of risk
understandable, with all affected populated
i.e., hazard, vulnerability and ability to cope with,
areas, facilities and structures indicated and
provides the necessary information for the overall
marked. Hazard zoning maps present hazard
management of risks. Risk assessment has to be
levels together with the probable intensity of
carried out in an integrated manner, i.e. identifying
magnitude in each hazard zone.
all the possible hazards, including consequence
of urbanization or other development activities 5.4.4.3 Risk is a quantification of hazard. Risk
in future. mapping is the activity where elements at risk
are plotted on hazard maps. Risk maps may
5.4.2 The hydrologic and hydraulic
include certain guidance, advice and indication
characteristics of these hazards have to be
of escape routes, safe access ways, etc. Risk
inventoried in addition to the economic, political,
assessment that provides the planner with
socio-cultural and ecological environment
an estimate of the expected material losses
information of the flood prone/ vulnerable areas.
includes:
Such an assessment should give information
about the probability of a hazard’s occurrence i) Identification of areas at risk upon its
and the respective potential damage and loss. exposure to hazard,
5.4.3 A number of different scenarios ii) Classification of structures according

should be modelled, in order to understand to function,
the consequences of likely future urban floods iv) Estimation of risk for each structure
(future urbanization, climate change and land type, and
use changes, etc.). The results of such models v) Estimation of all risks for each function
provide information about the expected flood and then for each area.
frequencies and magnitudes (extent, depth,
duration and flow velocities), thereby mapping 5.4.4.4 There are also economically non-
of areas and elements, which are exposed to quantifiable aspects, such as potential loss
floods. of life and indirect secondary losses. For
their evaluation and assessment, standard
5.4.4 Risk, Hazard Assessment and indicators for housing areas, infrastructure
Mapping and various economic activities are eventually
5.4.4.1 Flood management professionals made available by state authorities that regulate
should evaluate the levels of acceptable risk, insurance policies.
58
5.4.4.5 A flood risk map has several direct undertaken with greater understanding of all
economic effects, since it causes revision of the factors affecting the drainage systems.
all planning maps for the area. On the negative
side, it may lower property value in the flood- 5.5.2 Cities/ towns close to the coast-
prone areas and may stop development. On the lines are susceptible to flooding due to storm
positive side, the map initiates the construction surges during cyclonic/ tsunami events and
of flood loss prevention structures, alerts compounded with intense rainfall associated
prospective land and property owners, as well with cyclones/ depressions. Further, projected
as provides new developing ideas to the local climate change induced sea-level rise will
planning authorities. also be taken into consideration for arriving
at possible inundation. Similarly cities/ town
i) Risk assessment will be carried out
adjacent to river systems need to be simulated
with a multi-hazard concept leading to
for maximum possible inundation, occurring
foolproof land use planning,
for different inflows and discharges. Cities/
ii) Quantification of risks will start with the towns on the upstream side of reservoirs shall
analysis of hydro-meteorological data be analyzed for maximum possible inundation
and the hydraulic simulation of floods,
due to backwater effect. Similarly, the effect of
and
sudden release of water from reservoirs/ dams
iii) Flood hazard assessment will be made on the cities/towns located on the downstream
for standard baseline conditions to side also need to be analysed.
ascertain level of acceptable risk of
5.5.3 Probable maximum inundation due to
flooding, on the basis of projected
intense localised rainfall causing flash floods shall
future scenarios of rainfall intensities
be simulated for various intensities of rainfall as
and duration and land use changes.
the recent times have shown high intensity
[Action: CWC, SoI, NRSC and rainfall over urban areas in shorter intervals than
SRSACs] the recorded historical events. Similarly, the
coastal cities shall be analyzed/ simulated for
5.5 Estimation of Possible possible inundation due to maximum probable
Inundation levels storm surge and the inundation levels for
5.5.1 The natural drainage system within various intensities of cyclones taking high tide
an urban area is highly modified and its into consideration. The maximum probable
hydraulic characteristics are affected by day- inundation in the cities/ towns adjacent to river
to-day activities like dumping of solid waste systems and falling within the flood plains shall
into the drainage system. The characteristics be arrived at by simulating the flows in the river
of surface runoffs also tend to overwhelm systems for various intensity of flows and return
and impact the carrying capacity of surface periods. While mapping the inundation prone
drainage system. As such, determination of areas existing drainage capacities of the cities
the likely flood prone areas due to localised need to be considered for arriving at the duration
flooding is complicated and has to be of such flash flood situation.
59
The magnitudes of inundation levels due load. Constant updating of demographic data,
to various scenarios and causes will be infrastructure details, communication network
simulated on GIS-based inundation model, details and the details related to property,
duly incorporating drainage capacities in the economic activity of the individuals in the flood
analysis in order to estimate depth, duration prone areas will enable the realistic estimation of
and extent of inundation by using an integrated damages/ probable damages and preparation of
city specific framework. spatial database for the urban area which would
help in instantaneous assessment of damages
[Action: CWC, NRSC and SRSACs]
as well as for flood disaster risk management
master planning.
5.6 Estimation of Flood
Damages 5.6.2 The primary benefit derived from
flood management, expressed in economic
Losses due to urban flooding terms, are those arising from the reduction of
Direct losses: Losses resulting from direct flood damage. Cost saving due to reduction
contact with flood water, to buildings and of flood damage must be compared with
infrastructure, human and animal lives. the cost of implementing flood management
measures, making flood damage estimate the
Indirect losses: Losses resulting from the
most important component of a flood appraisal
event but not from its direct impact, for
process.
example, transport disruption, business
losses that can’t be made up, losses of family In general, the assessment of potential
income, etc. damages will be on the following basis
(Actual damages will be on the basis of a field
In both loss categories, there are two clear
survey):
sub-categories of loss:
i) Identification of potential damage areas,
Tangible losses: Loss of things that have a
according to the physical characteristics
monetary (replacement) value, for example, of the area such as land use, topography,
buildings, infrastructure, etc. drainage area, outfall system and the
Intangible losses: Loss of things that cannot capacity of the existing stormwater
be bought and sold, for example, lives and drainage system. Maps are usually
injuries, heritage items, memorabilia, etc. prepared to visualise the results of the
identification process,
5.6.1 The impact of urban floods can
ii) Selection of damage categories, which
be:
are considered appropriate for each
• Physical, damage area under investigation.
• Economic, and These are: public and private clean-
up, structural and vehicular damage,
• Environmental damage of contents, traffic related
The magnitude of the damage of an losses and tax revenue losses,
urban flood depends on the flood depth, flow iii) Developing unit-cost relationships for
velocity, water quality, duration and sediment various damage categories,
60
iv) Evaluation of hydraulic conditions such and optimum land use plans with community
as the volume of ponding areas, street participation at community level.
conveyance capacities, storm sewer Ward level information system will have to
capacities and inlet capacities, be developed using high resolution satellite
v) Determination of the extent of flooding images/ aerial photos integrated with socio-
expected for several storms of different economic data covering natural resources and
frequencies of occurrence, infrastructure facilities on appropriate scale
vi) Estimating damages for the “do- (1:1000) at community level.
nothing” alternative for different storm [Action: SoI, NRSC, States/ UTs, SRSACs and
frequencies, ULBs]
vii) Plotting corresponding damages versus 5.7.2 Hazard Risk Zoning and
probability, in order to measure the Mapping
area under the curve which represents
5.7.2.1 The foregoing efforts will enable the
the average annual damage (base-line
development of micro-scale hazard vulnerability
damage),
and risk zoning maps and classification of all
viii) Estimating residual damages in a similar
information on priority. This will provide a basis
manner, for various alternative plans
for development of appropriate mitigation
under study,
options and effective utilization of funds for
ix) Calculating annual benefit as the
holistic risk reduction.
difference between the estimated
annual damage, before and after the Elements of Vulnerability Reduction
capital improvement, and The key elements of Long Term Vulnerability
x) The estimated annual benefit may then Reduction Plan are:
be used in the cost-benefit analysis. A. Disaster Risk Identification (Hazard and
[Action: CWC, IMD, SoI, NRSC and Vulnerability Assessment),
SRSACs] B. Disaster Risk Reduction (Mitigation and
Regulation), and
5.7 Ward level Risk Reduction C. Disaster Risk Transfer (Relief and
and Vulnerability Insurance).
Assessment Additional elements include:
5.7.1 While watershed shall be the basis i. Capacity analysis of zone/ward/community
for planning for stormwater drainage systems level stakeholders in government and
for each urban area, ward level risk reduction community to manage disasters,
and assessment of vulnerability is to be carried ii. Evolving well-defined disaster mitigation
out through community based strategy and measures (structural/non-structural) in
institutionalizing ingestion of traditional/local all pre- and post-disaster actions. The
wisdom into risk analysis. The information emphasis in disaster mitigation is on
thus generated will be useful in preparation of critical aspects such as safe location,
long-term disaster risk reduction action plans safe design and safe construction of
61
new structures, infrastructure and these vulnerabilities, specific to an area under

settlements. Based on the hazard-risk- consideration in order to mitigate the causes
vulnerability assessment, standard rather than the consequences.
mitigation measures will be readily 5.8.2 Reducing Physical Vulnerability
identified and adopted for existing key of People and Infrastructure
infrastructure,
5.8.2.1 Physical vulnerability of an area is mainly
iii. Identification of appropriate regulatory due to the natural features of that area which are
actions required for ensuring compliance difficult to alter or completely change to make
with regard to disaster mitigation by the area safe against urban flood risk. However,
considering the vulnerability levels and the physical vulnerability of an area can be
the existing regulations in place, mitigated by ensuring adequate access to basic
iv. Review of existing land-use and building needs like flood shelters, medical facilities, etc.
regulations procedures/ practices to and by improving the preparedness, comprising
identify appropriate disaster mitigation of updated evacuation plans, frequently updated
measures, building codes and a list of retrofitting plans
suitable for an area.
v. Mechanism for disaster risk transfer
through community-based informal 5.8.3 Reducing Socio-economic
micro-finance/ micro-credit and micro- Vulnerability
insurance arrangements, 5.8.3.1 Socio-economic vulnerability of an area
vi. Incentive mechanism for siting/relocating is mainly related to the economical conditions
infrastructure to safe locations, and social fabric of the population living in
the area under consideration. Reducing the
vii. Cost-benefit analysis of urban flood
socio-economic vulnerability is on a long-term
disaster impacts and mitigation
perspective. In arriving at the measures required
options,
for the area to make it less vulnerable due to
viii. Updating the existing SOPs in the urban urban floods, policy decisions related to the area
flood contingency plan of the ULBs and need to be taken involving political leadership
review of relief codes, and of the area, institutionalizing participatory
ix. Institutionalizing clearly defined roles approaches and supporting community-based
and responsibilities of all key agencies organizations (CBOs). It will also cover economic
(government/non-government). development plans duly diversifying the income
sources and implementing flood insurance
5.8 Reducing Vulnerability schemes.
5.8.1 Vulnerabilities are generally due to the 5.8.4 Insurance and Risk Transfer
geographical features of an area, meteorological 5.8.4.1 Over the past decade, urban India
phenomenon, unsafe conditions that are has experienced series of floods, resulting
developed by human actions or inactions. So, in damages worth hundreds of crores of
it is essential to identify the root causes of rupees. Government provides very nominal
62
compensation to people BPL, while a large all defined linkages with natural disaster
number of middle and high income people do specific data and information management.
not receive any compensation. Main components of real-time DSSs to evolve
5.8.4.2 Insurance is a major tool for risk emergency response, relief routing, rehabilitation
transfer, which covers high risks with minimum planning during the disaster are fail-safe and
premiums. Micro-insurance and micro-credit seamless communication infrastructure, data
are the services developed especially for low- distribution and data management systems.
income groups. This is necessary for DRM through local scale
vulnerabilities, risk mapping and mitigation
i) Research on how floods threaten
planning for sustainable development including
vulnerable urban populations and how
sustenance of land and water resources.
they are affected must be developed in
order to develop the best strategies for Communication systems will provide real-time
disaster mitigation. The research should data and information to support control centres
be set in the Indian techno-legal context and operating agencies related to disaster
and draw from the Indian experience. monitoring, mitigation and enforcement. Sub-
The research should focus on three key components of risk management support
areas: risk identification, risk pooling systems are:
and risk transfer. The risk should focus
i. Data Distribution Centre (DDC),
on both property, people, and
ii) States/UTs will build partnerships with ii. Data Validation Centre (DVC),
public/ private insurance companies and
iii. Data Processing and Application
civil society to sensitise communities
Development (DPAD), and
about available schemes and also
develop appropriate micro-insurance iv. DSS to cater to the requirement of
schemes, targeted at low-income pre-, during, post-disaster activities,
groups. The partnerships should be scenario development, mitigation
based upon need, post performance, planning, etc.
key objectives and cost effectiveness. A
database of partners should be available 5.10 National Database for
in the public domain. Mapping Attributes
5.10.1 D e v e l o p i n g t h e D S S r e q u i r e s
considerable application of software
5.9 Spatial Decision Support development and GIS specific activity, which
Systems for Urban Flood calls for adequate number of specific systems
Management and tools. Implementation of DSS is sustainable
only when backed up with the national level
5.9.1 Development of objective for effective
high-end infrastructure comprising:
disaster risk management framework involves
implementation of application software with i. High-end computing,
63
ii. Storage and communication network, wealth and inflation in the affected areas. To
iii. 3-D Virtual reality visual studio, maximize the usefulness of such cost-benefit
analysis, the database of DSS will include the
iv. Centralized comprehensive data bank expenses associated with urban flood warning
for urban flood risk management with
and information services and mitigation efforts,
nodes in various states/ UTs over a fail-
as well as including vulnerability and societal
safe communication backbone with
impacts of urban floods.
NDMA, SDMAs / DDMAs and ULBs,
and i) The database required for mapping
different ward/community level
v. State-of-the-Art Command/ Control
attributes will be made accessible to
Operations Center for effective
all ULBs and concerned departments/
coordination of disaster response
agencies/ stakeholders,
actions.
ii) Integration between hardware and
5.10.2 High-end computing, visualization, software will be ensured for compatibility
networking and communication command and interoperability of computing, visual
control infrastructure will essentially carry out and networking infrastructure nodes at
information and data fusion involving collating, the centre and state/ ULB/ward levels,
analyzing, interpreting, translation of monitoring and
and early warning from line departments, based
iii) Coastal ULBs/ Urban Development
on state-of-the-art and S&T know-how. The
Authorities will work out micro-level
developed impact assessment and emergency analytical tools with appropriate
response management system under DSS interfaces to DSSs for planning and
is used for generating early warning based executing suitable risk reduction
impact assessment scenarios for response activities.
planning; mitigation and risk reduction based
developmental planning. The DSS can essentially
assist to organise and/or mobilize necessary
response resources by the states/UTs, and ULBs 5.11 National Urban Information
simultaneously with the public actually reacting System
to warnings for effective emergency response
management. Development of such a system 5.11.1 As already discussed in Chapter 2,
becomes particularly useful when the public’s NUIS scheme was launched for creating urban
reaction to a warning translates immediately information system to meet the requirements
into increased demand on public services. of urban planning. 158 cities and towns from
Class-I to Class-VI from each state and UTs
5.10.3 Further, it is necessary to include are being covered in phases. Under this
cost-benefit analysis for all States/UTs as part scheme, both attribute and thematic spatial
of DSS that would allow the losses and costs data at various levels are being generated for
to be normalized for changes in population, urban planning and decision support. Twelve
64
thematic spatial data layers viz urban land carried out on availability of digital data, existing
use/cover, physiography (outside city area), infrastructure and requirements for creating
geomorphology (outside city area), geological database for cities/towns throughout the
structure (outside city area), lithology (outside State/UTs. Development of such a comprehensive
city area), drainage, soil cover, texture and depth management information system has to be on
(outside city area), surface water bodies, road, the basis of detailed studies, encompassing
rail, canal and transportation routes are being a wide variety of spatial and non-spatial data.
covered in the database. This will assist the DM cells for planning and
monitoring the progress of mitigation works.
5.11.2 The database creation uses modern Various components of UFDMIS are listed
data sets such as satellite images and aerial below:
photographs to generate comprehensive
spatial data in 3 scales i.e. 1:10,000 for Zonal i. Hazard, risk and vulnerability (with
Development Plan/ Master Plan/Development ward level/ watershed level hazard
Plan, 1:2000 for detailed Development Plan maps of flood inundation, storm surge
and 1:1000 for utility planning for sewerage and inundation along with the quantification
drainage. of vulnerability and associated risk and
identification of vulnerable groups),
i) All Class I, II and III Towns, with
ii. Urban flood early warnings and lead
population of 20,000 or more (on the time spatial hazard maps,
basis of 2001 Census), will be mapped
on the GIS platform under the NUIS, iii. Inventory of infrastructure in vulnerable
areas developed by engineering
ii) The database of the NUIS will be department of ULBs and monitoring of
expanded to cover infrastructure maintenance of existing infrastructure
facilities at community level integrated and new mitigation works, for long
with socio-economic data, and term risk reduction,
iii) Maps will be generated at 0.2 - 0.5 m iv. Damage assessment in a post-disaster
contour intervals. scenario, including standardization of
post-event survey formats,
[Actions : MoUD and SoI]
v. Hazard DSS for emergency response,
relief routing and rehabilitation/
5.12 State Urban Flood Disaster evacuation planning,
Management Information
vi. Support for sensitization and awareness
System raising including simulation exercises
and mock drills,
5.12.1 Establishment of a comprehensive
Urban Flood Disaster Management Information vii. Appropriate visual support tools
System (UFDMIS) covering all phases of DM for all phases of disaster cycle viz.
is highly essential to provide online services preparedness; prevention; mitigation;
to the ULBs and other departments related relief; rescue; rehabilitation and
to DM in the State. Initially a review has to be recovery,
65
viii. Desktop interface for DM administration Static Data Providers

for exploring, probing and updation of i) Topographical maps and hydrological
core and disaster specific data sets maps on different scales - Survey of
with common format of inventory, India (Sol), Central Ground Water Board
ix. Support for management and (CGWB)/ CWC,
maintenance of lifeline infrastructure ii) River catchment area and basin maps
(flood shelters, hospitals, schools, pertaining to the ULB-CWC,
places of worship, etc.),
iii) Catchment area maps for all streams
x. Management support for monitoring that pass through/ passing by the side
maintenance and execution of critical of the ULBs - Irrigation Department,
mitigation projects, and
xi. Directory of DM authorities at all levels
iv) Details about tanks/ water bodies
– resources and contact details of all
along with their capacity, FTLs, inlet
stakeholders (Government, NGOs,
and outlet arrangement - Irrigation
elected representatives of Parliament,
Department.
Legislature, ULBs, RWAs, Hospitals,
etc.), and Dynamic Data Providers
xii. Documentation support for a) all past i. Real-time rainfall data from ULBs/
urban flood events; b) reports prepared Hydro-meteorological data - IMD/
and compiled by independent groups CWC,
and agencies; c) planning future ii. Census maps and census data - Census
programme, and d) R&D initiatives for Department,
improving urban flood risk management
iii. Maps and atlases for the cities - National
capabilities.
Thematic Mapping Organisation
The Technical Umbrella at the state level will (NATMO),
ensure the establishment of a comprehensive
iv. National and city level coverage of
UFDMIS.
satellite images of all resolutions
[Action: States/ UTs]
including ALTM - NRSC,
5.13 Data Providers for Disaster v. Coverage of soil maps on all scales
Risk Management - National Bureau of Soil Survey and
Land-use Planning (NBSSLUP),
5.13.1 The dynamic nature of an emergency
situation calls for timely updating of a variety vi. City level coverage of forest maps on all
of required data/information from various scales - Forest Survey of India (FSI),
organizations, as no individual agency can vii. City level coverage of land use maps,
produce and update all the required information. ground water potential maps and other
This calls for partnership with a mindset for data thematic maps on all scales - NRSC,
sharing and data exchanging. Main data types
that are to be acquired for DM from: viii. Naval Hydrographic Charts - NHO,
66
ix. Data from state government line iv) The establishment of appropriate
departments - Irrigation, Health, network and software tools for
Municipal Authorities, Roads and exchanging and sharing information/
Buildings, Police, Fire Services, Civil data, and
Supplies, Transport, Electricity, etc., v) Appropriate policies for accessing and
x. Data about railway lines passing through/ using data/information.
near urban areas, telecommunication a) Standards and interoperability protocols
network of various service providers will be implemented by stakeholders,
operating in the area - Railway and
b) Logically all the producing and updating
State Government,
agencies manage their sectoral datasets
xi. Urban transport network data from the during their everyday business and
local transport corporation - Transport emergency situations. If the results
Department, and of such data production and updating
efforts are physically recorded, the
xii. Data pertaining to coastal and marine
required data/information for disaster
areas management, specifically for
response is always available to the
urban areas - MoES.
producer. If this information is shared
5.13.2 The above data sources list is only and exchanged, datasets will be
illustrative and not an exhaustive list of known accessible to a wider emergency
agencies, providing data of relevance to DM. m a n a g e m e n t c o m m u n i t y, a n d
Data may be available in various forms in many c) A committee set up by NDMA will be
other departments/organizations/ industry/ empowered to review the data needs
NGOs. Data resources of various agencies have and make data sets available to all
to be studied in detail and a mechanism will be stakeholders for holistic DM.
evolved for ensuring that this data, whenever
[Action: NDMA, SDMAs and ULBs]
relevant, becomes authentic part of the national
data for DRM. 5.13.4 Specific core data requirements and the
5.13.3 To achieve this aim, the required ongoing efforts in this regard are summarized in
information for DM will be recognized and Table 5.2.
a UFDMIS framework established. The
responsibility of maintaining the information
5.14 Updating of Database
will be shared between different organizations through Additional Surveys
based on:
5.14.1 The detailed analysis of inventory
i) Appropriate and accepted policies, of spatial database and relevant attribute
information, residing with various departments
ii) Appropriate standards for the
will enable the formulation of strategies and
production of data,
guidelines for generation/updating the database
iii) The training of people to work with and subsequent organization of database. It will
these datasets, facilitate:
67
Table 5.2: Current Efforts for Core Spatial Data Generation in the Country
Agency Responsible with Augmentation of Scales of Spatial Data

Resources
Survey of India • 1:2000/1:4000 scale in metro cities/ urban
• MoEF is funding Vulnerability Line Mapping areas in coastal areas [Coastal seaward
pilot project. Project completion to be stretch of Vulnerability Line/Setback Zone]
expedited and to be scaled up for the entire • 1:8000/1:10000 [Coastal seaward stretch
coastline falling beyond Vulnerability Line and up to
• XI Plan Working Group Recommended 10km inland]
for funding 1:10000/1:8000 scale digital • 1:25000 [Coastal seaward stretch falling
topographic fields for all multi-hazard zones beyond 10km inland and up to 20km inland
(coastal areas to be taken up on priority) to cover complete delta areas]
• 1:25000 scale coastal topographic maps • 1:50000 [Coastal district areas beyond
are generated under Department of 20km inland]
Ocean Development Funded Project.
Digitization work to be funded on priority
• 1:50000 scale data digitization is near
completion under NSDI Programme
Initiative
• High Altitude Airstrip project will provide
the capability, for not only establishing
communication network, but also carry out
continuous imaging with different sensors
of the affected areas, with large footprint of
500 km diameter, need to funded on priority
in XI Plan
NDEM Initiative of Department of Space (partly • Digitization of thematic, infrastructure and
funded by MHA) natural resources are to be taken up for all
• 1:50000 scale digital topographic, thematic, districts, vulnerable to cyclones on priority
infrastructure and natural resources fields basis at 1:50000 scale
are completed for about 60 multi-hazard • 1:10000 scale digital topographic, thematic
districts and many other fields for urban areas of
• 1:10000/1:2000 scale efforts are slated for more than 1-lakh population and all river
XI Plan. Efforts on priority basis for coastal basins
belt need to be funded • 1:2000 scale digital topographic, thematic
• Procurement of ALTM infrastructure with and many other fields for mega cities
aircrafts, sensors and instrumentation/
communication needs funding support in
XI Plan
Efforts will be made for generating specific core data on priority.
Action: DST/SoI, DoS/NRSC and SRSACs]
68
i. Identification of spatial datasets and activities that have any connection with
attributes, required to be generated development and change at all levels of policy
and/or refined, making. In this approach, vulnerability is
ii. Development of semi-automated or reduced by integrating measures for survival,
automated tools for data conversion rehabilitation and reconstruction within
and organizing them as per NSDI and development planning.
NDEM spatial frameworks, 5.15.2 Pr e r e q u i s i t e s f o r d e v e l o p m e n t
iii. Development of automated tools for planning for disaster reduction are as
database validation, adhering to the follows:
NSDI and NDEM database standards, i) acceptance that disasters can
iv. Design of standard look-up table templates, happen,
in order to avoid inconsistencies ii) perceptions of causes, incidences and
across various departments, and effects of environmental hazards,
v. Generation of predefined symbols for iii) integration of perceptions in a
various spatial datasets. d e v e l o p m e n t p o l i c y, m e a n i n g
5.14.2 Vulnerable Housing, Power and preparation of development guidelines
Communication Network Towers for disaster reduction, and
i. Details of habitation scale thatched iv) evaluation of all development proposals
houses, tiled-roof houses, sheet- and plans against development
roofed houses, etc., guidelines.
ii. Details of population living in vulnerable
house types, and
5.16 Flood Management Master
iii. Details of ward-level length of
Planning Process
different categories of power and 5.16.1 The flood management master
communications lines and towers, planning process is a systems approach that
along with their design standards and includes:
structural details.
i) Setting up preliminary goals and
Spatial databases will be standardized objectives for a foreseeable future,
with provision for frequent updates and consistent with laws in force and other
automated procedures/ tools for organising constraints,
the collected data as per NSDI and NDEM
ii) Documentation of the problem;
spatial frameworks.
investigation of the causes of the
[Action: SoI and NRSC] problems; determination of needs and
the planning criteria,
5.15 Development Planning for
iii) Problem inventory; appraisal of
Disaster Reduction
feasible solutions; setting up flooding
5.15.1 The contemporary approach assumes standards based on social, economic
that DM must be shared by all sectors and and environmental factors,
69
iv) Collection of all baseline data and 5.17 Urban Flooding Cells
identification of baseline conditions,
including political, geographic, National Level
hydrologic and environmental issues, It is for the first time that urban flooding
v) Systematic interviews and site visits, is being dealt with as a separate disaster,
de-linking it from riverine floods which
vi) Description of the existing stormwater affect the rural areas. MoUD is being designated
practice and its inadequacies, as the Nodal Ministry for urban flooding.
vii) Definition of hydrologic conditions and i) A separate Urban Flooding Cell (UFC)
constraints that proposed changes or will be constituted within MoUD,
development would have on baseline
ii) A Joint Secretary cadre officer will
conditions,
be designated as the Nodal Officer in
viii) Definition of interdependencies with charge,
neighbouring administrative areas iii) It will play a lead role in the establishment
and related municipal infrastructure of the Technical Umbrella at the national
services, level,
ix) Analytical work that includes hydrologic, iv) It will coordinate all UFDM efforts by
hydraulic and water quality analysis, different stakehiolders at the national
level,
x) Definition of priorities and alternative
solutions (interim solutions, long-range v) It will guide the states on all aspects of
solutions), UFDM, and
xi) Description and cost estimate of vi) It will guide efforts for the preparation
proposed facilities and measures, of the Stormwater Drainage Manual
and set up a standing mechanism
xii) Benefit/ cost analysis and comparative for updating it as per international
evaluation of alternative solutions, practice.
including valuation of benefits, damage [Action: MoUD]
assessment, cost of traffic disruption,
environmental and social factors; other In States/UTs
assessment techniques that are more
The Department of Municipal Administration/
appropriate for urban conditions,
Urban Development in the State/UT will be
xiii) Recognition of alternative plans; the nodal department for the management of
recognition of emergency plans, urban flooding.
xiv) Pr a c t i c a l f i n a n c i n g p r o g r a m ; i) A separate Urban Flooding Cell will be
identification of the sources of funds, constituted within nodal department,
and ii) A Joint Secretary cadre officer will
xv) Drafting legal documents needed to be designated as the Nodal Officer in
implement the adopted measures. charge,
70
iii) It will take the lead to establish a v) Conducting DM audit for all decisions,
state level monitoring and approval activities and investments which could
mechanism for UFDM particularly as a have a bearing on DM, covering both
part of the Technical Umbrella, and structural and non-structural measures
iv) It will guide all the ULBs in all aspects including techno-legal regime,
of UFDM. UFC shall be formed with vi) DM audit of activities like construction of
members from Irrigation Department, railway lines/roads/bridges/transmission
State Remote Sensing agency, Disaster towers, etc by other departments,
Management Department, etc. to guide vii) Careful monitoring of operations and
the ULBs, for both prior to the events as maintenance of stormwater drainage
well as during the event. system and de-silting activities,
[Action: MoUD and States/UTs] viii) Monitoring of activities like disposal of
municipal solid waste and debris,
In ULBs ix) Strengthening the involvement of local
ULBs will be responsible for the management level orgainsations like RWAs, Bastis,
of urban flooding at the local level. There are Slum Associations, etc.,
many challenges however, very often lack of x) Encouraging Community Based Disaster
coordination and sustained efforts, results in Preparedness (CBDP) efforts,
many shortcomings. These gaps need to be xi) Launching of awareness generation
addressed. In view of this, and to make the campaigns,
ULBs better prepared, a DM cell will be set up xii) Documentation of events,
at the ULB level. This cell will also specifically xiii) Regular enhancement of capacity
focus on UFDM. A senior officer in the rank development at all levels, and
of Additional Commissioner or an appropriate xiv) A local official will be designated as
level will be responsible the nodal officer for nodal officer at the ward level.
this cell. [Action: States/UTs and ULBs]
The major responsibilities of the UFC will be 5.18 Participatory Planning

as follows: 5.18.1 All the concepts that underpin the
i) Preparation and implementation of DM urban flood risk management framework are
Plan, based on participatory principles. Traditionally,
ii) Coordination within the local body, flood control has been driven by top-down
decision making. Following the hierarchical
iii) Coordination with agencies outside the
structure of administrative systems, flood
ULBs whose activities have a bearing
control measures are planned without the
on urban flooding (the list of all such
participation of the affected communities and
agencies/orgainsations should be a part
other stakeholders. In many cases, this results
of the DM plan),
in unsustainable measures which don’t meet the
iv) Regular mock drills and preparedness
needs of relevant stakeholders. In more severe
exercises,
71
cases, exclusive top-down decision making can 5.18.4 The involvement of stakeholders meets
even lead to serious conflicts. three main goals. First, it brings knowledge from
different perspectives together and thus enables
5.18.2 These shortcomings can be overcome
a more profound understanding of flood risks.
by establishing participatory planning process as
Second, members of affected communities have
a basic principle in urban flood risk management.
the chance to express the community’s needs
In this context, decision-making is understood and to promote the integration of their demands
as a combination of top-down and bottom-up in decision making. Finally, and based upon
approaches which enables the involvement of all the first two goals, stakeholder involvement
stakeholders on the basis of equity. The process allows for the identification and implementation
where the aspirations, concerns, capabilities of flood management measures, which are
and participation from local households to effective and sustainable because the majority
communities to local authorities to district and of stakeholders support them, although a
national institutions are adequately included in consensus among all stakeholders can rarely
an iterative manner. be found, especially in cities, where spatial
resources for flood mitigation are scarce,
5.18.3 In order to ensure that all stakeholders
experiences shows that seriously practised
have a possibility to be involved at some level
participation is decisive for the mediation of
of the decision making process, it is crucial
conflicts. In urban areas, although there may
for the success of the participation process to
be advantages of concentration of stakeholders
carefully identify stakeholders. This has to be
as well as the medium of communication, there
done in an inclusive manner in order to prevent
is always a shortage of time for participation in
potential conflicts which may result from the
such activities. Particularly, in sub-urban areas,
exclusion of relevant stakeholders. In urban
people have little time to spare from their
flood risk management relevant stakeholders
livelihood engagements and time they perforce
may comprise:
spend in travelling to their place of work. Special
i) The responsible municipal means have to be found to make use of the
authorities, advantages and address the shortcomings.
Further discussion on the constraints of
ii) Citizens and communities which are
stakeholder involvement and how representative
affected by the implementation or non-
form of participation can be achieved, are
implementation of measures (onsite
available elsewhere. In many countries, the
as well as up- and downstream),
private sector contributes significantly to the
iii) River basin organizations/authorities, creation of physical and industrial infrastructure.
In association with relevant national agencies,
iv) Regional development authorities,
efforts must be made to develop and establish
v) Scientific institutions, improved techno-legal procedures for disaster-
vi) The private sector, and resilient infrastructure. Private sector actors
can particularly contribute to building resilient
viii) NGOs. economies, infrastructure and communities
72
through the following disaster risk management DEM has been obtained from Shuttle Radar
activities:
Topography Mission (http://srtm.csi.cgiar) for
i) Hazard and risk assessment, this assessment. Global Mapper software
ii) Awareness generation, has been used to develop contours at 1 m
iii) Preparedness training and drills, interval using SRTM DEM to identify the sub-
iv) Efficient logistics for rescue and relief catchment and low-lying areas. The runoff
operations, has been estimated using rational method for
v) Provision of trained engineers, rainfall intensity of 50 mm/h and 100 mm/h for
architects and building artisans, duration of 1 hour. It is assumed that the drains
vi) Development and application of will adequately drain the runoff generated
c o s t- e f f e c t i v e h a z a r d - r e s i s t a n t from rainfall intensity of 25 mm/h for which
technologies, the existing system was designed. The runoff
vii) Involvement in the development of volume has been computed by summing
all-hazard warning and monitoring up the volume between two successive
systems, and
contours to get the depth of inundation in
viii) Development of risk transfer
the low-lying area. Further the habitation
instruments.
areas have been defined as slum, non slum
5.19 Rapid Assessment Flood areas and the spread has been calculated
Inundation Mapping for for both these areas. The location-specific
Mumbai flood risk has been determined. The flood
risk assessment has been carried out for two
A Rapid Assessment Flood Inundation scenarios - continuous rainfall at 50 mm/h
Mapping for Mumbai for one hour and 100 mm/h for one hour.
A rapid flood risk assessment for Mumbai The inundation levels corresponding to these
is being carried out by the Indian Institute rainfall intensities are represented in the form
of Technology, Bombay, in association of flood hazard map. The areas expected to be
with MCGM, using best available data. The submerged by these rainfall intensities have
methodology uses conveniently available been delineated. Subsequently the number
DEM data from public domain and rainfall of people likely to be affected by flooding in
intensities as a model input, which in turn the ward has been estimated. This estimate
provides a tool for a rapid assessment
will help in formulating mitigation measures
from limited data sources and provides
like shelters, evacuation paths and planning
reasonable results for planning purposes.
for transport route diversions. More accurate
As Light Detection and Ranging (LIDAR)
results can be obtained with this methodology
survey data was still under process at the
when better data becomes available.
time of this study, 90-m resolution SRTM
73
5.20 Early Warning System for 5.21 Urban Flood Impact

Urban Flood Management Assessment for Hyderabad
in Chennai A Pilot Project
Urban Flooding Impact Assessment -
Early Warning System for Urban Flood Hussainsagar Catchment, Hyderabad
Management in Chennai Government of Andhra Pradesh in association
with GHMC and NDMA have taken up a pilot
An Early Warning System for Urban Flood study on “Urban Flooding Impact Assessment
Monitoring is being developed for Chennai - Hussainsagar Catchment, Hyderabad”. The
by setting up a network of Automatic Weather main objective of the study is to develop
Stations in selected micro watersheds for real a flood model for assessing the impact of
time transmission of weather parameters to riverine flash floods and vulnerability mapping
of the flooding hazard in Hyderabad city. The
the Flood Control Room using GSM (Global
output of the study is to come out with a set
System for Mobile Communication Standard)
of recommendations, which would help to
as a communication channel. In addition, reduce/ eliminate the flooding vulnerability/ risk.
the high resolution Airborne Laser Terrain The solutions/ recommendations can be linked
Mapper (ALTM) acquired for Chennai City with the existing master plans and it would
(as part of ongoing DST and Tamil Nadu help the city managers/ planners in handling
State Govt., sponsored research project) flooding situations (such as cloudburst/ river
is proposed to be used for modelling and overflow/ cyclone) when implemented over
simulating the inundation areas in real time a period of time. The total geographical area
proposed for the study is 330 sq km. The area
for the catastrophic rainfall associated with
is recurrently prone to flooding even for small
cyclone activity in North East Monsoon. Also,
quantity/intensity of rainfall. Due to this, the
ten IP cameras are proposed to be installed low-lying habitations along the main stream
at important road junctions and vulnerable are persistently inundated and all the roads are
spots which will transmit the images of flood flooding due to traffic. Data from the Doppler
levels for validation of modelling results. Weather Radar recently installed by IMD at
Suitable hydrodynamic modelling software Hyderabad will be calibrated by real-time data
from the local network of rainfall gauges that
will be integrated with the data to simulate
will be established as a part of this study. The
the inundation areas in real-time. A Decision
study will utilise a standard conceptual model
Support System is proposed to be developed for generating the flood in the catchment and
to relay advisory services regarding relief and full unsteady flow models (1 D Hydrodynamic
rescue to planners/local municipal authorities. Model) for channel routing to simulate the
The Anna University Remote Sensing Centre flood flows and flooded areas. These models
is developing the system in association with will be used to prepare flood zoning maps for
all frequencies of rainfall intensities.
the government of Tamil Nadu.
74
6 Techno-Legal Regime
6.1 Overview The excavations at Mohenjo-daro and Harappa

establish that in those twin cities, sound town
6.1.1 A pattern has been evolved over millions planning principles were in place, as evident
of years for the path to be defined for water to from, not only the manner in which the roads
flow in streams, rivulets, tributaries and rivers were laid, but also by the consideration given to
and ultimately discharge into the sea. All known civic amenities, sewerage system and drainage.
forms of life depend on water. Water is our lifeline Besides, the houses were built with plinth rising
it bathes us and feeds us. Civilisations started above the street level. That perhaps could have
close to water sources – on the banks of rivers, in been one of the earliest planned adaptation
valleys, along the coastline. Every city/town falls strategies to deal with flooding.
within the basin, sub-basin, and watershed of a
river system and receives rains. 6.2.2 On the basis of a study of primary
sources, available literature and archeological
6.1.2 In the beginning, the sites selected for
data in published reports from various sites,
habitation were on high ground, as they were
experts feel that town planning in India could
considered safe, away from the flood plains.
probably be categorized into two periods.
Over the ages, as civilizations grew in size, and
The mature period of Indus Valley Civilization
towns and cities came into existence, there was
that lasted between 2800 B.C. and 1700 B.C.
pressure on land. This resulted in habitations
The second period of Indian urban growth is
spilling into floodplains and interfering with the
generally supposed to have begun in 600 B.C.,
flow of water.
which coincides with the beginning of the early
6.1.3 Water will find its way, no matter historic period in the Ganga Valley. The Study
what. When we interfere with its natural flow, also reveals that several elements of planning,
it finds its own way and, that is why, flooding commonly used during the first period of
takes place. Growing urbanisation, resulting in a urbanisation, were also found in the second
developed catchment, has added to the woes, period.
as it translates into higher runoff as compared
to an undeveloped catchment. 6.2.3 From then to the present age, we have
not lived upto such a legacy that was inherited.
6.2 Town Planning in Ancient This is not just typical of India, but it has been
observed universally. This may give us some
India
comfort, but certainly no respite, from the
6.2.1 The earliest record of sound town planning consequences of lack of foresight with respect
in India dates back to the Indus Valley civilization. to planning our cities and towns.
75
“Around a quarter of properties that were local bodies under various legislations. After
flooded in the UK in summer 2007 had been approval, the local bodies enforced these rules
built in the last 25 years. A number of images of and regulations pertaining to the development
flooded properties from summer 2007 showed and building standards as building regulations/
modern developments that had flooded. This building byelaws in their respective areas.
reinforces the (Pitt) Review’s conviction 6.4.2 Model Town and Country
that strong controls on development on the Planning Act 1960
floodplain are needed”
The Town and Country Planning
Pitt Review, ‘Learning Lessons from the 2007 Organization (TCPO), under the administrative
Floods’, Chapter 5.5, page 62 control of MoUD, is the apex organisation to deal
with the subject of planning (regional, urban and
6.3 Legal Support for Planned rural) and developmental policies. It formulated
a Model Town and Country Planning Act in the
Development of Urban
year 1960 with the following provisions:
Areas
i) Pr o v i s i o n s f o r p r e p a r a t i o n o f
6.3.1 Management of urban flooding should comprehensive Master Plan for urban
aim at minimizing the exposure of communities areas of various states. The states
to the adverse effects of flooding in cities may adopt the model legislation
and towns. The techno-legal regime can be with suitable modifications for this
a very useful tool in that direction. Master purpose,
Planning, Zonal Planning, Development Country
ii) To constitute a Board to advise and to
Regulations and Building byelaws provide
coordinate in the matter of planning
the mandatory techno-legal framework for
and plan formulation by the Local
regulating the built environment.
Planning Authorities in the State, and
6.3.2 Such laws are mainly state legislations iii) Provisions for implementation and
as the State is competent to legislate and make enforcement of the Master Plans
laws on such subjects. However, in States and and the miscellaneous provisions
UTs such as Delhi, where land use is reserved to achieve planned urban growth of
with the Central Government. The Central various urban areas in the state.
Government is to legislate on such subjects and
the Parliament is to make necessary laws. 6.4.3 Model Regional and Town
Planning and Development
6.4 Central Legislations/ Law 1985
Guidelines The 1960 Act was revised in 1985 and
this has largely been the basis for the enactment
6.4.1 Delhi Development Act - 1957 of comprehensive urban and regional planning
Taking this legislation as a model, legislation in States and UTs. This model is in
state governments were guided to formulate the nature of a guideline and is the outcome of
the rules and regulations with the help of several reviews and revisions undertaken on
76
Techno-Legal Regime
the recommendations of conferences of state issued, two in 1987 and the third in 1997.
ministers held from time to time. The legality
6.4.6.2 Considering a series of further
of this model was confirmed by the Ministry of
developments in the field of building construction,
Law and Justice, GOI.
including the lessons learnt in the aftermath of
6.4.4 Model Urban and Regional a number of natural calamities, like devastating
Planning and Development earthquakes and super-cyclones witnessed by
Law 1993 the country, a project for comprehensive revision
of NBC was taken up under the aegis of the
A model Urban and Regional Planning
National Building Code Sectional Committee,
and Development Law was also brought out,
CED 46 of BIS and its 18 expert panels, involving
taking into account the provisions of 74th
as many as 400 experts. As a culmination of
Constitutional Amendment Act (CAA), along
the Project, the revised NBC was brought out
with suggested changes in the Maharashtra and
as National Building Code of India 2005, (NBC
Gujarat Town Planning Acts.
2005).
6.4.5 Urban Development Plans
6.4.6.3 Annex 1 of the comprehensive NBC,
Formulation and Implementation
2005 contains 11 parts, some of which are
Guidelines 1996
further divided into sections totalling 26 chapters.
In 1996, the Ministry of Urban Annex 2 contains salient features of the revised
Development, GoI, brought out the Urban NBC and includes, apart from other changes
D e v e l o p m e n t P l a n s Fo r m u l a t i o n a n d made, the changes especially with regard to
Implementation (UDPFI) Guidelines. The further enhancing our response to meet the
Guidelines recommend an Urban Planning challenges posed by natural calamities and
System consisting of a set of four inter-related reflecting the state-of-the-art and contemporary
plans as follows: applicable international practices.
i) Perspective plan, 6.4.7 Initiatives of the Ministry of
ii) Development plan, Environment and Forests
iii) Annual plan, and 6.4.7.1 The Ministry of Environment and Forests
iv) Plans of projects and schemes. (MoEF) is the nodal agency in the administrative
structure of the central government for planning,
6.4.6 National Building Code promotion, co-ordination and overseeing the
6.4.6.1 The National Building Code of India implementation of environmental and forestry
(NBC), a comprehensive building code provides programmes.
guidelines for regulating the building construction 6.4.7.2 Besides the Water Act of 1974 and
activities across the country. It serves as a Model Air Act of 1981, and other legislations, the
Code for adoption by all agencies, involved Environmental (Protection) Act (EPA) was
in building construction work. The Code was enacted in 1986. It is an umbrella legislation,
first published in 1970 at the instance of the empowering central government to take
Planning Commission and then revised in 1983. measures necessary to protect and improve the
Thereafter, three major amendments were quality of the environment by setting standards
77
for emissions and discharges; regulating construction of townships, industrial townships,

the location of industries; management of settlement colonies, commercial complexes,
hazardous wastes, and protection of public hotel complexes, hospitals, office complexes for
health and welfare. Certain initiatives of MoEF 1000 persons and above, or discharging sewage
are relevant in the context of urban flooding. of 50,000 litres per day and above, or with an
investment of ` 50 crores and above, and new
6.4.7.3 Under this Act, MoEF issued the
industrial estates having an area of 50 hectares
Municipal Solid Waste (Management and
and above, etc.
Handling) Rules, 2000, notified on 25th
September 2000, in exercising of the powers
i) Stormwater drainage concerns will be
conforming to section 3 and 25 of EPA. The
made a part of all EIA norms, and
MSW Rules provide a framework encompassing
collection, transportation, treatment and ii) Sometimes to overcome compliance
disposal of municipal solid waste. These rules to EIA, projects are split into smaller
are complemented by the existing Biomedical areas. Guidelines will be issued to State
Waste Rules of 1998 and Hazardous Waste EIA Authorities to subject even smaller
Rules of 1989 respectively, whereby disposal of projects to meet EIA norms.
these wastes, along with usual urban municipal [Action: MoEF, MoUD, States/UTs
waste, is prohibited.
6.4.7.4 Environmental Impact Assessment 6.4.8 State Level Legislation
EIA is one of the proven management 6.4.8.1 Planning and development are state
tools for incorporating environmental concerns subjects and therefore, the development in the
in the development process and also in improved states is based on the legislative support as
decision-making. The growing awareness applicable in that state. The legislative support
over the years on environmental protection in the state is applicable to formulate Master
and sustainable development has further laid Plans, Zonal Development Plans and Area
emphasis on sound environmental management Planning lay-outs for their implementation and
practices. The programme of EIA, in vogue in enforcement.
MoEF for the last two decades, was initiated 6.4.9 Legislative Support at the Local/
with the appraisal of river valley projects. The Municipal Level
scope of appraisal was subsequently enlarged
6.4.9.1 At the local level, the Municipal
to cover other sectors like industrial projects,
Authorities and Panchayats regulate the
thermal power plants, mining schemes and
development/construction of buildings through
infrastructure projects. EIA was made mandatory
the building byelaws as followed in their
for 32 categories of development activities on
respective areas. The State Governments/UTs
the basis of EIA Notification S.O. 60(E) dated
from time to time issue directions/guidelines
27th January 1994.
for safety against natural hazards, which
This was further amended vide S.O. are followed by local bodies while granting
801 (E) dated 7th July, 2004. This brought permission for construction of buildings/
within its purview new projects related to structures.
78
Techno-Legal Regime
6.5 Study by Experts Committee 6.5.4 The detailed recommendations were

(2004) made for additional provisions to be incorporated
in the development control regulations for safety
6.5.1 A National Core Group, set up by the in natural hazard prone areas and the building
MHA on earthquake mitigation, suggested byelaws for structural safety. Details of various
that the State Town and Country Planning Act BIS codes, relating to structural safety for
as well as Zoning regulations be reviewed so natural hazards are given for the guidance of the
as to ensure that these are in conformity with professionals to design the structures/buildings,
the mitigation requirement. MHA constituted a keeping in view the provisions of such codes
Committee to look into this in January 2004. against different natural hazards.
6.5.2 The Committee studied the Model 6.5.5 The Committee observed that there
Town and Country Planning legislations framed are large areas where Town Planning Legislation
during 1960, based on which most of the State and Development Control/Building byelaws are
Town and Country legislations are enacted. not applicable and the sanctioning authority
The Committee also studied the revised Model is the Development Commissioner through
Regional Town Planning and Development Law Central Public Works Department (CPWD)/
1985 framed by Town and Country Planning PWD or other such agencies. Therefore, the
Organisation, Ministry of Urban Development Committee recommended that in such areas,
and Poverty Alleviation, and UDPFI Guidelines. the sanctioning authority should be advised to
Model Urban and Regional Planning and take into consideration provisions regarding the
Development Law was formulated, keeping in structural safety in natural hazard prone areas
view the earlier Model Planning Legislation and while sanctioning development/projects in such
incorporating various provisions of 73rd and areas, under their respective legislation.
74th Constitution Amendments.
6.6 Subsequent Amendments
6.5.3 The Committee proposed amendments
in the above-mentioned documents, by The Experts Committee had proposed
incorporating the various terminologies amendments to rules and byelaws, relating to
pertaining to natural hazards, natural hazard Layout Approvals and Building Permissions, to
proneness and mitigation under the relevant address DM related issues. Many states have
sections and included the hazards due to incorporated and amended their rules and bye-
earthquakes, cyclones, floods, and landslides. laws but all states are not on par in doing this.
Amendments were suggested to take note of Salient features of the amended rules and bye-
the natural hazard mitigation, while formulating laws having relevance to urban flood management
the development plans for various levels like are included below, under both the categories.
perspective plan, development plan, zonal 6.6.1 Layout Approvals
development plan and area plan. Additional
• Minimum requirement for approval
provisions have also been suggested for
of Layout
formulating the regulations for land use zoning
and development control/building regulations i. The Layout proposal shall conform to
with regard to natural hazard mitigation. the following requirements:
79
(a) Shall have approach through an is abutting to National Highway

existing road, the width of such having less than 60 m width.
shall not be less than 12 m (in
• Required specifications and
case of land-locked plots, the
conditions
owner has to ensure the approach
road through neighbouring lands i) The owner of a site shall undertake the
accordingly), following works under the supervision
of Executive Authority with the
(b) Minimum width of proposed
surveyors after intimation of the layout
roads in the layout shall be
approval by the Executive Authority:
12 m for residential in Gram
Panchayats and 18 m in other a) Levelling with suitable gradient
areas and non-residential layouts. and formation of all roads
Notwithstanding the above with sub-surface, kerbstones,
minimum width, the Executive metalling of the carriageway,
Authority may insist upon larger side drains as per specifications
road widths depending upon mentioned in the rules,
local conditions or importance b) Construction of drains and
of any particular road, etc. The c h a n n el i z a t i o n o f nallahs/
width of the roads in the layouts stormwater drains for allowing
shall be in conformity with the stormwater runoff. These may
General Town Planning Scheme be channelised in such a way
or the Master Plan, if any in as to conserve or harvest the
force, water in the nearest water body
(c) Minimum open space set or public open space, etc,
apart in the proposed layout for c) Undertake plantation in the layout
playground/park/educational including avenue plantation, in
institution or for any other public public open spaces, etc,
purpose shall be at the rate of
10% of the total site area, d) Fencing of open spaces, and
(d) The minimum plot size for non- e) Unless the conditions specified
residential layouts shall be 300 sq above are fulfilled, the owner
m except in case of Commercial shall not be entitled to utilize, sell,
or Mercantile buildings for which lease or otherwise dispose of
the minimum plot size shall be the land or any portion thereof.
18 sq m, and ii) The following works shall be undertaken
(e) The applicant should provide a through the Executive Authority upon
service road of minimum 12 m payment of proportionate charges at a
width for the layout if the land later date:
80
Techno-Legal Regime
(a) Street-lighting and electricity of 0.6 m x length of 2 to 6 m x depth

facilities, and of 1.5 to 2 m. Terrace water shall be
(b) Provision of disposal system canalized through pits and/or trenches.
and protected water supply The pits shall be backfilled with filter
system. media comprising of the following
materials.
• Restrictions of building activity in the
vicinity of certain areas (a) 40 mm road metal as the bottom
layer upto 50% of the depth,
i) No building activity shall be allowed in
the bed of water bodies like river, lake, (b) 10 mm road metal as the lower
pond or nallah/ stormwater drain, etc, middle layer upto 20% of the
and depth,
ii) No building activity shall be carried out (c) Coarse sand as the upper middle
within : layer upto 20% of the depth,
a) 50 m from the boundary of rivers (d) Top 10% of the pits/trenches will
and lakes of surface area for 10 be empty and a splash pad is to
Ha and above, be provided in such a way that
b) 30 m from the boundary of lakes roof-top water falls on the splash
of surface area for less than 10 pad,
Ha, and
(e) Brick masonry wall is to be
c) 12 m from nallahs, canals, etc. constructed and cement mortar
plastered on the exposed
• Rainwater Harvesting
surface. The depth of the wall
i. Every building proposed for construction below the ground shall be such
shall be provided with required facilities that the wall prevents loose
and infrastructure for conservation and soil going into pits/trenches.
harvesting of rainwater, and The projection of the all above
ii. Percolation pits or Trenches. ground should be minimum of
The paved surface around the building 15 cm, and
shall have percolation pits or trenches (f) Perforated concrete slabs
or combination of pits and trenches in shall be provided on pits and
such a way that total volume of such trenches.
structure shall not be less than 6 cubic
iii Terrace water collection
m for each 100 sq m of roof-top area
and multiples thereof. Depending on a) The terrace shall be connected
the geomorphologic and topographical to a sump or the wall through a
conditions, the pits can be of size 1.2 filtering tank by P.V.C. pipe. A valve
m wide x 1.2 m long x depth of 2 to system shall be incorporated to
2.5 m. The trenches can be of width enable the first part of the rain-
81
water collected to discharge out green buffer zone, and no building

to the ground, if it is dirty, and activity other than recreational use,
b) A filtering tank, measuring 1m shall be carried out within:
X 1m X 1m, can be constructed a) The Coastal Regulation Zone
near the sump. The tank can be (CRZ) restricted area in case of
divided by a partition slab and areas along the sea coast,
one part shall be filled by fine
sand and other by coarse sand. b) 100 m from the river edge outside
The bottom portion of the tank Municipal Corporation/ Municipal
should have a slope to avoid limits and 50 m within Municipal
stagnation of water. Corporation/ Municipal limits.
No permanent constructions/
iv. Open Ground
structures will be permitted
Wherever there is an open ground, within the above-mentioned
the top soil shall be removed over a buffer zone,
portion of the ground and back filled
with coarse sand to allow percolation c) 50 m from the boundary of lakes
of rainwater. Any other methods, of area 10 Ha and above,
proved to be effective in conservation d) 30 m from the boundary of lakes
and harvesting of rainwater, may be of area less than 10 Ha / ponds/
adopted in each and every construction tank bed lands,
taken up.
v. The proposal shall comply with the e) 12 m from the boundaries of
provisions of relevant regulations in major canal, stream, etc.,and
force. f) 2 m from the defined boundary of
vi. In case the layout area exceeds 50 Ha, nallahs/ stormwater drains, etc.
the NOC from Central Pollution Control The above shall be in addition to
Board/ MoEF is mandatory. the mandatory setbacks. Unless
6.6.2 Building Permissions and otherwise stated, the area
and the FTL of a lake/ pond
• Restrictions of Building Activity in shall be reckoned, as measured
Vicinity of Certain Areas or given in the Survey of India
i) No building/ development activity shall topographical maps/Irrigation
be allowed in the bed of water bodies Department records/ Revenue
like river or nallah/ stormwater drain records. The above buffer zone
and in the Full Tank Level (FTL) of any may be reckoned as part of the
lake, pond, tank or pond/ tank bed building setback.
lands,
iii) Unless and otherwise specified in
ii) The above water bodies and courses the Master Plan/Zonal Development
shall be maintained as recreational/ Plan:
82
Techno-Legal Regime
a) The space to be left in and a minimum 1 m wide continuous

around the major canal/ stream green planting strip in the periphery
(including the actual canal/ on remaining sides are required to
stream bed width and alignment) be developed and maintained as
shall be minimum 12 m. This greenery and trees within the setback.
may be developed as Green Rainwater harvesting structures shall
Buffer/recreational and / or be provided in the prescribed manner
utilized for road of minimum 9 within the setbacks,
m width, wherever feasible,
iii) For all residential/institutional/industrial
b) In case of lakes of area 10 plots above 750 sq m, in addition to 1 m
Ha and above, in addition to greenery/ lawn on all four sides, 5 % of
development of recreational/ the site area has to be developed as tot
green belt along the foreshores lot/landscaped area and trees planted
o f a l a ke , a r i n g r o a d o r and maintained. Such organized open
promenade of minimum 12 m space could be in more than one
may be developed, wherever location, shall be open to sky and shall
feasible; while in respect of be of a minimum width of 3 m, and
foreshores of river, a river drive iv) If the above greenery is not provided and
road of minimum 18 m may maintained and rainwater harvesting
be developed in the said 50 m structures are not provided, 10%
buffer zone, and of additional Property Tax every year
would be imposed as penalty by the
c) The above greenery/landscaping
sanctioning authority, till the said
and development shall conform
condition is fulfilled.
to the guidelines and provisions
of the NBC of India, 2005. • Provision of Tot Lot and Greenery
• Minimum Setbacks and Height i) In every high rise building site, an

Stipulations for all Types of Non- organized open space which shall
High Rise Buildings (buildings be utilized as greenery, tot lot or soft
below 15 m height, inclusive of stilt/ landscaping, etc. shall be provided
parking floor): over and above the mandatory open
spaces to be left in and around the
i) A strip of at least 1 m greenery/lawn
building. This space shall be at least
along the frontage of the site within
10% of total site area and shall be of
the front setback shall be compulsorily
a minimum width of 3 m. This may be
developed and maintained with
in one or more pockets and shall be
greenery and trees,
open to sky,
ii) For plots above 200 sq m in addition
ii) In addition to the above, a minimum
to 1 m greenery / lawn along the front
2 m wide green planting strip in
age of the site with the front setback,
the periphery on all sides within the
83
setbacks are required to be developed Minimum of 10 % of site area shall

and maintained with greenery and be earmarked for organized open
trees in all high rise building sites, space and be utilized as greenery,
and tot lot or soft landscaping, etc. and
shall be provided over and above the
iii) Rainwater harvesting structures shall
mandatory open spaces. This space
be provided in the prescribed manner
may be in one or more pockets and
within the setbacks.
shall be open to sky.
• Grant of Transferable Development
• Incentives for Owners Leaving More
Right:
Setbacks/ Installing Solar Heating
Grant of Transferable Development and Lighting System/ Rain Water
Right may be considered by the Harvesting/ Recycling of Waste
Competent Authority for the following Water
areas subject to the owner complying
An incentive of 10% rebate in Property
with the conditions of development
Tax will be given by the local authority
above, as per the following norms: for
for owners or their successors-in-
conservation and development of lakes/
interest who undertake both recycling
water bodies/ nallahs/ stormwater
of waste water and rainwater harvesting
drains, foreshores and recreational
structures.
buffer development with greenery,
open spaces earmarked in Master • The proposal shall comply with
Plan, etc: equivalent to 50% of built the provisions of other relevant
up area of such area developed at his/ regulations in force.
her cost.
• In case of buildings exceeding built up
• Requirements of Group Development, area of 1,50,000 sq m. No Objection
Group Housing/ Cluster Housing/ Certificate from Central Pollution
Residential Enclaves and Row Control Board/MoEF is mandatory.
Housing Schemes.
MoUD will play a key role in coordinating the efforts of the states regarding the compliance with
Techno-Legal Regime by all the ULBs in their respective states.
i) Review the present status and bring all states on par relating to making amendments to
development control regulations and building byelaws on the basis of the recommendations
of the Experts Committee, set up by MHA in 2004,
ii) Issue guidelines for setting up a standing mechanism for a regular review to suggest
periodic changes based on lessons learned and experiences and BMPs within and outside
the country,
iii) Issue guidelines for making the techno-legal framework as an essential part of technical
capacity development at all levels of state governments and ULBs, besides all other
stakeholders,
84
Techno-Legal Regime
iv) Prepare guidelines for mandatory third party compliance review of all land use and
developmental plans, involving experts from local S&T and Academic institutions,
v) Prepare necessary guidelines for evaluating cities/towns to be considered for annual awards
for best record of compliance with techno-legal regime. Cities/ towns will be considered
under different categories like metros with 4 million plus population, cities with one million
plus (less than 4 million) population and cities with less than one million population. Besides,
smaller municipalities should also be considered under two or three categories,
vi) Review procedure for licensing architects, with emphasis on compliance with techno-legal
regime, and
vii) Sanction of new projects to States/UTs, linked to proper implementation of techno-legal
regimes by the ULBs.
[Action: MoUD/TCPO, States/UTs and ULBs]
6.7 Urban Sprawl urban/ semi-urban/ rural centres is very much

prevalent and persistent in most places in India.
6.7.1 With increased urbanisation, more These regions are devoid of any infrastructure,
and more towns and cities are witnessing a since planners are generally unable to visualise
change in the land use not only within the such growth patterns. This growth is normally
urban areas but also along the highways and in left out in most government surveys including
the immediate vicinity of the cites/towns. This the census enumeration as this cannot be
dispersed development outside of compact grouped under either urban or rural centre.
urban and village centres along highways and in
rural countryside is defined as urban sprawl. Growth of urban sprawls will result in change
in land-use and land cover with impacts such
6.7.2 When rural pockets are connected to a as loss of agricultural land, open space,
city by a road, in the initial stages, development and ecologically sensitive habitats. This will
is concentrated along such roads in the form ultimately have future implications in terms
of service centres such as shops, dhabas, etc., of urban flooding. All such concerns will be
which eventually become the hub of economic addressed by the states on a priority basis.
activities leading to the sprawl. This type of MoUD will review this with the states/UTs.
upsurge caused by a road network between Action: MoUD, States/UTs
85
7 Response
7.1 Overview the sites. Very often, they are

covered by insurance and, as a
Response measures, taken immediately result, they are able to recover
prior to and following an event, become very losses,
crucial in saving lives and protecting property.
b) Some of the stakeholders falling
For effective response during urban flooding,
under this category depending
it would be important for all stakeholders to
upon size and managerial
have a clear understanding about its adverse
capability may have their own
impact and the response actions that have to DM Plan and contingency
be taken. It is essential to define the roles of all planning, and
the agencies involved and this will have to be a
c) Likewise, some of them may
part of the DM Plan for the city/town.
have their own insurance cover,
7.1.1 Adverse Impacts of Urban enabling them to recover at least
Flooding major part of their losses and aid
7.1.1.1 Localised Impacts resilience.
Importance of urban centres has Steps will be taken for business continuity plan
been very well brought out in Introduction by local Federations of Commerce and Trade
(Chapter 1). Urban flooding has localised and organisations like CII, FICCI, ASSOCHAM
and NASSCOM. State governments should
impacts on commercial, industrial, business
coordinate these efforts.
and institutional locations, as well as different
categories of residential areas. Besides, there [Action: States/UTs]
are disruptions of water supply, sewerage, ii) Impact on different categories of
power supply and communications. residential areas:
i) Impact on commercial, industrial, a) Colonies with approved
business and institutional locations layouts,
a) Shutdown of commercial, b) Developed slums with some

industrial and business activity basic infrastructure,
and loss to property and assets c) Unapproved layouts of small

depend upon the severity of colonies, bastis, habitations and
flooding and vulnerability of new/undeveloped slums,
86
Response
d) New slums coming up in areas, CDMPs will be prepared taking into account
which are not approved, and UFDM concerns.
e) Clear encroachments upon Action: States/UTs and ULBs
nallahs, drains and houses
constructed in flood plains 7.3 Response Actions
including high flood levels of
7.3.1.1 Taking into consideration the possible
rivers and below FTL of water
adverse effects of urban flooding including
bodies. While housing in
localized and general effects, every local body
unapproved/ irregular layouts
should have a robust response plan to deal
and encroachments can be more
with such an event. Central to all this is to have
vulnerable to flooding, even
a CDMP. Besides, this has been discussed in
approved layouts which have not
detail in Chapter 5. It has been categorically
initially taken flood vulnerability
stated that all DM actions should be planned,
into consideration, also get very
executed and monitored, on the basis of local
badly affected.
watersheds and not be guided or restricted by
7.1.1.2 General Impact administrative boundaries.
i) Disruption of traffic – road, railway and 7.3.1.2 While a CDMP takes into consideration
air traffic, all disasters that the city is vulnerable to – both
natural and man-made, it should cover all issues
ii) Schools, hospitals, and relating to urban flooding disasters. Some of the
essential elements to be taken note of regarding
iii) Water supply, sewerage, powers and
response are discussed here.
transmission lines, communication and
other infrastructure. 7.3.2 Emergency Operation Centre
7.3.2.1 Emergency Operation Centre (EOC)
7.2 City Disaster Management
is an off-site facility which will be functioning
Plan from headquarters of the ULB. It should be an
7.2.1 A City Disaster Management Plan augmented control room having communication
(CDMP) is a very important and basic DM facilities and space to accommodate the various
document and takes into account all the Emergency Support Functionaries. These
disasters that a city is vulnerable to. Going by officials will be able to take decisions on the
past records and experiences it can sometimes spot, under the guidance of the Responsible
be presumed that some urban areas are less Officer (RO) and will be able to assist the
vulnerable to flooding. However, every city has RO in achieving the incident objectives.
to factor in urban flooding concerns, even if The responsibility can be discharged most
they are varying in degrees, keeping in view effectively only if it has the required information
different factors that contribute to urban through a fail-safe communication facility and
flooding that have been discussed in these an ideal information technology solution with
guidelines. DSS. In additions to the above, a web-based
87
connectivity will further help in accessing incident. He is appointed by the RO. He may
situational awareness, decision support and have a deputy with him depending upon the
multi-agency coordination. It will allow all magnitude and nature of the incident. He may
collaborating decisions, activate plans, deploy be assisted by officials and staff, responsible
Incident Response Teams (IRTs), perform and for performing different duties.
log all necessary response and relief activities
7.3.3.3 Incident Response Teams
and make the EOC effective. It is very important
to put the above capabilities in place. The RO will constitute IRTs from among
officers from the concerned departments of the
7.3.3 Incident Response System ULB besides Fire and Emergency Services, etc.
For effective response, the following The Members of IRTs will be properly trained
facilities may be required to be established, and sensitised regarding their roles during the
depending on the needs of the incident, the pre-disaster phase itself. Officers in charge of
length and time the facilities needed to be used, Stormwater Drainage and Water and Sewerage
the cost to establish it and prevailing weather will be part of the IRTs. The headquarters of IRT
conditions, etc. will provide continuous support to the on-scene
7.3.3.1 Responsible Officer IRT(s) and, if required, join them or take over
response on the direction of the RO.
In view of the provisions of the DM Act 2005 and
the administrative structure existing in the country 7.3.3.4 IRS facilities – Incident Command
at the District and State levels, the roles of the Chief Post
Secretary and the District Magistrates/ District The Incident Command Post (ICP) is
Commissioner is all-encompassing as regards the location at which the primary command
response. Under the Incident Response System functions are performed and shall have one IC
(IRS) it is necessary to designate an authority in-charge there. There will be only one ICP for
responsible and accountable by law to respond to each incident. For the initial location of the ICP,
disasters and therefore a position of RO has been the nature of the incident, whether it is growing
introduced. Incident response management may or moving and whether the ICP location will
however not always require the direct intervention be suitable in size and safe for the expected
of the RO. On the ground, the management will duration of the incident, should be taken into
be done by the Incident Commander (IC) to whom consideration. Larger and more complex
powers will have to be delegated by the RO. In incidents will require larger ICP.
the context of urban flooding, the Commissioner /
The ICP may be located at a safe
CEO of the ULB could be designated the RO, if the
building near the incident. In case of non-
DM/ Collector is a junior officer and will be overall
availability of such a building, the ICP may be
responsible for all response activities during any
located in a vehicle, trailer or tent. It should
incident or crisis.
however have adequate lighting, effective
7.3.3.2 Incident Commander communication system and other such facilities
The IC is the overall in-charge for so that one can function effectively. In such a
the management of on-site response to any situation, the other components of IRT may
function from a convenient location and the
88
Response
ICP should be in constant and regular touch places. While some may have space available
with them. in the upper floors/ terraces, some may move to
houses of friends and relatives. However, very
i) Officials will be designated by name
often the poorest are the most vulnerable and
at all levels, to discharge various
in the absence of any such possibility, they will
responsibilities under the IRS, and
have to be moved to flood shelters.
ii) List of these pre-designated officials with
7.4.2.2 School buildings or community halls
telephone numbers will be given wide
may generally be identified for such purposes.
publicity through media and other printed
Water supply and sanitation facilities may
publicity material, to be freely made
not be sufficient to meet the needs of the
available to all stakeholder groups.
people who are shifted to shelters. Additional
[Action:ULBs] temporary arrangements may have to be
planned even in advance, depending upon the
The National Disaster Management Guidelines
local conditions.
on Incident Response System, prepared
by NDMA, was released in July 2010. The i) Buildings will be designated as Flood
Guidelines can be accessed at http://ndma. Shelters and all necessary arrangements
gov.in/ndma/guidelines.htm will be ensured ahead of the flood season,
and
7.4 Emergency Response ii) Additional temporary arrangements will
be made for water, sanitation, etc.
7.4.1 Evacuation Plan
[Action: ULBs]
7.4.1.1 There shall be a ward-wise inventory
of vulnerable areas and an evacuation plan, 7.4.3 Search and Rescue
should it become necessary to shift people 7.4.3.1 In any emergency, even before the
to safer places. In case of sufficient early intervention of the state machinery, community
warning, this could be put in operation prior to becomes the first responder at the local
incident. However, if it is a sudden onset event, level. The community plays a major role in
emergency evacuation will be carried out at the preventing loss of life and damage to property.
shortest notice and may continue as severity So, community-based disaster preparedness
increases. (CBDP) and response are very important aspects
of urban flood disaster management.
Emergency evacuation plans will be developed
with an institutional checklist of emergency 7.4.3.2 However, the Local Emergency Squads,
actions. Fire Brigade and the Disaster Response Force,
etc. have a very important role to play in search
[Action: ULBs]
and rescue efforts.
7.4.2 Flood Shelters
i) Community level teams will play an
7.4.2.1 Depending upon the severity and important role in planning and assisting
magnitude of the flood, people from the in this and work in coordination with the
affected areas are required to move to safer official machinery, and
89
ii) The municipal staff also works in 7.4.7 Chronic Flooding Areas
close coordination with revenue 7.4.7.1 Urban areas have chronic flooding
administration.
spots, which are usually low-lying areas,
[Action: ULBs]
which may be falling in floodplains or
7.4.4 Food and Water Supply within the FTL. People belonging to the
7.4.4.1 Food and water for people evacuated marginalised sections predominantly live there
to Flood Shelters should be given top priority. in slums, etc. There are also a large number of
Further, whenever people are stranded at other instances of colonies and lay-outs, inhabited by
locations, they should also be provided food even affluent sections that have come up in
and other essential commodities. Water shall be such areas.
supplied to people to whom the regular water These spots should be properly identified in
supply is affected due to flooding. Urgent steps the CDMP and response actions planned well
should be taken to restore water supply on war in advanced, taking both the physical and
footing after the event. social vulnerability into account.
7.4.5 Sanitation
Action: ULBs
7.4.5.1 For disposal of solid waste, a container
has to be provided at the shelter place. Water 7.4.8 Emergency Logistics
supply and sanitation facilities may not operate 7.4.8.1 Inflatable motorised boats, helicopters
during the floods, or may not be sufficient to meet and search and rescue equipment is required
the needs of those people that are shifted there. immediately after an urban flood event to carry
Children, women, the aged and differently-abled out search and rescue of people trapped in
persons will be given special attention. inundated areas, on tree tops and hanging on
[Action:ULBs] to structures. The ULBs have to compile a list
of such equipment and identify suppliers of
7.4.6 Flood Hotspots
such specialised equipments and enter into
7.4.6.1 Every city or town has certain flood long term agreements for their mobilisation and
hot-spots which are chronic spots of inundation, deployment in the event.
affecting smooth flow of road traffic and at times
7.4.8.2 The setting up of relief camps
even rail traffic. These can change over a period
for the people whose houses have been
of time. While efforts are made to reduce the
damaged by flood, the provision of basic
hotspots through mitigation measures, new hot-
amenities in such camps involves complex
spots may be detected due to various activities
logistics of mobilising relief supplies,
affecting local hydrology.
tents, water supply and sanitation systems,
i) Pre-flood season mitigation measures transport and communication systems, and
will be taken, and medical supplies. Immediate restoration of
ii) Post-flood review and identification of power supply would be essential to carry
any fresh hot-spots will be done on a out relief operations. An information booth
regular basis. for victims would be established by the
[Action: ULBs] authorities of ULBs.
90
Response
7.4.9 Relief Camps as when requisitioned by the RO. In fact, in case

of an impending disaster, they can also be pre-
7.4.9.1 Relief camps may be set up for a slightly
long-term use of the people whose houses have positioned at the vulnerable places. Besides
been damaged by floods and can not be made the NDRF, states are required to raise the SDRF
usable in a short span of time. The provision of and, as and when they become operational, they
basic amenities in such camps involves complex could be requisitioned, as required.
logistics of mobilising relief supplies, tents, water
supply and sanitation systems, transport and Periodic simulation exercises and mock drills
communication systems, and medical supplies. will be organised and made mandatory on the
lines of pilot initiatives of NDMA for ensuring
7.5 Specialised Response
effective, functional emergency response,
Teams
along with the inventory of community
7.5.1 NDRF and SDRF
resources and assets.
7.5.1.1 As already discussed in Chapter 2,
NDRF is a highly specialised force and available [Action: States/UTs and ULBs]
NDRF’s Capacity for Evacuation

(12 hrs operation within the area of 5 km radius)
The total number of existing NDRF Bns is eight and two new NDRF Bns have also been
sanctioned.
Evacuation capacity of 01 NDRF Bn:
(A) No. of Inflatable Boats in each NDRF Bn – 72
Rescue Capacity of each Boat – 08 (excluding drivers/ rescue personnel)
No. of evacuation trips in 12 hrs – 24 (time taken in one trip ½ an hr)
No. of people evacuated in 12 hrs – 72 x 08 x 24 = 13,824
(B) No. of Fibre Boats in each NDRF Bn– 06

Rescue Capacity of each Boat – 18 (excluding drivers/ rescue personnel)
(C) No. of Boat Assault Universal Type (BAuts) in each NDRF Bn – 36

Rescue Capacity of each Baut – 18 (excluding drivers/ rescue personnel)
Evacuation in 12 hrs by one NDRF Bn = A + B + C = 13,824 + 2,592 + 15,552 = 31,968

Evacuation in 12 hrs by 08 NDRF Bns = 31,968 x 08 = 2,55,744
Total Evacuation in 12 hrs by 10 NDRF Bns = 31,968 x 10 = 3,19,680
91
7.5.2 Police and Home Guards i) Since Fire is a municipal subject, a uniform
7.5.2.1 The Police play a very important role, policy is required which will be applicable
especially during and immediately after an urban in all states. Steps will be taken by all the
flooding event, in managing traffic, assisting States/UTs to have the fire services under
in search and rescue, transportation and the Municipal Corporation/ Municipality,
certification of casualties besides maintaining for at least the larger cities/ towns,
law and order in general. The Home Guards, the ii) States/ UTs will take necessary steps to
auxiliary arm of the Police force, shall support systematically strengthen fire services
the administration in various disaster response by making provisions in their annual
tasks. plans, and
iii) T h e 1 3 t h Fi n a n c e C o m m i s s i o n
7.5.3 Fire Brigade
recommended that a portion of the
7.5.3.1 Traditionally in India, fire services grants provided to the ULBs be spent
were trained and used for fire -fighting on revamping of the fire services within
operations. However, their mandate covers their respective jurisdictions. These
a wider range and they are also called Fire bodies could provide financial support
and Emergency Services in many states. Fire to the State Fire Services Department
service is a state subject and a responsibility towards this objective. In this process,
of the local municipality. At present, there is ULBs could draw upon the expertise
no uniformity in the administration for fire of state agencies and the NDMA, as
services in India. required.
7.5.3.2 As per the Standing Fire Advisory [Action: MoUD, States/UTs and ULBs]
Council of India, the response time in urban
7.5.4 Local Emergency Squads
areas should be 3-5 minutes. There is a major
gap in the number of fire stations, fire-fighting 7.5.4.1 Every city/town faces emergencies, all
and rescue equipment and trained personnel. round the year, and the ULBs have emergency
This problem needs to be addressed on an squads to deal with them. Urban flooding is
urgent basis. This will not only be useful to deal also an emergency, occurring frequently. Local
with urban flooding, but all other urban disasters Emergency Squads need to be constituted at
and emergencies. the ward level. A highly localised event can be
fully taken care by the Emergency Squads.
7.5.3.3 In Mumbai, the Mumbai Fire Brigade
i) The emergency squads will be oriented
is administered by the MCGM and looks after
to deal with such situations and will be
rescue and relief of all kinds of disasters, but in
provided with necessary training and
many states the fire and emergency services
equipment as mentioned in the DM
are under the control of the state government.
Plan, and
Mumbai Fire Brigade has demonstrated its
ii) Equipment will invariably include pump
capability in dealing with all disasters, including
sets of required capacities in sufficient
urban flooding in 2005, during which they saved
numbers.
the lives of thousands of people.
[Action: ULBs]
92
Response
7.6 Medical Preparedness and should also be made to dispose off animal
Response carcasses.
7.6.1 Preparedness Local scale emergency medical response

systems will be established to deal
7.6.1.1 City hospitals should be adequately
with medical preparedness, emergency
prepared to handle cases of flood-affected
treatment, mortuary facilities and disposal
disasters and medicines for monsoon disasters.
of bodies and carcasses, public health
7.6.1.2 In the event of an urban flood disaster, issues including trauma and control of
death could be due to drowning, injuries sustained epidemics.
due to damage to infrastructure like wall collapse, [Action: States/UTs and ULBs]
etc. Water borne diseases could immediately affect
the people as a skin disease and vomitting. These 7.6.2 Emergency Medical Response
incidences will also lead to outbreak of epidemics i) On-site arrangements should be in
and skin diseases due to wading in flood waters place for treatment of minor ailments
and infection due to water borne diseases, such and injuries,
as dengue and malaria. Leptospirosis can be a
ii) Hospitals shall be identified in every
serious threat, as people wading through water
ward for emergency treatment,
may get affected. Hospitals should have stocks
of antibiotics and be in a position to requisition iii) Adequate arrangements should be
them at short notices. provided for people requiring psycho-
social care, in the aftermath of a
7.6.1.3 Diseases like malaria and dengue
disaster, and shall be continued for
spread, if adequate sanitation and disinfection
an extended period of time in case of
was not carried out. Cholera is also a possibility,
serious cases,
because of the conditions that may be conducive
for it. The important drugs are chlorine tablets. iv) In the event of casualties, the local
body will develop systems for proper
7.6.1.4 The supply of safe and sufficient
identification of the dead, recording
drinking water needs to be ensured. Protecting
the details of victims, and making use
existing water sources from contamination,
of DNA fingerprinting,
adding chlorine tablets in water for residual
disinfection and provision of latrines and v) Mortuary facility and disposal of the
proper waste disposal to avoid contamination dead, and
through flies and other insects, are important
vi) Public Health Issues.
steps required immediately in the aftermath
of an urban flood. Vector control is done by i) Risk knowledge will be linked with local
spraying of shelters with residual insecticides. scale response plans by organizing
Provision of insecticide-treated mosquito-nets necessary support systems from national
and larviciding are recommended. Immunisation agencies in accordance with needs of
needs to be carried out in susceptible individuals the local authorities and community
to prevent diseases. Necessary arrangements stakeholder groups, and
93
ii) Institutionalised multi-agency telecommunication, relief supplies, search

collaboration will be developed with and rescue equipment, transport and logistics
clarity of roles and responsibilities from for movement of relief supplies to the extent
city to ward levels and periodic updating possible and technical services for restoration
of SOPs at different levels based on and reconstruction of damaged infrastructure.
experience gained. For instance, the Construction Federation of India
with the support of Hindustan Construction Ltd.
[Action: States/UTs]
has set up the India Disaster Response Network
(IDRN), which can also be associated during
The National Disaster Management Guidelines
response, restoration and recovery phase. ULBs
on Medical Preparedness and Mass Casualty
will develop appropriate mechanism to receive
Management, prepared by NDMA, was
and optimally utilise all such assistance.
released in November 2007. The Guidelines
can be accessed at http://ndma.gov.in/ndma/ 7.7.3 Recognising the inadequacy of
guidelines.htm information on inventory of resources for
emergency response, the MHA initiated the
7.7 Involvement of the IDRN in collaboration with UNDP under the
GoI-UNDP DRM programme to systematically
Corporate Sector
build up the IDRN inventory as an organised
7.7.1 The corporate sector plays a very information system. The online information
important role after a disaster by providing system is hosted at the National Informatics
resources and equipment. The corporate Center (NIC), New Delhi. It can be accessed
sector will be encouraged to take proactive at the address http://www.idrn.gov.in. IDRN
role during mitigation and preparedness is a platform for managing the inventory of
phase. They will be encouraged to sensitize equipment, skilled human resources and
their employees and also to develop suitable critical supplies for emergency response. The
business continuity plans to ensure disruption- primary focus is to enable the decision makers
free operation following a disasters. As a part to find answers on availability of equipment
of Corporate Social Responsibility (CSR), the and human resources, required to combat any
corporate sectors operating in urban areas will emergency situation. The IDRN website needs
be encouraged to campaign on prevailing urban to be updated regularly.
flood risk and preparedness thereof, among
Strengthening of IDRN activity with updating
vulnerable communities in the vicinity of their
of information will be carried out on a regular
locations.
basis.
7.7.2 ULBs will facilitate involvement of [Action: MHA]
the corporate sector in making available their
services and resources to the Government 7.7.4 As a unique example of public-
during the immediate aftermath of urban private partnership in the field of DM, the
flood. The Corporate sector, as a part of the Confederation of Indian Industry (CII) has also
Corporate Social Responsibility, can provide created a web-enabled resource inventory,
inter alia the services of hospitals, power and consisting of large records of information
94
Response
obtained from different central and state iv) Lack of public awareness – people
government departments, agencies and will not be prepared to deal with flood
organizations, useful for emergency response emergencies,
in the event of any disaster, like urban flood,
v) Lack of early warning capability,
etc. Such activities need to be strengthened
and continued. vi) Lack of real-time rainfall data, and
vii) Lack of modelling for framework and
Each ULB should involve the corporate
impact assessment.
sector in making available their services
and resources for emergency response.
7.9 Challenges to Evolve Disaster
This should form an essential part of DM
plan. All available resources should be
Response Capability
documented. The IDRN should also be 7.9.1 One of the prime prerequisites for
used during response. effective disaster response capability is to
[Action: States/UTs and ULBs] educate people about their risk and prepare
warning reaction plan. It is only then that people
7.8 Challenges in Responding are likely to heed and act upon warnings.
Following are the response capacities:
to Urban Flooding
i) Lessons learnt from past disaster
7.8.1 People, and also agencies, responsible
response, need to be progressively
for management of urban flooding are
incorporated into response
generally not well prepared to deal with the
strategies,
emergencies. The challenges in responding
are: ii) Updating of response plans is to be
a continuous process through joint
i) Access – Roads are flooded within the participation of scientific institutions
cities. Sometimes the cities/ towns get with responder/stakeholder groups,
cut off due to severe flooding, by fully accounting the requirements
ii) Coordination between relief agencies– of the people at risk,
between different government agencies iii) Important consideration of disaster
as well as between government and managers, include determining how
private agencies/NGOs, safe and adequate public evacuation
iii) Wa t e r s u p p l y a n d s o l i d w a s t e and other response facilities are, how
management - When services like water to effectively move large numbers of
supply and solid waste management are affected people safely and how to
weak, they would get further drastically maintain order and security during
affected due to floods. Water Supply- evacuations in an integrated manner,
first priority – drinking water – water a) Special healthcare support for
bottles or sachets - restore water supply women (pregnant and lactating),
on war footing after the event, children, senior citizens,
95
b) Rescue planning for low-lying

b) A system to determine the safety of
areas, including night rescue
relief and relocation infrastructure,
operations in liaison with
capacities of the emergency evacuation
Fire Brigade/Fire and Rescue
machinery and integrated support of
Services, Civil Defence Teams,
emergency health care, night rescue,
Resident Welfare Associations,
restoration of energy and food supply,
NDRF/SDRF, etc.
etc., will be institutionalized.
iv) Preparedness for crisis management [Action: States/UTs and ULBs]
and response with a notified calendar
of planning and review meetings with 7.10 Disaster Response
all stakeholder/responder groups, Mechanism
including elected representatives of
7.10.1 Some important components of the
ULBs, etc.,
Disaster Response Mechanism are:
v) Random evaluation of emergency
preparedness by independent groups i) Development of EWS, Warning
ahead of the monsoon season, Dissemination and impact assessment
framework,
vi) Mechanism to check/monitor and
review grounded response actions and ii) Early evacuation, where there is
initiate corrective measures, sufficient lead-time,
vii) Social audit of response actions, iii) Emergency evacuation plan and
inventory of vulnerable areas and
viii) Awareness about regional factors of
hotspots,
vulnerability, contributing to local urban
flood risk enhancement, iv) Integration of urban flood risk
ix) Organize the required tools and assessment systems with the
machinery for search and rescue appropriate warning and dissemination
operations, clearing of road blocks by systems,
fallen trees, debris, etc., v) Identification of shelters,
x) Ensure the availability of necessary vi) Generating public information tailored
maintenance resources for the to target groups and making innovative
restoration and sustenance of essential use of the media and education
services, and systems,
xi) Ensure total compliance of SOPs vii) Establish local benchmarks and
associated with the emergency performance standards for warning
response cycle. services,
a) Restoration of p o w e r, viii) Develop formal mechanism for public

telecommunications, road and railway representatives to monitor and oversee
transport will get top priority, and warning systems design,
96
Response
ix) Use surveys to measure public i) Developing institutionalised multi-

awareness and satisfaction, agency collaboration with clarity of
roles and responsibilities (Defining
x) Create documents, publications,
SOPs at different levels),
annual events and other anchors of
public memory and learning, and ii) Enhancing organised public awareness
and education for early warning
xi) Conduct mock drills to assess the
response,
preparedness of all agencies and the
community, iii) Identification and disposal of dead
bodies based on local/religious/ethnic
7.10.2 Timely response is extremely important.
requirements,
Failure/ delayed response often stems from lack
of planning and coordination. This results in iv) Establishment of well-defined post-
avoidable loss, both in terms of life and property. disaster damage and assessment
Lack of understanding by the local people of of recovery needs of the affected
their risks, also contributes to this. Some of the communities and support systems,
challenges in evolving an effective response
v) Setting up of local level emergency
capability are designation of a nodal officer, a
medical response systems for the
standing emergency and response mechanism
post-disaster scenario to deal with
and, involvement of different state and central
trauma and epidemic control, and
agencies and experts. In any case, the nodal
officer should be empowered to take decisions vi) Creation of trained ward-level volunteer
in an emergency to save life and property. Some force at the city level.
major efforts required in this respect are:
97
8 Capacity Development,
Awareness Generation
and Documentation
8.1 Overview different and so also are the strategies to deal with
such events.
8.1.1 Capacity Development is a complex
8.2.3 Some key components enunciated
exercise that involves all round development of
in these guidelines for the management of
human resources and infrastructure for it to be
urban flooding include extensive use of science
sustained and institutionalized. It has to cover
and technology by establishing standing and
all phases of the DM continuum, including
supportive mechanism both at the national, state
prevention, preparedness, mitigation, rescue, relief,
and the local levels for improved forecasting, early
rehabilitation, reconstruction and recovery. These
warning and communication. Appropriate design
efforts are going to be all the more challenging
options for the stormwater drainage systems
in the context of UFDM as it has just begun to
and better O&M actions are also a part of the
come into sharp focus of all the stakeholders. It
strategy. Others include technically enhanced and
will be some time before the administration and administratively refined DRM efforts, improved
the communities come to terms with it. response actions, massive awareness generation
campaign, needed for administrative and political
8.2 Urban Flood Education will to crystalise. It is a challenging task. Hence,
8.2.1 The factors causing urban flooding capacity development in the context of urban
are significantly different when compared to flooding will have to carefully factored in these
riverine flooding, which mostly impact rural challenges initially and subsequently build upon
areas. Cities and towns did not remain isolated them methodically, with regularity.
when large tracts of rural areas got flooded but
i) Disaster-related curricula have already
flood management strategies largely focused
been introduced by the Central Board of
on covering extensive rural areas.
Secondary Education (CBSE) for classes
8.2.2 Rapid urbanisation and increasing VIII, IX and X. It has to be clearly brought
population densities is a very recent trend is the out that urban flooding is different from
time cycle. Factors contributing to urban flooding riverine flood which largely affects
have also aggravated, leading to increasing urban rural areas. The MoUD, in consultation
flooding events. It has now been fully understood with the MHRD, will encourage the
that the factors contributing to urban flooding are
98
Capacity Development, Awareness Generation and Documentation
CBSE to introduce modules of UFDM involved. One of the major public health
in classes XI and XII as well. MoUD in concerns in management of urban
consultation with MHRD and the state flooding is the possibility of breakout
governments will promote the efforts of epidemics after a severe flooding
for the development of high-quality event. Besides this, trauma care and
education materials, textbooks and emergency medical care are also very
field training. The state governments relevant,
will encourage their school boards to v) The state governments will follow up
develop similar content in their school these efforts with regular in-service
curriculum, refresher programmes at appropriate
ii) Such efforts will address all aspects levels for upgradation of knowledge and
of UFDM, in order to inculcate a skills, and
culture of prevention, mitigation and vi) There are some important human
preparedness as well as effective and factors which contribute to urban
prompt response, relief, rehabilitation flooding, namely, improper disposal of
and recovery. Case histories of major domestic, commercial and industrial
flood events will be used as valuable solid waste and construction debris.
inputs in the process, These issues will be highlighted in
iii) MoUD will lead efforts to involve All curriculum developed by the states for
India Council of Technical Education schools. Implications of non-compliance
(AICTE), University Grants Commission of the techno-legal regime will also be
(UGC), Council of Architecture (COA), included. Such efforts will go a long
Institution of Engineers (IE) and the way in generating awareness from a
state governments to develop suitable young age and contribute to bringing
modules for inclusion in the curricula of about total understanding of all issues
architecture and engineering courses involved.
in the Indian Institutes of Technology [Action: MoUD, MHRD, MoHFW and
(IITs), National Institutes of Technology States/UTs].
(NITs) and other universities, colleges
and polytechnics of engineering and
8.3 Target Groups for Capacity
architecture to equip the students with
the requisite knowledge of flood-proof
Development
design and construction techniques, 8.3.1 The target groups for capacity
iv) DM related aspects of medical development will include elected representatives
education will receive detailed and government officials, concerned with
attention at different levels, so that the national and state level DM functions,
graduating doctors, paramedics and professionals in visual and print media, urban
emergency medical technicians are planners, infrastructure development experts,
able to handle emergencies with a engineers, architects and builders, NGOs,
better understanding of the issues CBOs, social activists, social scientists, youth
99
organisations such as National Cadet Corps

(NCC), National Service Scheme (NSS), Nehru Raising the Level of ATIs
Yuva Kendra Sangathan (NYKS), school teachers i) Efforts should be made to raise the
and school children. level of ATIs. The faculty should
become the nodal point of capacity
8.4 Institutional Capacity enhancement in the state, be able to
Development design and supervise the technical
8.4.1 Different organizations have a role to play capacity programme initiatives
in capacity development. The State ATIs, NDRF of line departments. They should
and Civil Defense, for instance, will have the pivotal evolve suitable training modules
role in community capacity development. Different by taking specific needs of the line
organizations have a role to play in institutional departments in consultation with
capacity development. States, with their own knowledge institutes, undertake
specialized institutions, can play important roles research studies, and mock drills to
in the various aspects of managing different types improve preparedness and response
of disasters. It is obvious, that each disaster, capacities, design and development of
every thematic intervention in each phase of the databases, etc. to meet the emerging
DM cycle requires the type of expertise, which is needs of the ULBs,
normally available with multiple agencies, but ‘no ii) The State/UT governments should
single agency’ has all the requisite expertise and designate a nodal officer in the
background. department of MA&UD to work
in close coordination with the DM
8.4.2 ULB as a nodal agency should
cells of ATIs on one side and the
play a major role in coordinating efforts for
commissioners of ULB on other side,
capacity development. With reference to
and
urban flooding, capacity development at
the ULB level has to be integrated with the iii) DM Cells of ATIs are to work in close
activities of community, civil defense teams, coordination with state departments
NGOs and NDRF. Components of multi-layer of MA&UD and Commissioners of
capacity development framework are i) Training; ULBs to ensure capacity development
ii) Techno-legal framework; iii) Knowledge programmes.
management; iv) Institutional capacities and [Action: MoUD, NIDM, ATIs and States/
v) Capacity analysis and assessment studies. UTs]
Hence, capacity development revolves around
several factors such as (a) appreciation and 8.5 Community Capacity
awareness of the causes and consequences Development
of disasters including native wisdom, (b)
8.5.1 Based on international efforts and
acquire skills and abilities to be able to act and
past experience, Community Based Disaster
cooperate in times of imminent or actual mass
Management (CBDM) is found to be the best
emergencies, (c) caring for the young, pregnant
mode of developing ground level emergency
women, old and the disabled.
100
response and coping strategies (pre-disaster/ iii) In situ flood management approaches
disaster/post-disaster), since communities and should ensure community
families are the first responders during the preparedness. This includes
crisis. UNDP formulated DRM programmes to participatory urban flood planning
enhance the coping capacities of communities
and management involving both local
to deal with disasters. The DRM programme
government and the community.
is a national initiative to reduce vulnerabilities
Communities should also be empowered
of communities in some of the most hazard
to develop their own hazard mapping
prone cities/towns of India (225 towns). This
and evacuation strategy. The critical
has largely benefited local communities to be
role of NGOs in reducing community
better prepared to deal with disasters.
risks and vulnerabilities to disasters
8.5.2 The approach of the DRM programme need to be considered.
is to: a) focus on building community capacities, [Action: MoUD, and States/UTs]
community based planning b) partnership
with all stake-holders in DM like governments, 8.6 Mock Drills
professional bodies, training institutions,
peoples’ representatives, technical institutions, 8.6.1 The approach for conducting a
etc. and c) boost capacities at all levels with mock-drill varies as per the complexity of
special emphasis on women to address scenario depending upon the potential hazards,
disasters through an integrated approach for response system of the institution and the
reducing vulnerabilities. Thematic focus is on target community. Therefore, to ensure proper
education, training and capacity building for implementation of a drill programme, roles and
better preparedness and mitigation in terms responsibilities of the concerned personnel,
of DRM and recovery at community, district departments, corporate bodies, stakeholders,
and state level by strengthening linkages with and mechanisms for conducting the drill will be
SDMAs and DDMAs. delineated clearly.
Suggested Actions for Strengthening

8.7 Role of Civil Society
CBDM Efforts
8.7.1 The NGOs have graduated from
i) On the basis of the experience of the
being mere relief organisations to focusing on
GoI–UNDP DRM Programme, a similar
rehabilitation, reconstruction and mitigation. They
programme should be designed for
have formulated and grounded community-based
the urban areas in a multi-hazard
indigenous coping mechanisms and developed
approach with special emphasis on
methodologies in facilitating community-drawn
urban flooding,
comprehensive contingency plans including
ii) The adoption of community-based
resource, vulnerability, social mapping, etc.
DRM, people-centred approaches,
NGOs have integrated disaster mitigation as a
and the integration of DRM strategies
component of the development programs they
into the socio-economic development
have triggered. Livelihood options are being
planning, are critical for effective flood
explored as an important ingredient of the
management strategies, and
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development process. Women’s Self-Help Groups

Suggestions for Establishing Effective
(SHGs), CBOs and other grassroot organisations
Community Level First Responder
are involved in the disaster mitigation process.
Support
Community media is being used as a tool to
i) Encourage local residents to constitute
spread awareness. Government resources are
also being tapped so as to work in coordination first responder support groups
with them for optimum utilisation of resources. It consisting of ex-servicemen, retired
is in this background that a strategic collaboration police personnel, paramilitary forces
between the institutions of state and the and RWAs,
institutions of civil society has to be worked out ii) The owners/those connected
in order to facilitate better community-based with management of organisation
disaster response in Indian cities. which generates bulk solid waste in
Civil society needs to consider the enhancement commercial areas running of hospitals,
of the socio-economic conditions of the hostels, community halls, hotels and
poor, alleviate poverty and improvement of restaurants,
livelihood of these vulnerable groups. iii) These people should be encouraged to
be part of the TF/ VG,
iv) The VG can be trained by the teams of
8.7.2 Task Force/ Volunteer Groups Civil Defence, SDRF, NDRF, etc.,
In the urban areas, the local level RWAs, v) Involve various youth organisations,
covering colonies, apartments as well as SDAs, namely, (i) NCC, (ii) NSS, and NYKS to
generally take an interest in various activities have the inherent advantage of outreach
of the residents, including development and at the grass-root level and also have
interaction with local authorities. They should the advantage of ready availability for
be encouraged to form local level Task Force/ immediate assistance at the ground
Volunteer Groups (TF/VG), who work closely level in the event of any disaster, and
with the civil defence officials. They should vi) Develop emergency response plans for
be trained to deal with emergencies and be
hospitals and government offices.
generally exposed to all aspects of DM including
prevention, preparedness, mitigation, rescue,
relief and recovery.
8.8 Handling Societal Impacts
8.7.3 The TF/VG should also be actively
of Urban Flooding
involved in awareness generation, particularly
about compliance of various rules and guidelines 8.8.1 Large number of urban locations are
and supervision of important works like located on hazard prone land areas and a big
maintenance of stormwater drainage systems majority of people are affected because of
including desilting in the local areas. All such flooding. Irrespective of whether urban floods
people should be brought under the close are part of larger riverine floods or result from
coordination of the volunteer groups. inadequate drainage capacities, the damage
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potential of floods in cities is extraordinarily high. episodes of urban flooding are great levellers
The main impacts of flooding on the population as the middle class and the affluent class also
include, material damage and loss of life; the get severely affected.
interruption of economic activity in the flooded
8.8.6 In cases of extensive and protracted
areas; infection by water-borne diseases; and
damage, economic damages can be extremely
water pollution when toxic-waste dumps are
high. As urban centres have developed into
flooded.
centres of economic activity with concentrated
8.8.2 Given the high spatial concentration enterprises dealing in commerce and industries
of people and values in cities, even small-scale like service, IT, manufacturing, banking, etc.
floods may lead to considerable damage. therefore, there is also a need for a business
In extreme cases urban floods can result in continuity plans.
disasters that set back urban development by
8.8.7 Increase in property damages due to
years or even decades. Recent statistics clearly
urban floods have been largely attributed to
indicate that economic damages caused by
increases of coastal population, increase of
urban floods are rising.
urban population, increase of human activities
8.8.3 While the number of people killed/ and an absence of a hedging mechanism such
affected or rendered homeless and the damage as insurance for life and property and risk
to property can be quantified, these statistics, transfer.
although profoundly revealing, do not include
8.8.8 The priorities of the poor and
the significant indirect, and often less tangible
those living in subsistence economies are
and more difficult to quantify, associated
sustenance of their sources of livelihood
societal impacts to individuals, families and
and securing food, shelter and clothing.
communities.
When urban floods impact the poor, their
8.8.4 Second-order impacts from disaster livelihoods along with their ability to obtain
response actions and medical problems can food, shelter and clothing can be significantly
occur days to weeks after the event. Third- disrupted. Coastal communities that do have
order impacts from changes in tax revenue and the capability to feed and provide suitable
land-use can occur months to years later. It is drinking water to their population can lose this
easy to identify some of these impacts, but basic capability following urban flooding. This
often difficult to quantity and/or qualitatively may have disastrous short-term and long-term
evaluate them. effects. Where the ability of communities to
withstand and recover from natural disasters
8.8.5 As the disadvantaged socio-economic
is diminished, the application of social
groups live in the most vulnerable areas,
protection programs and policies is required to
floods usually impact very severely on the
reduce people’s exposure to risks, enhancing
poorest in the societies. Specific strategies
their capacity to protect themselves and thus
are required to build resilience in the most
reduce the population’s vulnerability.
vulnerable groups. On the other hand, severe
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Suitable hedging mechanism like insurance of of the technical capacity development to be

accomplished by building partnerships and
life and property need to be evolved to reduce
developing networks with all knowledge and
urban flood vulnerability.
S&T institutions on a continuous basis.
[Action: MoUD and States/UTs]
The main issues, related to institutionalizing
8.8.9 Knowledge integration, management capacity enhancement are:
and dissemination are critical components
Table 8.1: Interventions for Capacity Development
Groups have to be trained Scope Responsibility
IAS/IPS, Officials at Central & Urban Flooding issues • Lal Bahadur Shastri National
State level & those connected Academy of Administration,
with Ministries/ Departments Mussourie
like Urban Development,
• N I S A , P o l i c e Tr a i n i n g
Railways, Roads, Power,
Academies, ATIs
Health, Transport, Airports,
Irrigation, PWD & DM, IMD/ • NIC & academics in states
CWC
• NIDM
Officials of ULBs, States Municipal Solid Waste disposal, • Professional bodies and
and UTs dealing with Town designing & management of Councils in states
P l a n n i n g, E n g i n e e r i n g, Stormwater Drainage Systems,
• State ATIs (in consultation
Sanitation, Water Supply & Techno-Legal Regime, Early
with IITs and NITs)
Sewerage Warning Systems, Response
and Awareness Generation • NIDM
Health Professionals Crisis management, emergency Ministry of Health & Family
medical response/recovery and Welfare & ATIs
trauma management
SRSAC Urban Flooding issues NIDM, ATIs, NRSC
NGOs/ RWAs • Developing network of NGOs NIDM

at state and district level
Youth organisations (NCC, SDMAs,
in an hierarchical manner
NYKS, Scouts and Guides
for multi-layered capacity ATIs and ULBs
and NSS)
enhancements by integrating
govt. efforts NDRF and Ministry of Sports
and Youth Affairs, Ministry of
Defence, States and ULBs
104
• Co-opting NGOs in
the evolution of local
developmental planning and
response mechanisms at all
levels
• Awareness Generation,
Disaster Preparedness,
Mitigation and Planning
• Disaster response, search
and rescue in their orientation
capsules
Mass media campaign for • Design and develop a region- Local Bodies, ATIs
awareness raising through specific communication
Print & Electronic Media strategies
• Use visual and print media
• Development of modules
on mitigation, preparedness
and response
Corporate Sector Planning and execution of NDMA, SDMAs, FICCI, CII,
Emergency Response Actions ASSOCHAM, NASSCOM, etc.
& Business Continuity Plans
i) Networking of academic researchers 8.9 Objectives of Awareness

with stakeholders in the government and Generation
the community for enabling appropriate
awareness campaigns, and 8.9.1 Objectives
ii) Creating a repository and flood-specific 8.9.1.1 Urban floods have the greatest damage
information database for multi-sector potential of all natural disasters worldwide and
risk mitigation efforts and carrying out affect the greatest number of people. On a
capacity analysis based on international global basis, there is evidence that the economic
best practices. damages resulting from flooding are on the rise
at an alarming rate. There is a need for large
Lack of technical capacity enhancement of scale awareness as a program integrated at all
domain-specific skills can severely paralyse
levels of stakeholders.
the DM infrastructure and administrative
mechanisms. Design and development of 8.9.1.2 In the context of DM, awareness
relevant educational and communication generation should have two objectives. First, it
campaigns and launching them from time to will prepare communities to deal with disasters
time is important. in a manner that people’s lives and properties are
[Action: NIDM and ATIs] protected, and to ultimately become resilient.
105
8.9.1.3 Public awareness generation will serve So, any awareness generation should aim to
to empower people with knowledge about the highlight all such issues. Awareness generation
role and responsibilities of the state, leading should look at target audience at household,
to crystallisation of political and administrative community and institutions.
will. This will manifest itself in better and timely
8.10.1.3 All these target audiences have to
strategies for disaster risk reduction.
continuously interact and coordinate according
8.9.1.4 A holistic plan of action encompasses to the community level preparedness and
enrichment through interaction on an international emergency response plans. Expected levels
scale of insights, experiences and innovations. of awareness about flood risk should include
There is a diverse range of urban flood disaster information about vulnerability of different
situations that India experiences with complex areas to flooding, its impact and a checklist
socio-economic and habitation patterns specially of preparedness and mitigation measures.
associated with rapid urbanisation manifesting Focusing on skill development through ground-
itself both in higher density of population and level disaster preparedness programmes across
geographical spread. Such a holistic perspective the target audience groups is very important.
helps to develop an integrated framework
8.10.1.4 There are certain mental psychological
of (a) capacity analysis and (b) community
barriers of individuals at all levels to be addressed
preparedness. It is noteworthy that a rich variety
by the local authorities and community awareness
of awareness initiatives have already been set
groups. This includes feeling of helplessness in
in motion by a network of institutions in India at
the disaster affected areas and complacency in
the national, state and local levels, both in the
other areas. Considering another factor is lack
private and public sectors. MCGM and NGOs
of ownership, i.e., the problem of local authority
of Mumbai have taken a number of initiatives
and not their problem. Additional factors are loss
which can be built upon.
of land, loss of income, insecurity of women and
children in relief centres and poor arrangements
8.10 Target Groups
for food and sanitation there.
8.10.1.1 Awareness generation should reach
8.10.1.5 Urban flood risk mitigation demands
out to different target groups at the household,
a close and simultaneous coordination among
community and institutional levels, so that all the
the target audience at different levels.
stakeholders can be expected to play their own
part in dealing with all aspects of urban flooding.
8.11 Household Level
8.10.1.2 As discussed in National Guidelines
on Management of Floods, the most basic 8.11.1 Awareness generation at the household
thing is that the community is to be aware of level plays a crucial role in building a sense of
vulnerability which can vary from low to very preparedness amongst them. Special efforts
high, but keeping the mobility of the people should be made to reach out to women, children
in the urban areas. They have to sensitise in and differently-abled. Even though the school
all situations. Very often people are not aware going children can be targeted at the institutional
of how individual actions can contribute to level but there are many children, especially
betterment or deterioration of vulnerability. among the most vulnerable groups belonging to
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the marginalised sections of the society who are flood shelter and relief camp management,
deprived of formal school education. incident response systems (IRS), special
dispensation for vulnerable groups, participatory
8.11.2 In the event of an impending disaster,
damage assessment, etc.
they should be aware of all actions that need to
be taken to protect themselves, their property 8.12.3 Besides, it should also cover actions
and valuables even in the absence of the head relating to preparedness like formation of local
of the family. TF/VG, drawing up micro-plans and various
other preparedness, mitigation, design and
Awareness at Household Level management aspects.
Family should be encouraged to prepare a
8.12.4 Standard platforms for convergence
flood check list that will cover the following:
at the local level would need to be created with
i) Include a list of telephone numbers for
NGOs, and other stakeholders. A humanitarian
family, friends and community leaders,
and rights based approach will permeate the
ii) Prepare a safety kit which should include dispensations and provisions made for the
a torch, sheets/ blankets, waterproof affected people. Other social mandates like
clothing, battery-operated radio, bottled revenue, water and sewerage board, public
water, first-aid kit, medication, personal distribution, social justice and empowerment
valuables and personal documentation, to orient them regarding their collective
iii) Store valuable, sentimental items and responsibilities in DM.
important documents upstairs or in a
8.12.5 RWAs, elected periodically and
high place,
periodically represent various issues of welfare
iv) The role of community leaders in
of the members. It should be ensured that
evacuation and moving to safe places,
such RWAs are formed in all the wards and
and
possibly in larger colonies, a federation of
v) A massive awareness campaign has to the RWAs should also be encouraged. The
be launched on proper disposal of solid RWAs are to be totally sensitized about
waste, desilting of drains and water all aspects of urban flooding on a regular
bodies and prevention of encroachment basis. They should also be involved in the
on to flood plain, taking into account its supervision of desilting carried out by the ULBs.
serious impact and extremely low level A system of incentive should also be devised
of public awareness. to enlist their support in a proactive manner
in dealing with the issues of solid waste and
8.12 Community level debris.
8.12.1 At the community level the RWAs/
SDAs, Basti Committees, SHGs, youth clubs and 8.13 Institutional Level
other social-cultural organisations and NGOs
8.13.1 Awareness generation programmes
have a major role in all other DM actions.
should target both students and staff of
8.12.2 Capacity building will cover response educational institutions like schools, colleges,
related to pre- and post event actions i.e., search universities and officials at various levels of the
and rescue, emergency medical preparedness, ULBs and NDRF/SDRF.
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8.13.2 Awareness generation on disasters can 8.14 Role of Public

be done through a structured syllabus approach, Representatives
play settings, mock drills and simulation
exercises. The need for appropriate eco-friendly 8.14.1 The role of public representatives
environment initiatives especially solid waste becomes critical in dealing with all UFDM
disposal needs to be highlighted. issues. Therefore, public representatives have to
be sensitized on all the factors, related to urban
8.13.3 Familiarization with the meteorological
floods and made responsible to play a major role
aspects of flood, early warning and communication
in generating public awareness for UFDM.
in an appropriate user friendly manner.
8.14.2 Elections are held once in five years
8.13.4 Historical knowledge of past disasters
and whenever there is a new body of elected
and traditional coping skills.
public representatives right from Parliament
8.13.5 The ULBs should take up measures for to the ULB level should be sensitized to at
display of high water marks of the historic floods the beginning of their tenure. This will greatly
and also place sign posts like, Flood Prone facilitate their active cooperation in all matters
Areas, “Turn Around, Don’t Drown”, at crossing related to Urban Flood Disaster Reduction.
points, etc. and at all vulnerable places.
Public representatives including Municipal
i) Public awareness will be created about Ward Members, MLAs and MPs are regularly
the need to keep safety kits containing elected by the people, directly or indirectly.
medicines, torch, identity cards, ration They have a very close contact with the people
card, important documents and non- at the grass-root level and their cooperation will
perishable eatables such as dry fruits, be enlisted for various awareness generation
roasted channa, etc. ready before programmes on a regular basis.
commencement of monsoon so that,
they can carry the same with them, in
case they have to be evacuated,
8.15 Role of Media
ii) The community will also be trained for
preparation and utilisation of improvised 8.15.1 Media has a major role in generating
flood rescue devices with household public awareness. Media persons should first
articles, and be sensitised about all aspects of UFDM and
therefore appropriate training modules should
iii) Specially designed public awareness
be prepared for them. It is only after all important
programmes will be developed for
aspects of urban flooding are clearly understood
addressing the needs of physically
by them, that they can put things across to the
handicapped and mentally challenged
people with a proper perspective.
people, women and the elderly. The
State Police Force, Civil Defence, Home Key considerations for an effective visual
Guards and SDRFs will also be covered media awareness campaign are:
by such efforts. i) All TV channels and local cable networks
[Action: NDRF, States/UTs and ULBs] will be covered,
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ii) Have a sequence of episodes, depicting vi) Exhibition on flood themes, and
a story on flood awareness,
vii) Mapping and transfer of best practices:
iii) Slot during the highest viewership newsletter based on risk mapping of
programmes like films/popular TV wards, along with periodic feedback as
programmes, local cable networks, per the pre-determined format.
iv) Create a strong emotional flavour of i) Steps will be taken to evolve appropriate
local linkage in the documentary, and media campaign covering radio, visual
v) The theme will be based on the case and print media besides the production
study of a few bravery stories, related of printed materials like brochures,
to floods. pamphlets, posters, etc., and
ii) Media companies will also be motivated
Key considerations for an effective radio- to launch/expand awareness generation
based awareness campaign are: programmes as a part of their CSR.
i) The frequency of airing the warning will [Action: States/UTs and ULBs]
be half the number of news programmes
aired every day, 8.16 Linking Awareness to
ii) Design quiz questions related to flood Techno-Legal Regime
awareness,
8.16.1 Techno-legal regime has been discussed
iii) Arrange toll free numbers for facilitating in chapter 6. Generating awareness on the need
live participation/interaction by the for strengthening techno-legal network is very
target audience groups, and important and it should be given a high priority.
iv) Identify the standardised case study This is true at the household, community as well
templates for ease in capturing such as institutional level. At the institutional level,
real-life events. architects, town planning officers, RWAs should
be the special target groups. A clear provision
Other possible awareness options that are should be made for dumping of debris and solid
to be employed for effective local level urban waste as a part of development of new urban
flood risk awareness campaigns include: areas. They also identify with existing areas.
i) Electronic Display Boards, 8.17 Awareness on Insurance

ii) Skill-based competition programmes
8.17.1 Insurance and risk transfer has been
in schools/public gatherings/group
discussed in chapter 5. All sections of people,
discussions,
particularly the poorer sections and lower-
iii) Mock drills and simulation exercises,
middle classes, suffer from losses to property.
iv) Pamphlets, brochures and handouts, Appropriate insurance cover will help them to
v) Song and Drama division of Prasar recover, at least, part of the losses. Awareness
Bharati for street plays, etc., generation programme should include modules
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to educate people on the benefits of insurance 8.18.3 A lot has to be learnt from failure
coverage. This should be done with active investigation, it needs to be converted as an
cooperation from the insurance companies. opportunity to learn to ensure that such things
are not repeated in future.
Awareness generation campaigns should
be initiated by states/UTs, ULBs and other 8.18.4 Faithful and accurate documentation
stakeholders. State governments, local of all aspects of disaster events is essential
authorities and other stakeholders are to for creating good historical records that finally
communicate the benefits of insurance. This became the data source for future research and
should be done with active cooperation from mitigation planning. In the past, some good
the insurance companies. MoUD should efforts had been made by some of the scientific
departments like IMD and administrative
coordinate efforts for this.
departments in the centre and states as well
[Action: MoUD, States/UTs and ULBs] as individuals. Recently, some technical groups,
DM institutes as well as NGOs have also joined
8.18 Documentation hands in documenting the disaster events in the
“It hardly needs to be said that organizations country.
cannot learn from failures if people do not 8.18.5 Mostly, these are sectoral reports and
discuss and analyse them. Yet this remains an a comprehensive document taking all facts and
important insight. The learning that is potentially figures (scientific, technical, loss and damage and
available may not be realized unless thoughtful economical) into consideration are not available.
analysis and discussion of failure occurs” Sometimes data presented on an individual item
Amy Edmondson and Mark D. Cannon, widely differs from report to report. To reduce/
Harvard Business School Paper, The Hard minimize such deficiencies, following remedial
Work of Failure Analysis, August 22, 2005 measures are recommended:
i) Post-event survey will be carried out
8.18.1 Every disaster event throws up
by a “Pre-designated team” including
some “success” stories. Then there are some
experts and officials from concerned
instances of “consequences of inaction”. There
scientific, technical, administrative
are also some glaring “failure” stories.
departments and NGOs immediately
8.18.2 While most of the time the “success” after it occurs.
stories get well documented, “consequences
ii) Formats of data collection will be pre-
of inaction” and “failure” stories tend to be
designed for every department /group,
ignored or even covered up. “Success” stories
so that error is minimal.
can serve as an inspiration and must be used
in awareness generation campaigns. But the iii) A comprehensive document
importance of the other two categories will not will be prepared involving all the
be undermined. stakeholders.
110
i) Documentation shall cover all aspects the year 2080 if policy changes are not made and
of early warning, communication, implemented and mitigation measures taken to
design and maintenance, successful reduce the risk.
actions/ failures and the results thereof, Brazil
covering search and rescue, evacuation,
Torrential rains hitting Rio de Janeiro
management of flood shelters, food
in 2010, resulted in the worst floods in last
and water supply, restoration of
40 years. Flooding and mudslides killed more
essential services, public health issues,
than 153 people. Flooding was so severe that
management of traffic and all other
about 1.5 million people i.e. one-fourth of the
activities, and
population had been affected, and nearly 79,000
ii) NIDM/ATIs will prepare a standard residents had been left homeless.
format for all classes of cities/ towns.
Argentina
[Action: NIDM, States/UTs and ATIs]
Argentina is having highest
8.19 International Experiences concentrations of urban population with
approximately 90% of people residing in urban
United Kingdom areas, which very often witness flooding with
According to Sir Michael Pitt, who serious consequences. In recent decades,
undertook a comprehensive review - the UK Buenos Aires has experienced frequent flooding,
Floods Review, 2008, the floods that struck resulting in serious problems and considerable
much of the country during June and July material damage due to constant, unplanned
2007 were extreme affecting hundreds of growth of the city, the lack of investments and
thousands of people. The rainfall during June the change in the precipitation pattern.
and July that year was unprecedented. It was Tanzania
the wettest May to July period since records
Climate change is making the weather
began in 1766. The total cumulative rainfall
less predictable, rains more uncertain and heavy
in those three months averaged 395.1 mm
storm rainfall more likely. The unpredictability
across England, which was over double the
of rainfall is evident from large fluctuations
usual levels. The annual average rainfall in that
in the levels of Lake Victoria in Africa since
year was 934.5 mm as against the normal of
1980 and by the experience of long-term urban
838 mm. It is estimated that annual losses are
slum residents who report more frequent
270 million pounds sterling in England and
storms, producing floods since 1990. Heavy
Wales with 80,000 homes at risk. Its impacts
thunderstorms appear to have increased in
are expected to increase if policy changes
frequency.
are not made and implemented without any
delay. Nigeria
Urban flooding is also expected to Flooding has become more frequent,
happen more often in UK. It is projected that affecting residents of the low-lying coastal slum
the cost of urban flooding in U.K. could rise to settlements of Iwaya/ Makoko in Lagos, Nigeria.
between 1-10 billion pounds sterling annually by Homes were built on stilts above swamps that
111
are natural floodplains but increasing peak Unplanned and uncontrolled expansion of the
flows, combined with higher spring tides, are city stretching rapidly towards the low-lying
affecting more homes more than before. areas and floodplains adjacent to the flood
protection embankment and rivers are also
Asian Experiences increasing the vulnerability.
Dhaka Bangkok
Dhaka, the capital city of Bangladesh The Bangkok Metropolitan Area

covers an area of 275 sq km and has population covers an area of 7,761.50 sq km and has an
of more than 7 million with a population density approximate population of 11,971,000, with a
of 23029 per sq km. The city is situated on the population density of 1,301.42 per sq km. The
banks of the river Buriganga and surrounded by elevation of the city is 0-2.5 m above the mean
the distributaries of the two major rivers, the sea level. It is situated in Chao Phraya River
Brahmaputra and the Meghna. The elevation of Basin. In view of this, the metropolitan authority
the city is 2 to 13 meters above the mean sea initiated efforts to mitigate flood damage in the
level. river basin through the construction of dams,
reservoirs, dykes and pump stations.
Dhaka city has been experiencing
A disastrous flood occurred in 1995
floods on a regular basis and sometimes even
which resulted in extensive damage to properties
moderate rainfall overwhelms the drainage
and loss of human lives. The economic
system of the city. In September 1996, Dhaka
losses were calculated as Baht 72 billion
experienced local heavy rainfall resulting in
(approximately, US$ 2.34 billion). Again, a
severe waterlogging. A flood modeling study
much worse monsoon flood was experienced
was initiated with a combined approach of
in 2006. High tides have also contributed to its
physically based modeling and GIS for simulating
severity.
the free-surface flow over the streets and the
sewer pipe system for a detailed representation The Bangkok Metropolitan Authority
of the real-life situation. Surface Water Modeling has carried out a model study in 2002 on a pilot
Centre, Dhaka carried out another study in 1997, basis covering approximately 25 sq km. The
for modelling on Stormwater Drainage in the City modelling simulates the flow in the sewer, the
as an extension and improvement of pilot study drainage system and the surface flow to manage
in terms of updating and analysing drainage and mitigate flooding and associated damage.
system. Hong Kong
Dhaka also experienced heavy flooding Hong Kong city covers an area of 1104
in 1998 because of heavy local rainfall. The sq km and has an approximate population of
impact of flood was so severe that it damaged 6,708,389 with a population density of 6076.4
more than 262,000 shelter units and the loss per sq km. The city is situated near to the mouth
was Tk. 2,311 (approximately, USD 33.23 of the Pearl River estuary. The city is surrounded
million). The causes are hydraulic leakage, failure by the South China Sea on three sides and
to operate the regulators, and lack of timely borders the Guangdong city to Shenzhen to the
pumping of accumulated water upstream. north over the Shenzhen River.
112
Vulnerable to ‘typhoons’ (cyclones), has population of 1,809,699 with a population

Hong Kong city is often flooded with relatively density of 7,388 per sq km. The city is situated in
high rainfall. The city experienced highest a huge valley known as Klang Valley and located
rainfall in 124 years recorded as 145.5 mm at the confluence of the Klang and Gombak
in 1hour on June 7, 2008. The old drainage rivers. The elevation is 21.95 m above the mean-
system for protection of flood management is sea level.
becoming inadequate due to aging of the system
The major flash floods disaster in 1971
and expansion of the built-up area. The city
was a result of heavy monsoon rains. A total
administration has adopted flood prevention and
of 32 people were killed and 180,000 people
management strategies by upgrading of existing
were affected. The flood was the worst in
system, flood storage, pumping and tunneling.
the country since 1926. As a result of the
Jakarta flooding, total loss was more than RM 200
million (approximately, USD 64.63 million). They
Jakarta, the capital city of Indonesia,
took up a flood modelling study in 2007 for
covers an area of 661 sq km and has population
simulating the system of hydrodynamics. The
of 8,792,000 with a population density of
model simulates the flow in the Klang River and
12,957.31 per sq km. Jakarta is a coastal city
tributaries and the overtopping of flow onto the
situated at the mouth of the Ciliwung River.
streets of Kuala Lumpur.
The river divides the city into the western and
eastern principalities. The city lies on a low, flat Seoul
basin, averaging 7 meters above sea level and
Seoul, the capital city of South Korea,
northern areas of the city is below sea level.
covers an area of 605.52 sq km and has
Jakarta experienced serious flooding population of 10,321,449 with a population
in 1996 and 2002 which resulted in the death of density of 17,046 per sq km. Seoul is surrounded
10 and 25 people respectively. The 2007 Jakarta by eight mountains as well as a very important
flood is considered to be the worst ever incident river named as Hangang River.
of flooding. About 80 people were killed and Widespread flooding in Seoul in 1998,
over 70,000 homes were affected, resulting caused by torrential rain was the worst flooding
in the displacement of 200,000 people. About in 80 years. A storm deluged the metropolitan
190,000 people had fallen ill due to flood-related area of Seoul with 620 mm of rain, making
illnesses. The 2007 flood occurred due to heavy it one of the heaviest downpours on record.
rainfall in upstream area. The resulting floods and mudslides killed 131
Subsequent to the 2007 floods, a FHM people, left 61 missing and caused damage
framework was carried out. The framework estimated at US$ 323 million. The administration
consists of 3 modules i.e., rainfall-runoff, initiated the study to control the runoff through
the Rainfall-Storage-Drain models. The model
hydraulics and inundation calculation.
is developed for the design of rainwater tanks
Kuala Lumpur for flood control. The design was made to study
Kuala Lumpur, the capital city of the distribution and runoff analysis on rooftops
Malaysia, covers an area of 244 sq km and for analysis of the rainfall process.
113
8.20 Indian Experiences Mumbai

8.20.1 Most cities in India that get flooded Mumbai experiences severe flooding
have experienced loss of lives and damage of every year that causes serious disruption to the
property, disruptions of power, transport and activities in the city. This may be attributed to
communications and incidences of epidemics Mumbai’s topography which has been formed
during the monsoons. Most notable amongst with a merger of seven islands with the main
them are Mumbai in 2005, Surat in 2006, Kolkata island of Salsette, together forming the area
in 2007, Jamshedpur in 2008, Delhi in 2009, under the MCGM and the fact that Mumbai
Delhi and Ahmedabad in 2010. Most of these receives an average annual rainfall of 2401 mm,
cities are major economic centres with a large all of which comes during the monsoon months
number of international business operations, from June to September.
which were severely affected when they got The city has an area of about 437 km
flooded. The annual losses from urban flooding with a population of 17.7 million (2001). On 26th
are now much greater than the annual economic July 2005, Mumbai came to a complete halt
losses due to other disasters. due to the unprecedented rainfall of 944 mm
Significant Urban flooding events in India in 24 hours, starting 0830 on 26 July 2005 with
since 2000 875 mm occurring in the 12 hours from 1430
to 0230, which resulted in colossal damage
2000 – Mumbai, Chennai, Bangalore,
to the city with loss of at least 479 lives. The
Kolkata, Hyderabad
century old drainage network of Mumbai had
2001 – Ahmedabad, Bhubaneswar, Thane, been designed to carry only 25 mm of rainwater
Mumbai per hour while the drainage in the suburbs is
mostly through the open stormwater drains.
2002 – Delhi
With drains clogged at several places, it proved
2003 – Delhi, Ahmedabad, Vadodara totally inadequate for the 944 mm rain which
2004 – Chennai lashed Mumbai that day.
2005 – About 10 cities; Mumbai was the Following this, the Chitale Committee
worst affected. was set up to review the reasons for the
2006 – Number of affected cities rose to flooding and make recommendations. The
22. Surat was the worst affected. overflow of Mithi River and obstructions in its
Vishakhapattanam airport was floodplains were identified as the major man-
inundated for more than 10 days. made cause for the flooding. Presently, the
Brihanmumbai Stormwater Drainage Project
2007 – Number of affected cities rose to 35.
is being redesigned for 50 mm/h rainfall and is
Kolkata was the worst affected.
expected to be completed by 2012. They now
2008 – Jamshedpur, Mumbai, Hyderabad
have a very good city DM Plan in place.
were worst affected.
2009 – Delhi, Mumbai A rapid flood risk assessment (FRA)
2010 – Delhi, Guwahati, Ahmedabad, Leh, for Mumbai - “Rapid Assessment Flood
Mumbai Inundation Mapping” is being carried out by the
114
Indian Institute of Technology (IIT), Bombay in in June to September. It is administered by

association with MCGM. the Municipal Corporation of Delhi and the
New Delhi Municipal Council (NDMC). Delhi
Surat
experienced its worst flood in 1978 when
Surat is located on the banks of the water level reached at 207.49 m (danger level
River Tapi, and faced its worst flooding in 2006, in Yamuna river is 204.83 m) with discharge of
due to heavy rainfall and sudden release of water 2.53 lakh cusec at old railway bridge (7.0 lakh
from the Ukai Dam. The city area is 112 sq km cusec was released from Tajewala upstream).
with a population of 6.5 lakhs (2001). Surat is It had also suffered floods in 1924, 1947, 1967,
the centre of diamond processing in India. The 1971, 1975, 1976, 1988, 1993, 1995, 1998 in the
average annual rainfall in Surat city is 1894 mm. past.
Under the JNNURM, various strategies such as
In 2009, the Lodi Road Observatory
drainage rehabilitation, construction of roadside
recorded a rainfall of 137 mm in 24 hr by 8.30 am
drains, rapid implementation of flood protection
on 27 July 2009. It resulted in severe flooding.
scheme and desilting of the River Tapi and
More than half of this rain was realized in two
open roadside drains have been formulated for
hours - from 2000 to 2200 hours in the previous
improving the drainage system of the city by
evening.
2012. They also now have a very good city DM
Plan in place. During the month of September 2010,
Delhi had already experienced three major
Ahmedabad
spells of flood till 21st September in the river
Ahmedabad city covers an area of 190 Yamuna, which inundated many areas of Delhi
sq km with a population is 4.5 million (2001). and this is unprecedented in recent times. By
The city is located on the banks of the River 21st September, Delhi had recorded seasonal
Sabarmati and the average annual rainfall in rainfall of 974.2 mm, already exceeding the
Ahmedabad is 782 mm. However, rainfall of 508 previous record of 965.7 mm received during
mm in 13 hrs flooded all the low-lying areas of entire monsoon season of 1978. In addition to
the city in 2001. Besides torrential rain, release the local rainfall, the upper catchment of the
of water from Dharoi dam located upstream Yamuna basin also received very heavy rainfall
on the River Sabarmati in 2005, caused severe and this resulted in repeated flowing of large
disruption to the city. The drainage system of quantities of water from Hathinikund Barrage.
the city was designed in the past for a rainfall
intensity of about 12.5 mm per hour.
Kolkata
Kolkata is the capital city of West
Delhi
Bengal. It is located on the banks of the River
Delhi is the capital of India with an Hooghly. The Kolkatta Metropolitan Authority
area of 1483 sq km and the population of Delhi (KMDA) area is 1851 sq km with a population
(including New Delhi) is 13.8 million (2001 of 14.72 million (2001 census) out of which
census). It is located on the banks of the River 271 sq km is administered by the three
Yamuna and the average annual rainfall is 711 municipal corporations of Kolkata, Howrah
mm, most of which falls during the monsoon and Chandannagore. The average rainfall of
115
the city is 1640 mm. The city received a record and 450 mm during October to December).
rainfall of 369.6 mm on 28th September 1978 Major flooding events in Chennai City have been
in association with a deep depression. During recorded during 1943, 1976, 1985, 1996 and
27th to 29th September 1978, Kolkata received 2005. The 2005 flood on October 26-27 occurred
about 720 mm of rain causing total deluge in the when Chennai received almost 400 mm rainfall
city for several days. This still remains a record and 50,000 people had to be evacuated.
for the city. An Early Warning System for Urban
Kolkata faced severe flooding from Flood Management is being developed for
3-5 July 2007. The city received more than 300 Chennai by Centre for Remote Sensing, Anna
mm of rain in first two days, which increased University in association with the Government
to 410 mm by third day. This was caused by of Tamil Nadu
a depression in the sea, 150 km south-east of Hyderabad
Kolkata. Flooding was aggravated due to tidal
Hyderabad is the capital of Andhra
surges, which occurred during the full moon.
Pradesh and is located on the banks of the
Guwahati Musi River in the Krishna Basin. The city also
has the Hussain Sagar Lake in the centre of
Guwahati is the capital of Assam and
the city. The GHMC covers an area of 778 sq
is located on the banks of the Brahmaputra.
km with a population of 5.7 million as per 2001
Guwahati Metropolitan area covers 240 sq km
census. The average annual rainfall is 805 mm of
with a population of 0.9 million (2001 census).
which an average of 613 mm occurs during the
The average annual rainfall in the city is 1716
southwest monsoon during June to September.
mm and about 624 mm falls during July and
Analysis of recent rainfall data has indicated
August. Guwahati faced severe flooding in June
that the average annual rainfall has increased
2010 due to the runoff from the surrounding hills from 806 mm in 1988 to 840 mm in 2002. The
flowing through the recently urbanised parts of city drainage system was designed previously
the city. for a rainfall intensity of 12mm/ hr. Instances of
Chennai urban flooding in Hyderabad were experienced
in the years of 1908, 1930, 1954, 1962, 1970 and
Chennai, the capital of Tamil Nadu, is
2000.
a coastal city and has two rivers - Cooum and
Adyar passing through the city limits. There are In 1908 there was a severe flood in
5 other waterways including the Buckhingam Musi River with 12304 cusecs causing havoc in
Canal, which also drain the city. Chennai Hyderabad. There was a rainfall of 325 mm in a
Metropolitan Area (CMA) covers 1189 sq km duration of 24 hours. In August 2000, Hyderabad
received 240 mm of rainfall in a 24 hr period
with a population of 7.5 million while Chennai
which resulted in very severe flooding. A study
City covers an area of 176 sq km. Tamil Nadu
was commissioned to make recommendations
state is different from rest of India in the sense
for the improvement of stormwater drainage
that it receives rainfall from both south-west and
system.
north-east monsoons during June to December
and the average annual rainfall in Chennai is A pilot project on Urban Flood Impact
1200 mm (750 mm during June to September Assessment for Hyderabad is being taken
116
up by the Government of Andhra Pradesh in huge overland flows drained the agriculture
association with NDMA and GHMC. lands, streams, rivulets and the major river
courses and none of the dams like Almatti,
2009 Krishna River Flood in Andhra
Narayanapur, Thungabhadra could contain the
Pradesh
huge volume. This compounded the impact in
The 2009 Krishna River Floods in Andhra Pradesh. Bijapur, Gulbarga and Raichur
Andhra Pradesh were, perhaps, the worst ever towns in Karnataka were the worst affected.
experienced. Apart from extensive flooding in
There are three structures on Krishna
rural areas, urban centres like Mahabubnagar,
River namely Srisailam Dam, Nagarjuna Sagar
Kurnool and Nandyal were very badly affected,
Dam and Prakasam Barrage. Peak inflows to
besides, Vijayawada and Repalle towns were
Srisailam Dam started from 30 September 2009.
under grave threat. It was an instance of
The inflow touched 25.40 Lakh Cusecs on 2
different scenarios of urban flooding caused
October 2009 and continued at same level for
by a combination of high intensity local rainfall,
more than 10 hours. It was designed for 13.60
flooding of rivers, effects of backwater and
Lakh Cusecs while the Probable Maximum Flood
release of water from dams located downstream
(PMF) for Srisailam reservoir is 26 lakh cusecs.
and upstream of cities/towns.
Thus the inflow received on 2 October 2009
Mahabubnagar and Kurnool districts, night almost touched this figure (which may
which are part of Krishna River Catchment happen once in 10,000 years).
upstream of Srisailam dam, received very
It crossed the Full Reservoir Level (FRL)
heavy rainfall between 29 September and 3
of 885.00 feet at 5.00 pm on 2 October, the
October 2009, ranging from 100 mm to 580
Maximum Water Level (MWL) of 892.00 feet at
mm in Mahabubnagar district and 60 mm to 530
3.00 AM on 3 October and touched the peak
mm in Kurnool district. 34 out of 64 Mandals
level of 896.50 feet at 11.00 AM on 3 October,
in Mahabubnagar District and 19 out of 54
which continued till 6.00 AM on 4 October.
Mandals in Kurnool District received total rainfall
of 300 mm and more during this period (annual The unprecedented flood in Kurnool
average rainfall in Mahabubnagar and Kurnool town was experienced due to local rainfall, floods
are 850 mm and 630 mm respectively). All this in Tungabhadra and Hundri River (tributaries of
contributed to the inflows in a very significant Krishna River) besides the backwaters from
manner. Srisailam Dam. Silt was found deposited even
on the third floor of buildings in some parts
This was compounded by rainfall
of the town. Nandyal town in Kurnool district
ranging from 200 mm to 403 mm in the
got affected due to high intensity local rainfall,
northern reaches of Karnataka forming the
release of water from Srisailam Dam and flood in
upper catchment of Krishna and Thungabhadra
Kundu River. Mahabubnagar town was affected
Rivers, exceeded the normal rainfall by 400%
due to high intensity local rainfall. Besides
to 924%. The weighted average rainfall of 270
these, floods in downstream of Nagarjuna Sagar
mm over an area of 82,000 sq km has generated
Reservoir and Prakasam Barrage affected the
over land flows approximately 10 times the
towns of Vijayawada, Repalle and others on
discharges released from the reservoirs. The
117
the banks of Krishna River. It was also observed the death of at least 172 people, with thousands
that the discharge of water from the reservoirs injured and about 500 reported missing.
was impeded by the high tide, which further Thousands were rendered homeless, with many
complicated the situation. of them losing everything under a devastating
wave of mud. The village of Choglamsar on
There were serious apprehensions of
the outskirts of the city was particularly badly
dam burst and damage to all these structures
hit. Many buildings were destroyed, including
but the crisis was extremely well managed by
hospitals, bus terminals, radio station transmitter,
the state government and release of water was
telephone exchange and mobile-phone towers.
very carefully regulated. With the availability
The local bus station was damaged and some
of inundation maps using GIS technologies
of the buses were carried more than a mile by
provided by Andhra Pradesh State Remote
the mud. The city’s airport was also damaged
Sensing Application Centre, about 5.33 lakhs
but it was repaired soon and relief flights were
people were evacuated to safer places from
restored the following day. It was estimated
both urban and rural areas. Consequently, the
that about 80% of Ladakh’s infrastructure was
death toll was comparatively low at 90.
partially damaged or totally destroyed.
Leh
Satellite images indicated that intense
Leh is a category III city in Jammu and convective systems had developed and the
Kashmir with a population of 28,639. The city cloudburst was highly localised. Although
is a cold desert with the average rainfall for the there was no rainfall record at Choglamsar, the
month of August being 15.4 mm only while the nearby IAF observatory recorded only 12.8 mm
average annual rainfall is 102 mm. Leh is the rainfall. In the past there have been instances
largest town in Ladakh region and it is located of cloudburst resulting in an extremely heavy
on the Ladakh plateau at a height of about 3,500 rainfall of 205.74 mm in 20 minutes in Romania
on above mean sea level. Leh town is 434 km in July 1947 and 38.1 mm in one minute in
from Srinagar and 474 km from Manali. The total Himachal Pradesh, India in November 1970.
population of Leh district is 1.17 lakh. Looking at the damage caused in Leh, it would
A cloudburst occurred around 0130- have been, undoubtedly, a cloudburst resulting
0200 IST on 6th August 2010. This led to a flash in a very high intensity rainfall.
flood and mudslide over the region, resulting in
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9 Implementation of the Guidelines:
Preparation of DM Plans
9.1 Overview by all stakeholders. Implementation of the

Guidelines will begin with formulating a DM plan
9.1.1 The urban flooding DM approach aims at and an enabling phase to build the necessary
institutionalising the implementation of initiatives capacity, taking into consideration the existing
and activities, covering all components of the elements such as legislations, emergency plans,
DM cycle, including prevention, preparedness, stakeholder initiatives, gaps, priorities, needs
mitigation, relief, rehabilitation and recovery, and the context. To start with, the existing DM
with a view to developing communities that plans at various levels, wherever existing, will
are well-informed, resilient and prepared to be revamped/ refined further to address both
face emergencies with minimal loss of life and immediate and long-term needs.
property. Therefore, it will be the endeavour of
the Central and State governments and the ULBs 9.2 Mainstreaming DM into
to ensure implementation of these Guidelines.
Development
9.1.2 Fo r e f f i c i e n t a n d c o o r d i n a t e d
9.2.1 NDMA will ensure mainstreaming of
management of urban flooding, it is vital to
disaster risk reduction in developmental agenda.
evolve appropriate DM plans at the national,
All existing and new developmental programmes
state and ULB levels. It is equally important
and projects shall incorporate disaster resilient
to identify various stakeholders/ agencies,
specifications in design and construction. The
along with their responsibilities, institutionalise
Planning Commission will give due weightage
programmes and activities at the ministry/
to these factors while allocating resources.
department levels, increase inter-ministerial
and inter-agency coordination and networking, NDMA’s initiatives on Mainstreaming DRR
as well as rationalise and augment the existing NDMA in cooperation with the Planning
regulatory framework and infrastructure. Commission and the Ministry of Finance (MoF)
9.1.3 The preparation and planning for has set up appropriate mechanisms to ensure
responding to urban flooding emergency is to that all new projects involving infrastructure
be structured into a coherent and interlocking development and related construction adhere
system. In order to optimise the use of resources to disaster-resilient technology and safe siting.
and their effective response, the emergency The revised project information formats of
response action plan will include well-coordinated the Expenditure Finance Committee (EFC)
and consolidated responsibilities, shared jointly and Detailed Project Report (DPR) address
119
these concerns. Instructions in this regard all stakeholders and in conjunction with the
have already been issued to all the Central CDMPs. The ULBs generally do not have the
Ministries by the MoF in June 2009. The necessary technical capability and resources
process of self-certification is to be followed and therefore special efforts are necessary
with a view to ensure that there is no delay for strengthening them. The role of the nodal
in project implementation. The design of all ministry becomes very important in providing/
new and ongoing projects/programmes will facilitating such efforts, by providing a
thus be addressed from the point of view of technical umbrella and also structure such
DM concerns, while existing infrastructure efforts as a part of various national missions/
will be selectively reviewed for appropriate initiatives.
mitigation measures. Besides this, NDMA 9.3.3 The Guidelines provide for strengthening
has also requested the State Governments urban flooding DM in the country on a sustainable
to implement similar procedures of DM basis. These guidelines have set modest goals
audit for projects/programmes under their and objectives, to be achieved by mobilising
purview. all stakeholders through an inclusive and
participative approach. Appropriate allocation
9.3 Role of Nodal Ministry of financial and other resources, including
dedicated manpower and targeted capacity
9.3.1 The nodal ministry will evolve its DM
development, would be the key to the success
plans for holistic and coordinated management
of implementing the Guidelines.
of urban flood emergency. To sustain an
integrated approach to urban flood DM,
9.4 Implementing the Guidelines
the Central Government needs to make
arrangements for implementing the National 9.4.1 Implementing the Guidelines at the
Plan on an inter-ministerial or inter-institutional national level would begin with preparing the
basis so that the interests of the concerned National Plan. The plan will spell out detailed
ministries, States/UTs and all stakeholders are work areas, activities and agencies responsible,
taken care of. The agenda of these Guidelines and indicate targets and time-frames. The plan
will also be implemented by the governments thus prepared will also specify indicators of
of various States and UTs through the ULBs. progress to enable their monitoring and review.
The experience gained in the initial phase The National Plan will be prepared by NEC,
based on the Guidelines, and implemented with
of the implementation is of immense value,
the approval of NDMA.
to be utilised not only to make mid-course
corrections, but also to make long-term policies 9.4.2 The Ministries/Agencies
and guidelines after a comprehensive review of concerned, in turn, will:
the effectiveness of DM plans, undertaken in the i) Provide guidance on the implementation
short-term. of the plans to all stakeholders,
9.3.2 All States and UTs coordinate efforts ii) Obtain periodic reports from the
by the ULBs to develop their DM plans through stakeholders on the progress of the
an extensive consultative approach, covering implementation of DM plans,
120
Implementation of the Guidelines: Preparation of DM Plans
iii) Evaluate the progress of the 9.5.2 Separate groups of individuals or

implementation of plans against agencies will undertake each of the above-
the time-frames and take corrective mentioned four sets of activities. Some
measures, wherever needed, individuals may be common to the first three
groups. However, the fourth group, involved
iv) Disseminate the status of progress
in evaluating the outcome of planning,
and issue further guidance on
executing and monitoring, needs to consist
the implementation of plans to
of specialists who are not directly involved
stakeholders, and
in any of first three groups. This will help
v) Report the progress of the in getting an objective feedback on the
implementation of National Plan to effectiveness of the implementation of these
NDMA/ NEC. Guidelines. The availability of professional
9.4.3 MoUD will keep NDMA/NEC apprised expertise is, therefore, crucial for monitoring
of the progress of the implementation of their and successfully implementing the Urban
plans, related to improvement of the urban flood Flood DM plan and it will be built up at all
warning system on a regular basis. levels.
9.4.4 SDMAs/ SECs will develop state/UT- 9.5.3 The Urban Flood DM framework
level DM plans on the basis of these Guidelines. also imposes additional responsibility on
SDMAs will approve these and keep NDMA professionals to improve their skills and
informed. The state departments/authorities expertise, corresponding to best practices
concerned will implement and review the the world over and to contribute to capacity
execution of DM plans at the district and local development, as well as cooperate with and
levels along the above lines. form partnership with other stakeholders.
Synergy among their activities can be achieved
9.5 Implementation and by developing detailed documents on how to
Coordination at the National implement each of the activities, envisaged in
these Guidelines.
Level
9.5.4 Procedures need to be developed
9.5.1 Planning, implementing, monitoring to elaborate the monitoring mechanism to
and evaluating are four facets of the be employed for undertaking transparent,
comprehensive implementation of DM plans. objective and independent review of activities
NEC or the concerned ministries/ departments outlined in these Guidelines. This process
will identify appropriate agencies, institutions can be smooth and successful if a single
and specialists with expertise in relevant window system is adopted for the conduct
fields, and involve them in various activities and documentation of each of the above four
to help implement Urban Flood DM plans, phases. Each of the stakeholder ministries,
in accordance with the spirit of the National departments, government agencies and
Guidelines, and keep NDMA periodically organisations will designate a nodal officer
posted. to facilitate this.
121
9.6 Institutional Mechanisms of all DM related activities at the ULB level.

and Coordination at State Besides, the state departments will designate
a nodal officer not below the rank of a joint
and ULB Levels secretary to coordinate all DM related work of
9.6.1 On the lines of the measures indicated the ULBs.
at the national level, SDMAs and DDMAs will
also identify appropriate agencies, institutions 9.7 Financial Arrangements for
and specialists with experience in relevant Implementation
fields and involve them in various activities to
9.7.1 For too long, DM in India was
help implement the UFDM plans. Likewise,
marginalised as an issue of providing relief and
measures indicated at the national level, such
rehabilitation to the people affected by natural
as designating a nodal officer in each line
calamities. The new vision of GoI is a paradigm
department, will achieve similar objectives.
shift in the approach to DM – from the erstwhile
9.6.2 The State will also allocate and relief-and-response-centric approach to a
provide the necessary finances for the efficient holistic and integrated approach –– which will
implementation of these plans. Similarly, district also be a pro-active prevention, mitigation and
and ULB level plans will be developed and the preparedness driven approach. These efforts
need to follow a professional approach will be will conserve developmental gains, besides
reinforced. SDMAs will work out, along with minimising loss to lives, livelihood and property.
various stakeholders, suitable mechanisms This should, therefore, be the underlying
for the active involvement of associations of principle for the allocation of adequate funds
professional experts for planning, implementing at all levels for prevention, mitigation and
and monitoring DM initiatives. These activities preparedness, along with strengthening the
are to be taken up in a project mode, with relief and rehabilitation machinery.
a specifically earmarked budget (both plan 9.7.2. The return on investment on mitigation
and non-plan) with each activity and to be measures is very high. According to WMO, US
implemented in a fixed time-frame. $1 invested in disaster mitigation can prevent
about US $7-worth of disaster related economic
9.6.3 The approach followed will emphasise
losses. It is also usually said that ‘you pay
comprehensive urban flooding safety and risk-
something for doing’ and ‘pay much more for
reduction measures, including technical and
not doing’. Thus, financial strategies will be
non-technical preparedness measures. It will be
worked out in such a way that necessary funds
environment and technology-friendly, sensitive
are in place and their flow for implementing the
to the special requirements of vulnerable groups UFDM plan is organised on a priority basis.
and address all stakeholders involved in Urban
Flood DM. This will be achieved through strict 9.7.3 The sources of funding for all UFDM
compliance with existing and new policies. plan related activities will be as follows:
(i) Annual Plan/Budget: for mainstreaming
9.6.4 As brought out in section 5.17 of this
UFDM plans into developmental plans
document, there is a need to define the role of
of respective ministries/ departments
DM cell in ULBs putting them at the centre-stage
122
Implementation of the Guidelines: Preparation of DM Plans
at the Centre and State governments/ of the implementation model will include
UTs and ULBs, the short-term covering 0–2 years in Phase
I; the medium-term covering 2–5 years in
(ii) Centrally Sponsored/Central Sector
Phase II; and the long-term covering 5–8
Schemes,
years in Phase III. The DM plan will indicate
(iii) National Mitigation Projects by NDMA detailed work areas and activities/targets with
and other specific projects either suggested time-frames and suitable indicators
by the Central Government or State of progress along with the authorities/
Governments, funded internally/ stakeholders responsible for implementing
externally, and the Guidelines. Different milestones and
(iv) Public-Private Partnership. appropriate monitoring mechanisms will also
be indicated.
9.7.4 The approval and disbursement of
funds from multilateral agencies and other 9.8.2 The activities in Phase I will pose
financial institutions to such developmental very serious challenges as they will lay the
initiatives will be linked to their compliance with foundation for urban flood risk minimisation. In
these norms in accordance with the techno- subsequent phases, the activities will be further
legal regime. The Department of Economic intensified and special efforts will be made to
Affairs, Ministry of Finance, GoI, will ensure consolidate the lessons of Phase I in mobilising
this. Similarly, states will also link approval and more effective participation of stakeholders for
disbursement of funds, to compliance with achieving urban flood risk reduction.
norms. Interfacing of the techno-legal regime 9.8.3 Major action points are listed in Chapter
and financial measures that will contribute 10 along with references to the sections under
immensely to disaster risk reduction. which they have been discussed. Implementing
agencies and time-frames of implementation
9.8 Implementation Model have been indicated. They will be taken into
9.8.1 These Guidelines will come into consideration while preparing and executing
force with immediate effect. The phasing DM plans on a priority basis.
123
10 Summary of Action Points
Increasing trend of flooding in urban Coming to the preparation of the plans,

areas is a universal phenomenon and poses a it is advisable to adopt an ‘all hazards’ approach
great challenge to urban planners the world over. in handling urban flooding emergencies to
Even in India we have witnessed a similar trend. optimise the use of resources. To facilitate easy
Problems associated with urban floods range reference to the stakeholders, some of the
from relatively local incidents to major incidents major recommendations are consolidated in
covering large areas resulting in inundation from this chapter. However, all the recommendations
a few hours to several days. made in other chapters of the guidelines will be
It can result in damage to property, complied with, by the concerned authorities.
relocation of people and loss of life. It can Chapter 3 Early Warning System and
damage civil amenities and public and private Communication
property. It can also cause disruptions in
1. National Hydro-meteorological
transport and power supply bringing life to a
Network
grinding halt. All this leads to untold miseries
and hardships. It also results in deterioration CWC should maximize the real-time
of water quality and secondary effects of hydro-meteorological network to cover all
possible epidemics and exposure to infection the urban centers in support of the emerging
takes further toll in terms of loss of livelihood, priorities in dealing with urban flooding. The
human suffering, and in extreme cases, also requirement will be assessed taking into
loss of life. consideration all cities/ towns which are
particularly located on river banks, upstream
Realizing that the causes of urban
and downstream of major and medium dams
flooding are different and so also are the
and island cities. Based on that assessment,
strategies to deal with them, NDMA has for the
CWC will initiate the process to prepare a plan
first time decided to address urban flooding as
and implementation strategy to seek the support
a separate disaster, delinking it from floods. The
of the government for commissioning such
process of evolving the National Guidelines for
hydrological networks during the XII 5-year plan
Management of Urban Flooding has been very
on priority (refer section 3.3).
challenging since this is the first ever document
being put together on this subject in India, [Action: CWC, MoUD and States/UTs]
looking at urban flooding in a holistic manner.
124
Summary of Action Points
2. Local Networks for Real-Time in the country, on priority basis to cover

Rainfall Data all urban centres with specified time-
lines, and
i) IMD will set up a ‘Local Network Cell’
in the IMD headquarters, v) An appropriate redundancy plan for
radar coverage of local systems with
ii) Local Networks with ARGs will be
shorter radial coverage (30-50Km),
installed in all 2325 Class I, II and III
using either ‘C’ or ‘S’ band radars
cities and towns with a density of 1 per
will be worked out by a national level
4 sq km. Class I cities will be covered
Standing Advisory Committee to
by the end of 2012 and the rest by the
guide suitable urban flood monitoring
end of 2015,
mechanisms (refer section 3.7).
iii) The density will be further increased to
[Action: IMD and MoUD]
1 per sq km, based on the experience
gained in urban flood management, 4. Data Integration and Sharing
iv) The sampling of rainfall should be It is essential to design and strengthen
uniformly fixed between 5 to 15-minute local hydro-meteorological data networks to
interval depending upon topography to cater for the needs of urban flooding holistically.
capture the high intensity rainfall data Coordination mechanism will be established
which is crucial for early warning, better among all agencies for deriving maximum
response actions, future drainage benefit from the efforts of each individual
design, and organization (refer section 3.8).
v) EOCs will be set-up by the ULBs and [Action: IMD, CWC, MoUD, States/UTs, and
connected to the ARG network (refer ULBs]
section 3.6). 5. Building as underlying sensor web
[Action: MoUD, States/UTs, IMD, flow
CWC and ULBs] A dedicated high bandwidth
3. Doppler Weather Radars communication channel is to be built, for
ensuring smooth underlying sensor web flow
i) DWRs will be calibrated with real-time
of all available information and products (refer
rainfall data from the local networks,
section 3.10.2).
ii) City/ town maps will be incorporated
[Action: DIT and SWAN]
on the DWR images,
6. Infrastructure and other Baseline
iii) Cities/ towns will be sub-divided on
Data
the basis of watersheds and a protocol
will be developed for forecasting i) Data models will be built for urban
rainfall for urban areas on the basis infrastructure, involving geospatial
of watershed, approach with due procedures for
data standardization, collation, quality
iv) IMD and MoUD will work out a
check and annual updation, and
strategic expansion of DWR network
125
ii) Institutional mechanism will be evolved A Standing Mechanism will be

to share data/information with the established for continuous guidance and support
institutions and other concerned to the State and Local level initiatives to build and
authorities at local level. Information establish an integrated town/city specific UFDM
should be shared with states and Framework. It will be driven by NDMA and MoUD
vulnerable cities under the overall with representatives from related Ministries/
architecture of NUIS (refer section
Departments /Agencies, States, and experts
3.11).
from IITs, other Institutes of national importance
[Action: MoUD, NRSC, SoI, and service/professional bodies, as a part of
SRSACs and ULBs]
this mechanism, to shoulder the responsibility
7. Operational Support for building an effective UFDM at the local scale
Responsibility for operation and with committed/continued technical support and
maintenance (O&M) of all equipment set up by operational infrastructure (refer section 3.18).
organisastions like the IMD/ CWC etc will remain with [Action: NDMA, MoUD IMD, CWC, SoI and
the respective organisations. Facilities, exclusively NRSC]
setup by the ULBs, will be operated and maintained
by them. It will be important to have a dedicated 11. Establishing Technical Umbrella
establishment at local levels for this purpose for Urban Flood Forecasting and
(refer section 3.13). Warning (At the State Level)
8. Measurement of Flood Levels State Nodal Departments will establish

a State Level Guidance, Monitoring and Approval
State-of-the-art automatic water level
Mechanism for UFDM for building Effective
recorders must be installed throughout the
Capacity Development/ Manpower Training/
drainage network of the watershed, which may
sometimes extend beyond the administrative Observational Network Design and Operational
boundary of the ULB (refer section 3.14). support. The ULB Scale Customization /
Operation/ Upgrade and Update activities of
UFDM will be shouldered by a Consortium
9. Decision Support System of Local Level Technical Institutions (NITs,
The ULB will be responsible for developing Engineering Colleges, etc.) for establishing
step by step procedures and actions to be taken GSM/WAN telemetry based ARG/AWS network;
under each flood management strategy. Once customization/testing/operation of urban flood
the flood has been characterized, the associated EWS; customization of all necessary spatial and
flood SOPs will be immediately initiated (refer non-spatial data for building DSS for UFDM.
section 3.15).
ULBs will extend all necessary
administrative/financial/logistical support for the
10. Establishing Technical Umbrella designated consortium of local level technical
for Urban Flood Forecasting and institutions to commission and operate the
Warning (At the National Level) UFDM systems with due technical support/
126
manpower development teams on sustainable and details of the cross-sections,

basis. ULBs need to organize an institutional slopes, drain crossings including natural
back up, through developing appropriate MoUs formations and man made structures
with those technical institutions identified for like bridge piers, transmission
this task (refer section 3.18). towers, service utilities and existing
[Action: MoUD, States/UTs, SRSACs and encroachments, etc. This should also
ULBs] take into account the sewer discharges
(refer section 4.5).
Chapter 4 Design and Management of
Urban Drainage System [Action: MoUD, States/UTs and ULBs]
1. National Status-Storm Drainage 3. Catchment as basis for Design

Design Manual Catchment will be the basis for planning
The comprehensive Urban Storm and designing the stormwater drainage systems
Drainage Design Manual will be released in all ULBs (refer section 4.7).
by 2012. This will take into account current [Action: MoUD, States/UTs and ULBs]
international practices, the specific locations
and rainfall pattern of the cities and future 4. Contour Data
needs. This will be updated/ revised as per Contour mapping of urban areas will
practice followed internationally (refer section be prepared at 0.2 to 0.5 m contour interval
4.3). for detailed delineation of the watershed/
[Action:MoUD] catchment for planning drainage systems (refer
section 4.8).
2. Stormwater Drainage System
Inventory [Action: MoUD, SoI, States/UTs and ULBs]
i) An inventory of the existing stormwater 5. Thunderstorm Rainfall Intensity
drainage system will be prepared on a
i) IDF curves will be developed for each
GIS platform,
city, based on extraction of data from
ii) The inventory will be both watershed the raw data charts at 15- minutes
based to enable proper hydrologic and resolution and from AWS at 5-minutes
hydraulic analysis and ward based to resolution, and
enable coordinated administrative
ii) IDF relationships will be adjusted, taking
management,
into account climate change impacts
iii) Minor systems should be mapped and urban heat island effects. At the very
clearly showing the interconnections least, a trend analysis of short duration
with the major system besides the rainfall intensities will be carried out
cross connections with sewer lines, and if an increasing trend in the recent
and years is shown, higher intensities than
those provided by IDF relationships
iv) Major systems with will be mapped
will be used for resizing existing
clearly with delineation, demarcation
127
systems and design of new systems, Municipal Ward Committee members

especially for critical infrastructure and Area Sabha members besides
like airports, major roads and railway third party certification. An appropriate
tracks (refer section 4.10.1). mechanism will be evolved to ensure
[Action: States/UTs and ULBs] this,
6. Runoff Coefficient for Long Term v) The Manual on Solid Waste brought out
Planning by the CPHEEO, MoUD, (2000) will be
followed in cleaning shallow surface
All future stormwater drainage systems
drains,
will be designed taking into consideration a
runoff coefficient of upto C = 0.95 for estimating vi) The amount of solid waste generated
peak discharge using the rational method, taking varies from catchment to catchment
into consideration the approved land-use pattern and depends on the type of locality,
of the city (refer section 4.11). population, their affluence, etc. Suitable
interventions in the drainage system
like traps, communitors, trash racks
7. Operation and Maintenance can reduce the amount of solid waste
i) Pre-monsoon desilting of all major going into the storm sewers,
drains will be completed by March 31 vii) Land will also be identified for locating
each year, such structures along the drains. The
ii) Besides the pre-monsoon de-silting design of such structures will be based
of drains, the periodicity of cleaning on actual field measurements at the
drains should be worked out, based proposed site rather than generic
on the local conditions. The roster values from a single site,
of cleaning of such drains should be
viii) Due consideration will be given to
worked out and strictly followed,
internationally available technology
iii) All waste removed both from the major for removal of solid waste from storm-
and the minor drains should not be water drains,
allowed to remain outside the drain for
ix) De-silting of minor drains will be carried
drying, instead the wet silt should be
out as part of a regular preventive
deposited into a seamless container
maintenance schedule. The catchment
and transported as soon as it is taken
out from the drain. In exceptional will be the basis for planning this, as a
cases, the silt may be allowed to dry for part of the watershed de-silting master
about 4 to 24 hours outside the drain plan,
before transporting the semi-solid silt x) Cleaning of minor drains will be taken up
for disposal, from the outlet end to upstream side,
iv) Completion of work will be certified by xi) Ageing systems will be replaced on an
representatives of local RWAs/ SDAs/ urgent basis,
128
xii) A master plan will be prepared to 10. City road levels

improve the coverage of the sewerage
All road re-levelling works or
system, so that sewage will not be
strengthening/overlay works will be carried out
discharged into stormwater drains,
by milling the existing layers of the road and
and
recycling of materials obtained as a result of
xiii) Adequate budget will be provided the milling so that the road levels will be not be
to take care of the men, material, allowed to increase (refer section 4.13.3).
equipment and machinery. Special [Action: States/UTs and ULBs]
funds will be provided for the safety
11. Drain Inlet Connectivity
equipment of the personnel, carrying
out maintenance of underground man- Inlets should be provided on the roads
entry sewers (refer section 4.12). to drain water to the roadside drains and these
should be designed based on current national
[Action: MoUD, States/UTs, ULBs]
and international practices. Indian Standard IS
8. Special Design Considerations 5961 provides the design details for cast iron
i) Airports are critical infrastructure. grating for drainage (refer section 4.13.4).
Keeping the airports operational under [Action: States/UTs and ULBs]
conditions of severe flooding, will be
12. Rainwater Harvesting
very crucial for rushing emergency
supplies. Even in the event of the Every building in an urban area will have
arterial roads being flooded, helicopters rainwater harvesting as an integral component
can be used to rush supplies received of the building utility. ULBs will ensure that this
at the airports to the affected areas, is implemented (refer section 4.16).
and [Action: States/UTs and ULBs]
ii) It is, therefore, of utmost importance 13. Rain Gardens

that these will be made flood-proof by Concept of Rain Gardens will be
providing efficient drainage for a much incorporated in planning for public parks and on-
higher rainfall intensity and using Best site stormwater management for larger colonies
Management Practices like provision of and sites that are to be developed. People will
holding ponds (refer section 4.13.1). be encouraged to adopt this concept even for
[Action: Ministry of Civil Aviation, sites already developed (refer section 4.17).
States/UTs and ULBs]
9. City bridges
14. Water Bodies
All future road and rail bridges in
All urban water bodies will be protected.
cities crossing drains should be designed such
Efforts will also be made to restore water bodies
that they do not block the flows resulting in
by de-silting and taking other measures. Efforts
backwater effect (refer section 4.13.2).
will also be made to revive water bodies that
[Action: States/UTs and ULBs] have been put to other uses. Water bodies will
129
be an integral part of the stormwater system ii) Wherever unavoidable, buildings in

(refer section 4.18). low-lying areas should be constructed
[Action: States, ULBs] on stilts above the High Flood Level
(HFL) / Full Tank Level (FTL),
15. Detention Ponds
iii) For chronic flooding spots, alternate
Urban stormwater management
locations may be explored for
systems will include detention and retention
accommodating people staying
facilities to mitigate the negative impact of
there,
urbanization on stormwater drainage (refer
section 4.19). iv) Buildings should be constructed on
stilts after taking into account the
stability of slopes, and
16. Lined Channels
v) Stormwater drainage systems for
i) Rigid lining will be implemented in high coastal cities have to be designed
density urban areas where space is a taking into account the tidal variations
constraint, and (refer section 4.22).
ii) Flexible linings will be provided in
[Action: MoUD, States/UTs and
medium and low density areas and new
ULBs]
urban developments, as these permit
infiltration and are environmentally 19. Encroachments
friendly, providing habitat for flora and i) Encroachments on nallahs/ drains/
fauna and are less expensive (refer
watercourses will be removed by
section 4.20).
providing alternative accommodation
[Action: States/UTs and ULBs] to the BPL people and appropriarte
17. Integrated Planning and Interactions rehabilitation package for other
between Water and Solid Waste categories of people,
Management
ii) The nallahs/ drains/ watercourses/ flood
i) Integrated planning and co-ordination plains should be clearly delineated and
will be ensured to take into account boundaries fixed in new developments.
all components of the urban water There will be strict enforcement of the
systems, and relevant byelaws/regulations in the new
ii) B M Ps s h o u l d b e a d o p t e d b y layouts as discussed in Chapter 6, and
all ULBs to reduce the load on iii) Any encroachment on the drain will
the major drainage system (refer attract penal action and be treated
section 4.21). as a cognizable offence, both against
[Action: States/UTs and ULBs] the encroachers and the officials
18. Specific Adaptation Strategies for responsible for enforcement of the
Cities byelaws/ regulations (refer section
i) Low-lying areas should be reserved 4.23).
for parks and other low-impact human [Action: MoUD, States/UTs and
activities, ULBs]
130
Chapter 5 Urban Flood Disaster Risk 3. Estimation of Possible Inundation

Management levels
1. Issues in Urban Flood Disaster Risk The magnitude of inundation levels
Management due to various scenarios and causes will be
simulated on GIS-based inundation model, duly
Decisions for new development
(properties and infrastructure) are often incorporating drainage capacities in the analysis
taken without a full understanding of the in order to estimate depth, duration and extent
risks of flooding. Consideration of new of inundation by using an integrated city specific
developments, on a case-by-case basis, can framework (refer section 5.5).
ignore cumulative stormwater effects on flood
[Action: CWC, NRSC and SRSACs]
risks. As organisations manage different parts
of the urban drainage infrastructure, they 4. Estimation of Flood Damages
make investment decisions based on a limited In general, the assessment of potential
cost-benefit analysis that rarely considers
damages will be on the following basis (Actual
the wider drainage issues. The sum total of
damages will be on the basis of a field survey):
these individual and piecemeal investment
strategies is unlikely to produce the most i) Identification of potential damage
effective solution. MoUD will ensure that this areas, according to the physical
is appropriately reviewed on a regular basis characteristics of the area such as land
(refer section 5.2). use, topography, drainage area, outfall
[Action: MoUD and States/UTs] system and the capacity of the existing
stormwater drainage system. Maps are
2. Risk, Hazard Assessment and usually prepared to visualise the results
Mapping of the identification process,
i) Risk assessment will be carried out ii) Selection of damage categories, which
with a multi-hazard concept leading to are considered appropriate for each
foolproof land use planning, damage area under investigation.
ii) Quantification of risks will start with the These are: public and private clean-
analysis of hydro-meteorological data up, structural and vehicular damage,
and the hydraulic simulation of floods, damage of contents, traffic related
and losses and tax revenue losses,
iii) Flood hazard assessment will be made iii) Developing unit-cost relationships for
for standard baseline conditions to various damage categories,
ascertain level of acceptable risk of
iv) Evaluation of hydraulic conditions such
flooding on the basis of projected
as the volume of ponding areas, street
future scenarios of rainfall intensities
conveyance capacities, storm sewer
and duration and land use changes
capacities and inlet capacities,
v) Determination of the extent of flooding
[Action: CWC, SoI, NRSC and
expected for several storms of different
SRSACs]
frequencies of occurrence,
131
vi) Estimating damages for the “do- experience. The research should focus
nothing” alternative for different storm on three key areas: risk identification,
frequencies, risk pooling and risk transfer. The risk
vii) Plotting corresponding damages versus should focus on both property and
probability, in order to measure the people, and
area under the curve which represents ii) States/UTs will build partnerships with
the average annual damage (base-line public/ private insurance companies and
damage), civil society to sensitive communities
viii) Estimating residual damages in a about available schemes and also
similar manner, for various alternative develop appropriate micro-insurance
plans under study, schemes targeted at low-income
ix) Calculating annual benefit as the groups. The partnerships should be
difference between the estimated based upon need, post performance,
annual damage before and after the key objectives and cost effectiveness.
capital improvement, and A database of partners should be
available in the public domain (refer
x) The estimated annual benefit may then
section 5.8.4).
be used in the cost-benefit analysis
(refer section 5.6). [Action: States/UTs and ULBs]
[Action: CWC, IMD, SoI, NRSC and 7. National Database for Mapping
SRSACs] Attributes
5. Ward level Risk Reduction and i) The database required for mapping
Vulnerability Assessment different ward/community level
attributes will be made accessible to
Ward level Information System will
all ULBs and concerned departments/
have to be developed using high resolution
agencies/ stakeholders,
satellite images/ aerial photos, integrated with
socio-economic data covering natural resources ii) Integration between hardware
and infrastructure facilities on appropriate scale and software will be ensured for
(1:1000) at community level (refer section 5.7.1). compatibility and interoperability of
computing, visual and networking
[Actions: SoI, NRSC, SRSACs, States/ UTs infrastructure nodes at the centre and
and ULBs] state/ ULB/ward levels, and
6. Insurance and Risk Transfer iii) Coastal ULBs/ Urban Development
Authorities will work out micro-level
i) Research on how floods threaten
analytical tools with appropriate
vulnerable urban populations and how
interfaces to DSSs for planning and
they are affected must be developed
executing suitable risk reduction
in order to develop the best strategies activities (refer section 5.10).
for disaster mitigation. The research
should be set in the Indian techno- [Action: MoUD, States/UTs and
legal context and draw from the Indian ULBs]
132
8. National Urban Information System stakeholders for holistic DM (refer

section 5.13).
i) All Class I, II and III Towns with
population of 20,000 or more (on the [Action: NDMA, SDMAs and ULBs]
basis of 2001 Census) will be mapped 11. Updating of Database through
on the GIS platform under the NUIS, Additional Surveys
ii) The database of the NUIS will be Efforts will be made for generating
expanded to cover infrastructure specific core data on priority (refer section
facilities at community level integrated 5.14).
with socio-economic data, and
[Action: DST/SoI, DoS/NRSC and SRSACs]
iii) Maps will be generating at 0.2-0.5 m
12. Updating of Database through
contour intervals (refer section 5.11).
Additional Surveys
[Action: MoUD and SoI]
Spatial databases will be standardized
9. State Urban Flood Disaster with provision for frequent updates and
Management Information System automated procedures/ tools for organising the
collected data, as per NSDI and NDEM spatial
The Technical Umbrella at the state
frameworks (refer section 5.14).
level will ensure the establishment of a
comprehensive UFDMIS (refer section 5.12). [Action: SoI and NRSC]
[Action: States/ UTs] 13. Urban Flooding Cells (National
Level)
10. Data Providers for Disaster Risk
Management It is for the first time that Urban
Flooding is being dealt with as a separate
a) Standards and interoperability protocols
disaster, de-linking it from riverine floods which
will be implemented by stakeholders,
affect the rural areas. MoUD is being designated
b) Logically, all the producing and as the Nodal Ministry for Urban Flooding.
updating agencies manage their i) A separate UFC will be constituted
sectoral datasets during their everyday within MoUD,
business and emergency situations.
ii) A Joint Secretary cadre officer will be
If the results of such data production
designated as the Nodal Officer in-
and updating efforts are physically charge,
recorded, the required data/information
iii) It will play a lead role in the establishment
for disaster response is always available
of the Technical Umbrella at the
to the producer. If this information is
national level,
shared and exchanged, datasets will
be accessible to a wider emergency iv) It will coordinate all UFDM efforts by
management community, and different stakehiolders at the national
level,
c) A committee set up by NDMA will be
empowered to review the data needs v) It will guide the states on all aspects
and make data sets available to all of UFDM, and
133
vi) It will guide efforts for the preparation on urban flooding (the list of all such
of the Stormwater Drainage Manual agencies/ orgainsations should be a
and set up a standing mechanism for part of the DM plan),
updating it as per international practice
iv) Regular mock drills and preparedness
exercises,
[Action: MoUD]
v) Conducting DM audit for all decisions
14. Urban Flooding Cells (States/UTs)
activities and investments which could
The Department of Municipal have a bearing on DM, covering both
Administration/ Urban Development in the structural and non-structural measures
State/UT will be the nodal department for the including techno-legal regime,
management of urban flooding.
vi) DM audit activities like construction
i) A separate Urban Flooding Cell will be of railway lines/roads/bridges/
constituted within nodal department, transmission towers, etc by other
ii) A Joint Secretary cadre officer will departments,
be designated as the Nodal Officer in
vii) Careful monitoring of maintenance of
charge,
stormwater drainage system and de-
iii) It will take the lead to establish a silting activities,
state level monitoring and approval
viii) Monitoring of activities like municipal
mechanism for UFDM particularly as
solid waste disposal,
a part of the Technical Umbrella, and
iv) It will guide all the ULBs in all aspects ix) Strengthening the involvement of local
of UFDM. UFC shall be formed with level orgainsations RWAs, Bastis, slum
members from Irrigation Department, associations, etc.,
State Remote Sensing agency, Disaster x) Encouraging Community Based
Management Department, etc. to D i s a s t e r Pr e p a r e d n e s s ( C B D P )
guide the ULBs, for both prior to the efforts,
events as well as during the event
(refer section 5.17). xi) Launching of awareness generation
campaigns,
[Action: MoUD and States/UTs]
15. The major responsibilities of the xii) Documentation of events,
UFC will be as follows: xiii) Regular enhancement of capacity
i) Preparation and implementation of DM development at all levels, and
Plan,
xiv) A local official will be designated as
ii) Coordination within the local body, nodal officer at the ward level (refer
iii) Coordination with agencies outside the section 5.17).
ULBs whose activities have a bearing [Action: States/UTs and ULBs]
134
Chapter 6 Techno-Legal Regime v) Prepare necessary guidelines for

evaluating cities/towns to be considered
1. Environmental Impact Assessment
for annual awards for best record of
i) Stormwater drainage concerns will be compliance with techno-legal regime.
made a part of all EIA norms, and Cities / towns will be considered under
ii) Sometimes to overcome compliance different categories like metros with
to EIA, projects are split into smaller 4 million plus population, cities with
areas. Guidelines will be issued to one million plus (less than 4 million)
State EIA Authorities to subject even population and cities with less than
smaller projects to meet EIA norms one million population. Besides,
(refer section 6.4.7). smaller municipalities should also
be considered under two or three
[Action: MoEF, MoUD, States/UTs]
categories,
2. MoUD will play a key role in coordinating
vi) Review procedure for licensing
the efforts of the states regarding the
architects with emphasis on compliance
compliance with Techno-legal Regime
with techno-legal regime, and
by all the ULBs in their respective
states. vii) Sanction of new projects will be linked
to proper implementation of techno-
i) Review the present status and bring
legal regimes by the ULBs (refer
all states on par relating to making
sections 6.3, 6.4, 6.5, 6.6).
amendments to development control
regulations and building byelaws on [Action: MoUD/TCPO, States/UTs and
the basis of the recommendations of ULBs]
the Experts Committee, set up by MHA
3. Urban Sprawl
in 2004,
ii) Issue guidelines for setting up a standing Growth of urban sprawls will result in
mechanism for a regular review to change in land-use and land cover with impacts
suggest periodic changes based on such as loss of agricultural land, open space, and
lessons learned and experiences and ecologically sensitive habitats. This will ultimately
BMPs within and outside the country, have future implications in terms of urban flooding.
All such concerns will be addressed by the states
iii) Issue guidelines for making the techno-
legal framework as an essential part of on priority. MoUD will review this with the states/
technical capacity development at all UTs (refer section 6.7).
levels of state governments and ULBs, [Action: MoUD, States/UTs]
besides all other stakeholders,
Chapter 7 Response
iv) Prepare guidelines for mandatory third
1. Adverse Impact of Urban Flooding
party compliance review of all land use
and developmental plans, involving Steps will be taken for business
experts rom local S&T and Academic continuity plan by local Federations of
institutions, Commerce and Trade and organisations like
135
CII, FICCI, ASSOCHAM and NASSCOM. State in this and work in coordination with
governments will coordinate these efforts (refer the official machinery, and
section 7.1.1). ii) The municipal staff also works in
[Action: States/UTs] close coordination with revenue
2. City Disaster Management Plan administration (refer section 7.4.3).
CDMPs will be prepared taking into [Action: ULBs]
account UFDM concerns (refer section 7.2). 7. Sanitation
[Action: States/UTs and ULBs] Children, women, the aged and the
3. Incident Response System differently-abled persons will be given special
i) Officials will be designated by name attention (refer section 7.4.5).
at all levels to discharge various [Action: ULBs]
responsibilities under the IRS, and
8. Flood Hotspots
ii) List of these pre-designated officials
i) Pre-flood season mitigation measures
with telephone numbers will
will be taken, and
be given wide publicity through
media and other printed publicity ii) Post-flood review and identification of
material, to be freely made available any fresh hot-spots will be done on a
to all stakeholder groups (refer regular basis (refer section 7.4.6).
section 7.3.3). [Action: ULBs]
[Action: ULBs] 9 Chronic Flooding Areas
4. Evacuation Plan These spots should be properly
Emergency evacuation plans will be identified in the CDMP and response actions
developed with an institutional checklist of planned well in advanced, taking both the
emergency actions (refer section 7.4.1). physical and social vulnerability into account
(refer section 7.4.7).
[Action: ULBs]
[Action: ULBs]
5. Flood Shelters
i) Buildings will be designated as 10. NDRF and SDRF
Flood Shelters and all necessary Periodic simulation exercises and mock
arrangements will be ensured ahead drills will be organised and made mandatory on
of the flood season, and the lines of pilot initiatives of NDMA for ensuring
ii) Additional temporary arrangements effective, functional emergency response, along
will be made for water, sanitation, etc. with the inventory of community resources and
(refer section 7.4.2). assets (refer section 7.5.1).
[Action: ULBs] [Action: States/UTs and ULBs]

6. Search and Rescue 11. Fire Brigade
i) Community level teams will play an i) Since Fire is a municipal subject, a
important role in planning and assisting uniform policy is required which will
136
be applicable in all States. Steps will deal with medical preparedness, emergency
be taken by all the states/UTs to have treatment, mortuary facilities and disposal of
the fire services under the Municipal bodies and carcasses, public health issues
Corporation/ Municipality, for at least including trauma and control of epidemics
the larger cities/ towns, (refer section 7.6.1).
ii) States/ UTs will take necessary steps to [Action: States/UTs and ULBs]
systematically strengthen fire services
by making provisions in their annual
14. Emergency Medical Response
plans, and i) Risk knowledge will be linked with local
iii) T h e 1 3 t h Fi n a n c e C o m m i s s i o n scale response plans by organizing
recommended that a portion of the necessary support systems from
grants provided to the (ULBs) be spent national agencies, in accordance with
on revamping of the fire services within needs of the local authorities and
their respective jurisdictions. These community stakeholder groups, and
bodies could provide financial support
ii) Institutionalised multi-agency
to the State Fire Services Department
collaboration will be developed with
towards this objective. In this process,
clarity of roles and responsibilities from
ULBs could draw upon the expertise
of state agencies and the National city to ward levels and periodic updating
Disaster Management Authority, as of SOPs at different levels based on
required (refer section 7.5.3). experience gained (refer section 7.6.2).
[Action: MoUD, States/UTs and [Action: States/UTs]

ULBs] 15. Involvement of the Corporate Sector
12. Local Emergency Squads i) Strengthening of IDRN activity with
i) The emergency squads will be oriented updating of information will be carried
to deal with such situations and will be out on a regular basis (refer section
provided with necessary training and 7.7.3).
equipment as mentioned in the DM [Action: MHA]
Plan, and
ii) Each ULB should involve the corporate
ii) Equipment will invariably include sector in making available their services
pumpsets of required capacities
and resources for emergency response.
in suficient numbers (refer section
This should form an essential part
7.5.4).
of DM plan. All available resources
[Action: ULBs] should be documented. The IDRN
13. Preparedness should also be used during response
Local scale emergency medical
response systems will be established to [Action: States/UTs and ULBs]
137
16. Challenges to Evolve Disaster ii) Such efforts will address all aspects
Response Capability of UFDM inorder to inculcate a
culture of prevention, mitigation and
a) R e s t o r a t i o n o f p o w e r,
preparedness as well as effective and
telecommunications, road and railway
prompt response, relief, rehabilitation
transport will get top priority, and
and recovery. Case histories of major
b) A system to determine the safety of flood events will be used as valuable
relief and relocation infrastructure, inputs in the process,
capacities of the emergency evacuation
iii) MoUD will lead efforts to invole All
machinery and integrated support of
India Council of Technical Education
emergency health care, night rescue,
(AICTE), University Grants Commission
restoration of energy and food supply,
(UGC), Council of Architecture (COA),
etc., will be institutionalized (refer
Institution of Engineers (IE) and
section 7.9).
the state governments to develop
[Action: States/UTs and ULBs] suitable modules for inclusion in
Chapter 8 Capacity Development, the curricula of architecture and
Awareness Generation and engineering courses in the Indian
Documentation I n s t i t u t es o f Tec h n o l o g y (IITs),
National Institutes of Technology
1. Urban Flood Education
(NITs) and other universities, colleges
i) Disaster-related curricula have already and polytechnics of engineering and
been introduced by the Central Board architecture to equip the students
of Secondary Education (CBSE) with the requisite knowledge of
for classes VIII, IX and X. It has to flood-proof design and construction
be clearly brought out that Urban techniques,
Flooding is different from riverine iv) DM related aspects of medical
flood which largely affects rural education will receive detailed
areas. The MoUD, in consultation attention at different levels, so that
with the MHRD, will encourage the graduating doctors, paramedics and
CBSE to introduce modules of UFDM emergency medical technicians are
in classes XI and XII as well. MoUD able to handle emergencies with a
will consultation with MHRD and better understanding of the issues
involved. One of the major public
the state governments will promote
health concerns in management of
the efforts the development of
urban flooding is the possibility of
high-quality education materials,
breakout of epidemics after a severe
textbooks and field training. The state
flooding event. Besides this, trauma
governments/ SDMAs will encourage
care and emergency medical care are
their school boards to develop similar also very relevant,
content in their school curriculum,
138
v) The state governments will follow up ii) The State/UT governments should
these efforts with regular in-service designate a nodal officer in the
refresher programmes at appropriate department of MA&UD to work in close
levels for upgradation of knowledge coordination with the DM cells of ATIs
and skills, and on one side and the commissioners of
ULB on other side, and
vi) There are some important human
factors which contribute to urban iii) DM Cells of ATIs are to work in close
flooding, namely, improper disposal of coordination with state departments
domestic, commercial and industrial of MA&UD and Commissioners of
solid waste and construction debris. ULBs to ensure capacity development
These issues will be highlighted programmes (refer section 8.4).
in curriculum developed by the
[Action: MoUD, NIDM, ATIs and
states for schools. Implications
States/UTs]
of non-compliance of the techno-
legal regime will also be included. 3. Community Capacity Development
Such efforts will go a long way in (Suggested Actions for
generating awareness from a young Strengthening CBDM Efforts)
age and contribute to bringing a i) On the basis of the experience of the
change (refer section 8.2). GoI–UNDP DRM Programme, a similar
[Action: MoUD, MHRD, MoHFW and programme should be designed for
States/UTs] the urban areas in a multi-hazard
approach, with special emphasis on
2. Institutional Capacity Development
urban flooding,
(Raising the Level of ATIs)
ii) The adoption of community-based
i) Efforts should be made to raise DRM, people-centred approaches,
the level of ATIs. The faculty should and the integration of DRM strategies
become the nodal point of capacity into the socio-economic development
enhancement in the state, be able to planning, are critical for effective flood
design and supervise the technical management strategies, and
capacity programme initiatives of
iii) In situ flood management approaches
line departments. They should evolve should ensure community
suitable training modules by taking preparedness. This includes
specific needs of the line departments in participatory urban flood planning
consultation with knowledge institutes, and management involving both local
undertake research studies, and mock government and the community.
drills to improve preparedness and Communities should also be
response capacities, design and empowered to develop their own
development of databases, etc. to meet hazard mapping and evacuation
the emerging needs of the ULBs, strategy. The critical role of NGOs
139
in reducing community risks and vi) Develop emergency response plans

vulnerabilities to disasters need to be for hospitals and government offices
considered (refer section 8.5). (refer section 8.7.2).
[Action: MoUD and States/UTs] [Action: States/UTs and ULBs]
4. Role of Civil Society 6. Handling Societal Impacts of Urban

Flooding
Civil Society needs to consider
the enhancement of the socio-economic i) Suitable hedging mechanism, like
conditions of the poor, alleviate poverty and insurance of life and property, need
improvement of livelihood of these vulnerable to be evolved to reduce urban flood
groups (refer section 8.7). vulnerability (refer section 8.8).
[Action: States/UTs and ULBs] [Action: MoUD and States/UTs]
5. Suggestions for Establishing ii) Lack of technical capacity enhancement

Effective Community Level First of domain-specific skills can severely
Responder Support paralyse the DM infrastructure and
administrative mechanisms. Design and
i) Encourage local residents to constitute
development of relevant educational
consisting of ex-servicemen, retired
and communication campaigns and
police personnel, paramilitary forces
launching them from time to time is
and RWAs,
important (refer section 8.8.9).
ii) The owners/ those connected
[Action: NIDM and ATIs]
with management of organisation
which generates bulk solid waste 7. Awareness Generation at
in commercial areass running of Institutional Level
hospitals, hostels, community halls, i) Public awareness will be created about
hotels and restaurants, the need to keep safety kits containing
iii) These people should be encouraged medicines, torch, identity cards, ration
to be part of the TF/VG, card, important documents and non-
perishable eatables such as dry fruits,
iv) The VG can be trained by the teams of
roasted channa, etc. ready before
Civil Defence, SDRF, NDRF, etc.,
commencement of monsoon so that,
v) Involve various youth organisations, they can carry the same with them, in
namely (i) NCC, (ii) NSS, and NYKS case they have to be evacuated,
to have the inherent advantage of
ii) The community will also be trained
outreach at the grass-root level and
for preparation and utilisation of
also have the advantage of ready
improvised flood rescue devices with
availability for immediate assistance
household articles, and
at the ground level in the event of any
disaster, and iii) Specially designed public awareness
programmes will be developed for
140
addressing the needs of physically 10. Awareness on Insurance

handicapped and mentally challenged
Awareness generation campaigns
people, women and the elderly. The
should be initiated by states/UTs, ULBs and
States Police Force, Civil Defence,
other stakeholders. State governments, local
Home Guards and SDRFs will also
authorities and other stakeholders are to
be covered by such efforts (refer
communicate the benefits of insurance. This
section 8.13).
should be done with active cooperation from the
[Action: NDRF, States/UTs and insurance companies. MoUD should coordinate
ULBs] efforts for this (refer section 8.17).
8. Role of Public Representatives [Action: States/UTs and ULBs]
Public representatives including 11. Documentation
Municipal Ward Members, MLAs and MPs
i) Documentation shall cover all aspects
are regularly elected by the people, directly or
of early warning, communication,
indirectly. They have a very close contact with
design and maintenance , successful
the people at the grass-root level and their
actions/ failures and the results
cooperation should be enlisted for various
thereof, covering search and rescue,
awareness generation programmes on a regular
evacuation, management of flood
basis (refer section 8.14).
shelters, food and water supply,
[Action: States/UTs and ULBs] restoration of essential services, public
health issues, management of traffic
9. Role of Media
and all other activities, and
i) Steps will be taken to evolve appropriate
ii) Basic format for documentation will be
media campaign covering radio, visual
prepared by NIDM/ATIs (refer section
and print media besides the production
8.18).
of printed materials like brochures,
pamphlets, posters, etc., and [Action: NIDM, States/UTs and
ATIs]
ii) Media companies will also be
motivated to launch/expand awareness
generation programmes as a part of
their CSR (refer section 8.15).
141
Contributors
Core Group Members

Shri M. Shashidhar Reddy, MLA Member, NDMA Chairman
1 Dr. Kapil Gupta Professor, Department of Civil Convener

Engineering, Indian Institute of
Technology Bombay, Mumbai
2 Shri A.K. Mehta Joint Secretary, JNNURM, Member
Nirman Bhavan, New Delhi
3 Shri J.B. Kshirsagar Chief Planner, Town and Country Member
Planning Organisation, Ministry of
Urban Development, New Delhi
4 Shri V. Jayaraman Director, National Remote Sensing Member
Centre, Balanagar, Hyderabad
5 Dr. Ajit Tyagi Director General, India Member
Meteorological Department,
Lodi Road, New Delhi
6 Shri B.F. Ahuja Chairman, Central Water Member
Commission, Sewa Bhawan,
R.K. Puram, New Delhi
7 Dr. K.J. Ramesh Adviser & Scientist-’G’, Ministry of Member
Earth Sciences, Block-12,
C G O Complex, New Delhi
8 Dr. A.K. Gosain Professor and Head, Department of Member
Civil Engineering, IIT Delhi,
Delhi
9 Dr. P.P. Mujumdar Professor and Chairman, Member
Department of Civil Engineering,
Indian Institute of Science,
Bangalore
10 Dr. Mihir Bhatt Director, All India Disaster Member
Management Institute,
Ahmedabad
142
Contributors
Steering Committee Members

1 Dr. Kapil Gupta Professor, Department of Civil Engineering IIT Convener
Bombay, Mumbai
2 Shri M. Rajamani Joint Secretary, Ministry of Urban Development, Member
JNNURM, Nirman Bhavan, New Delhi
3 Shri M. Sankaranarayanan Deputy Advisor (PHE), Ministry of Urban Member
Development, Government of India
4 Shri P.C. Bhardwaj Senior Public Health Engineer, Town and Member
Country Planning Organisation, Ministry of
Urban Development, New Delhi
5 Shri V.K. Sinha Secretary General, Indian Roads Congress, Member
Sector 6, R.K. Puram, New Delhi
6 Dr. K. Radhakrishnan Director, National Remote Sensing Centre, Member
Balanagar, Hyderabad
7 Dr. Ajit Tyagi Director General, India Meteorological Member
Department, Lodi Road, New Delhi
8 Shri B. F. Ahuja Chairman, Central Water Commission, Sewa Member
Bhawan, R.K. Puram, New Delhi
9 Dr. K.J. Ramesh Adviser & Scientist-’G’, Ministry of Earth Member
Sciences, Block-12, C G O Complex,
New Delhi -110 003
10 Smt. Preeti Sudan Secretary (Revenue) and Commissioner (DM) Member
& EO, Revenue Department, Secretariat,
Hyderabad
11 Shri R. K. Singh Principal Secretary, Department of Disaster Member
Management, Government, of Bihar, Patna
12 Shri M. Ramesh Kumar Secretary (Relief & Rehabilitation) Department Member
of Revenue and Forest, Government of
Maharashtra, Mumbai
13 Shri Saktikant Dash Special Commissioner (Revenue & Disaster Member
Management), Government of Tamil Nadu,
Chepauk, Chennai
14 Smt. Nutan Guha Biswas Divisional Commissioner, 5, Shamnath Marg, Member
Near ISBT, Delhi
15 Dr. Santosh Kumar Professor, National Institute of Disaster Member
Management, IIPA campus, New Delhi.
16 Dr. A.K. Gosain Pr o f e s s o r a n d H e a d o f D e p a r t m e n t , Member
Department of Civil Engineering, IIT Delhi,
Delhi
143
17 Dr. A.K. Sarma Professor, Department of Civil Engineering, Member

IIT Guwahati, Guwahati
18 Dr. P.P. Mujumdar Professor and Chairman, Department of Member
Civil Engineering, Indian Institute of Science,
Bangalore
19 Prof. B.N. Goswami Director, Indian Institute of Tropical Member
Meteorology, Dr. Homi Bhabha Road, Pune
20 Dr. Dhrubajyoti Sen Associate Professor, Department of Civil Member
Engineering, IIT Kharagpur
21 Dr. Somnath Sen Professor, Department of Architecture & Rural Member
Planning, IIT Kharagpur
22 Dr. Ashu Jain Associate Professor, Department of Civil Member
Engineering, IIT Kanpur
23 Dr. Amit Kumar Project Manager (Advocacy & Capacity Member
Building), Urban Risk Management Programme,
A s i a D i s a s t e r Pr e p a r e d n e s s C e n t e r,
Bangkok
24 Dr. Mihir Bhatt Director, All India Disaster Management Member
Institute, Ahmadabad
25 Dr. J.M. Phatak Commissioner, Municipal Corporation of Member
Greater Mumbai, Municipal Head office, 1st
floor, Mahapalika Marg, Mumbai
26 Shri Alapana Bandhopadhyay Commissioner, Kolkata Municipal Corporation, Member
5, S.N. Banerjee Road, Kolkata
27 Shri Rana Avdhesh Municipal Nagar Ayukt, Patna Member
28 Smt. S. Aparna Commissioner, Suart Municipal Corporation, Member
Mughalsarai, Suart
29 Dr. S. Subramanya Commissioner, Bruhat Bengaluru Mahanagara Member
Palike, Bengaluru
30 Shri C.V.S.K. Sarma Commissioner, Greater Hyderabad Municipal Member
Corporation, Hyderabad
31 Shri H.K. Srivastav Director (Projects) National Rural Road Member
Development Agency, NBCC Towers, Bikaji
Cama Place, New Delhi
32 Dr. N. K. Goel Professor and Head, Department of Hydrology, Member
IIT Roorkee, Uttarakhand
33 Dr. K.M. Reddy Director General, Andhra Pradesh State Member
Remote Sensing Application Centre and
Director (Technical) Andhra Pradesh State
Disaster Mitigation Society, Hyderabad
144
Contributors
Experts who provided valuable feedback
1. Akolkar A.B., (Dr.) Additional Director, Central Pollution Control Board, Ministry of
Environment and Forests, New Delhi
2. Amkaiah R., S.E-III, Greater Hyderabad Municipal Corporation, Hyderabad
3. Apte N. Y., Deputy Director, General Meteorology (H), India Meteorological Department,
Lodi Road, Delhi
4. Arya D.S., (Dr.) Department of Hydrology, IIT Roorkee, Uttarakhand
5. Babu M.T Krishna, MD, HMWS and SB and Special Commissioner, GHMC, Hyderabad
6. Baig M.B., EE, SWD-II, Greater Hyderabad Municipal Corporation, Hyderabad
7. Bandopadhyay Abri, (Dr.) National Institute of Technology, Raipur
8. Banerjee S. K., Addl. DGM, India Meteorological Department, Lodi Road, New Delhi
9. Behera G., Water Resources and Oceanography, National Remote Sensing Centre,
Balanagar, Hyderabad
10. Bhan S. C., (Dr.) Director, Regional Meteorological Centre, Safdarjung Airport, New Delhi
11. Bhanumurthi V., Department of Space, National Remote Sensing Centre, Balanagar,
Hyderabad
12. Bhatt C. Y., Assistant Commissioner, Surat Municipal Corporation, Mughalsarai, Surat
13. Bhattacharya Kamal, (Dr.) Professor, Department of Civil Engineering, National Institute
of Technology, Durgapur
14. Bose P.R., (Prof.) Principal, CBP Govt. Engineering College, Jaffarpur, Delhi
15. Burji M. B., Chief Engineer, Bruhat Bengaluru Mahanagara Palike, Bengaluru
16. Chander Ishwar, AF (C), New Delhi Municipal Council, New Delhi
17. Chaurasia V.K., Deputy Adviser, Central Public Health and Environmental Engineering
Organisation, Ministry of Urban Development, New Delhi
18. Chotani M.L., Additional Chief Planners, Town and Country Planning Organisation,
New Delhi
19. Dave A. J., AE (M&E) Bombay Municipal Corporation (BMC), Mumbai
20. Dave A.J., Assistant Engineer, Disaster Center, Municipal Corporation of Greater Mumbai,
Mumbai
145
21. Dharma K., SE/HLWMC, Buddabhavan, MG Road, Secunderabad
22. Dimri V.P., (Dr.) Director, National Geophysical Research Institute, Hyderabad
23. Dumbaly Subhash, Additional Commissioner, Pimpri Chinchwad Municipal Corporation, Pune
24. Dwivedi Sushil, SE (Roads), New Delhi Municipal Council, New Delhi
25. Gajbhiye Kishore, Additional Municipal Commissioner (DM), Municipal Corporation of

Greater Mumbai, Mumbai
26. Gandhi Dipak C., Executive Engineer, Surat Municipal Corporation, Mughalsarai, Surat
27. Gawade D.K., AMC, Pimpri Chinchwad Municipal Cooperation, Pune
28. Gawde K.B., Pimpri Chinchwad Municipal Corporation, Pune
29. Ghoshal Supriya, Assistant Professor, Administrative Training Institute, Government of

West Bengal, Kolkata
30. Goel Satis, Executive Engineer, Urban Local Bodies, Chandigarh
31. Gupta D. P, DGRD and Addl. Secretary (Retd.), Ministry of Road Transport and Highways,
New Delhi
32. Gupta R.K., (Dr.) Central Water Commission, Sewa Bhawan, R.K. Puram, New Delhi
33. Hatwar H.R., Additional Director General, India Meteorological Department, Pune
34. Jena Susanta Kumar, (Dr.) Senior Research Officer, National Disaster Management
Authority, New Delhi
35. Jenamani R.K., (Dr.) Director, IMD, Airport Meteorological Office, IGI, New Delhi
36. Kamaraj M., Assistant Engineer, Municipal Cooperation of Madurai, Tamil Nadu
37. Khare N., (Dr.) Director, Ministry of Earth Sciences, Mahasagar Bhawan, Block - 12, C.G.O.
Complex, Lodi Road, New Delhi
38. Kudalkar S.S., (Dr.) Deputy Municipal Commissioner, (Disaster Management) Municipal
Corporation of Greater Mumbai, Mumbai
39. Kulkarni J.R., (Dr.) Scientist ‘E’, Indian Institute of Tropical Meteorology, Pune
40. Kumar B. Murali, Director, Ministry of Home Affairs, New Delhi
41. Kumar M. Satya, (Dr.) Director, India Meteorological Centre, Airport, Hyderabad
42. Kumar Pawan, Town and Country Planning Organisation, Ministry of Urban Development,
New Delhi
146
Contributors
43. Kumar Pradeep, Director, National Water Academy, Sinhagad Road, Khadkwasla, Pune
44. Kumar T. Kiran, Scientist/Engineer (Floods and Cyclones) DSC, NRSC Hyderabad
45. Kumar T. Vijay, Assistant Director, Hyderabad Metropolitan Development Authority,

Greenlands, Guest House, Begumpet, Secunderabad
46. Lal C., Director, Central Water Commission, Sewa Bhawan, R.K. Puram, New Delhi
47. Mandal G.S., (Dr.) Addl. Director General, IMD (Retd.), Specialist, National Disaster
Management Authority, New Delhi
48. Manikiam B., (Dr.) Disaster Management Support Project (DMSP), ISRO HQs, Antariksha
Bhawan New BEL Road, Bangalore
49. Mathuria D.P., Deputy Director, Central Water Commission, R.K. Puram, New Delhi
50. Meena S. L., Dy. Director (FMP), Central Water Commission, R.K. Puram, New Delhi
51. Murthy D.V.R., Andhra Pradesh State Remote Sensing Applications Centre, Hyderabad
52. Nag P., (Dr.) Surveyor General of India and Director, NATMO, Dehradun
53. Nanjundappa T.D., Engineer Officer III, Bangalore Development Authority, Bangalore
54. Narlekar, Deputy Chief Officer, Disaster Management, Bombay Municipal Corporation,
Mumbai
55. Nayak P. N., Engineer, Bangalore Development Authority, Government of Karnataka,

Bangalore
56. Padmavathi P., (Dr.) Vice Chancellor, Jawaharlal Nehru Architecture and Fine Arts University,
Hyderabad
57. Pandit Chetan, Chief Engineer, National Water Academy, Sinhagad Road, Khadkwasla
Pune
58. Pandey D. C., Deputy Director (FMP), Central Water Commission, Sewa Bhawan, R.K.
Puram, New Delhi
59. Pandya Mehul, All India Disaster Management Institute, Ahmedabad
60. Parmar A.K.S., (Col.) Director, Disaster Management Institute, E-5 Area Colony, Bhopal
61. Parthsarathi Choudhury, (Dr.) Assistant Professor, Civil Engineer Department, NIT
Silchar
62. Patil R. V., Assistant Director (T), Ministry of Road Transport and Highways, New Delhi
147
63. Poman Nilikath, Commissioner Office, Pimpri Chinchwad Municipal Corporation, Pune
64. Prakash Nawal, Senior Research Officer, National Disaster Management Authority, New
Delhi
65. Prakash V.S., Director, Karnataka State National Disaster Monitoring Centre, BWSSB,
Building Couveng Bhawan, Bengalur
66. Prasad G. Rajendra, Addl. Commissioner, (P&P), Greater Hyderabad Municipal Corporation,
Hyderabad
67. Prasad P.V.P.C., Surat Urban Development Authority, Surat
68. Purba G.S., Chief Engineer (FM) Central Water Commission, R.K. Puram, New Delhi
69. Rahaman Md. Abdul, S.E.-1, Greater Hyderabad Municipal Corporation, Hyderabad
70. Rajeev R., Additional Municipal Commissioner (SWM), Bombay Municipal Corporation,
Mumbai
71. Raju P. Ravinder, E.E., SWD-I, Greater Hyderabad Municipal Corporation, Hyderabad
72. Ramchandran A., Deputy Commissioner, Municipal Cooperation of Madurai,

Tamil Nadu
73. Ranpise Prashant, Fire Brigade, Pune Municipal Corporation, Pune
74. Rao Dharma, Superintendent Engineer, Greater Hyderabad Municipal Commissioner,

Hyderabad
75. Rao Gurunatha V.V.S., Scientist-G, National Geophysical Research Institute, Hyderabad
76. Rao P. Panduranga, ENC, Greater Hyderabad Municipal Corporation, Hyderabad
77. Rao R. P. Nanda, Executive Engineer, Revenue (DM) department, CDM and EO Principal
Secretary to Government of Andhra Pradesh
78. Rao Uma Maheswara, AMR AP Academy of Rural Development, Hyderabad
79. Rao Swarna Subba, Surveyor General of India, Survey of India, Dehradun
80. Reddy A. Venkat, DCE-II (Minor Irrigation), Greater Hyderabad Municipal Corporation,
Hyderabad
81. Reddy K. M., (Dr.) Director General, Andhra Pradesh State Remote Sensing Applications
Centre and Director (Technical) Andhra Pradesh State Disaster Mitigation Society,
Hyderabad
82. Reddy B. Purushothama, Director of Town and Country Planning, 2nd Floor, Mithri Vihar,
Ameerpet, Hyderabad
148
Contributors
83. Reddy N. Sai Bhaskar (Dr.) CEO, Geology Energy, Organisation, Ramnathapur,
Hyderabad
84. Rubudia K.B., Superintending Engineer, Irrigation Department, Government of Gujarat
85. Sankaranarayanan M., Deputy Advisor (PHE), Ministry of Urban Development, New Delhi
86. Selvin V.A. Ralph, (Dr.) Deputy Director Health, District -Kanyakumari, Government of
Tamil Nadu
87. Sengupta B., (Dr.) Member Secretary, Central Pollution Control Board, Ministry of
88. Sharma Anil Kumar, SE (E&M), In-charge SWP Station & District Management, Municipal
Corporation of Delhi, Delhi
89. Sharma S. S., Assistant Engineer IV, SM Division, New Delhi Municipal Council, New Delhi
90. Shinde S. S., DMC, Bombay Municipal Corporation (BMC), Mumbai
91. Shivakumar D., S.E. (Housing), Greater Hyderabad Municipal Corporation, Hyderabad
92. Singh Bhoop, (Dr.) Director, Department of Science and Technology, Technology Bhavan,
New Mehrauli Road, New Delhi
93. Singh R. Dhan, Chief Engineer, Greater Hyderabad Municipal Corporation, Hyderabad
94. Singh Pavan Kumar, (Dr.) Senior Research Officer, National Disaster Management Authority,
New Delhi
95. Sreedhar R., S.E. (P2), Greater Hyderabad Municipal Corporation, Hyderabad
96. Srinivas K. R., Additional Commissioner Projects, Bruhat Bengaluru Mahanagara Palike,
Bangalore
97. Srinivas R., Associate Town and Country Planner, Town and Country Planning Organisation,
New Delhi
98. Srinivas Rao G., PI (Floods and Cyclones) DSC, NRSC, Hyderabad
99. Swamy Raghav, (Dr.) Group Director, National Remote Sensing Centre, Balanagar,
Hyderabad
100. Taparia H.J., Chief Fire Officer, Vadodara Fire and Rescue Services, Vadodara Municipal
Corporation, Vadodara
101. Tiwari Rajeshwar, Member Secretary, Andhra Pradesh Pollution Control Board,
Hyderabad
149
102. Trivedi R.C., (Dr.) Additional Director, Central Pollution Control Board, Ministry of
103. Vaidya, Chief Officer, CCRS, Bombay Municipal Corporation (BMC), Mumbai
104. Velayutham V., DG (RD) & SS (Retd.), Ministry of Road Transport and Highways, New
Delhi
105. Verma M.K., (Dr.) National Institute of Technology, Raipur
106. Vijayakumar Meenakshi, Divisional Officer of Fire Services, Government of Tamil Nadu
107. Vijay Rajesh, Chief Engineer, Municipal Corporation of Delhi, Delhi
108. Wajpe Amit R., Pune Municipal Corporation, Pune
109. Yadav Shyam Singh, Municipal Commissioner, Agra
List of Experts who participated in the Indo-US Workshop on

“Urban Flood Disaster Management: Administrative, Technical and
Scientific Issues”, January 7 – 9, 2009
Chief Patron
Gen. N.C. Vij, PVSM, UYSM, AVSM (Retd.),
Vice Chairman, National Disaster Management Authority,
Government of India, Delhi
Indian Patron US Patron
Shri M. Shashidhar Reddy, MLA, Hon. John Paul Woodley, Jr.,
Member Assistant Secretary of the Army
National Disaster Management Authority, (Civil Works),
Government of India, New Delhi US Government, Washington D.C.
US Experts
1. Bruze wicz Andrew J., Civil Works Directorate, US Army Corps of Engineers,
Washington
2. Curtis William, (Dr.) Assistant Technical Director for Flood Damage Reduction Research
Area, US Army ERDC, US Army Corps of Engineers, Vicksburg
3. Davis Jack, (Dr.) Technical Director for Flood Damage Reduction Research Area, US Army
ERDC
4. Dunn Chris, Hydrologic Engineering Center, US Army Corps of Engineers
5. Durden Susan, Economist, Institute of Water Resources, US Army Corps of Engineers,
Statesboro
150
Contributors
6. Edris Earl, Hydrologic Analysis Branch, Coastal and Hydraulics Laboratory, US Army ERDC,
US Army Corps of Engineers
7. Finnegan Dave, US Army ERDC, Remote Sensing/GIS Center, US Army Corps of

Engineers
8. Goodman, Jr. Al W., Chair, Association of State Floodplain Managers, Mississipi Emergency
Management Agency
9. Grant Steven, (Dr.), International Research Office, US Army Corps of Engineers, US Army
ERDC
10. Harris Jeff, Institute of Water Resources, Hydrologic Engineering Center, US Army Corps
of Engineers, Davis CA
11. Hurley John S., (LTC) Military Assistant to the Assistant Secretary of the Army (Civil
Works)
12. Kendall T. Zack, Security Officer, US Consulate, Begumpet, Hyderabad
13. Nawab Ahmed E. MAJ, Office of Defence Cooperation, Embassy of the United States
of America, New Delhi
14. Nina Minka, Senior Disaster Management Advisor, USAID/India, New Delhi
15. Rabbon Peter, Director, National Flood Risk Management Program, Institute of Water
Resources, US Army Corps of Engineers, Davis CA
16. Schnabel Mark, Liaison to US Pacific Command, US Army Corps of Engineers, Camp
Smith
17. Sharp Mike, Technical Director, Water Resources Infrastructure, US Army ERDC
18. Smith A. Bruce, Assistant for Inter-agency and International Affairs, Office of the Assistant
Secretary of the Army (Civil Works), Washington DC
19. Thaut Eric, Flood Damage Reduction Planning Center of Expertise, South Pacific Division,
US Army Corps of Engineers, San Francisco
Indian Experts
1. Apte N.Y., Deputy Director, General Meteorology (H), India Meteorological Department,
New Delhi
2. Arya D.S., (Dr.) Assistant Professor, Department of Hydrology, IIT Roorke, Uttarakhand
3. Bhanumurthi V., PD, NDEM, National Remote Sensing Centre, Balanagar, Hyderabad
151
4. Bhatt Chandra Mohan, Scientist, Disaster Management Support Division, Balanagar,

Hyderabad
5. Bhide A.V., Director Planning, Hyderabad Metropolitan Development Authority, Greenlands,

Guest House, Begumpet, Secunderabad
6. Brahmbhatt D.H., Municipal Commissioner, Municipal Corporation of Rajkot, Dhekar

Road, Gujarat
7. Chandra Satish V.R., Director of Town and Country Planning Andhra Pradesh, AC Guards,
Masabtank, Hyderabad
8. Das Biswanath, EE (M)/ KMC, CMO Building, 5 S.N. Banerjee Road, Kolkata,
West Bengal
9. Gajbhiye Kishore, Addl. Municipal Commissioner, Municipal Corporation of Greater

Mumbai, Mumbai
10. Gosain A. K., (Prof.) Head of Department, Department of Civil Engineering, IIT Delhi, New
Delhi
11. Gupta Anil K., (Dr.) Associate Professor, National Institute of Disaster Management IIPA,
Campus, New Delhi
12. Gupta Kapil, (Prof.) Department of Civil Engineering, IIT Bombay, Mumbai
13. Hiranmai, Jr. Faculty Member, Dr. MCR HRD Institute of Andhra Pradesh, Road No.25,
Jubilee Hills, Hyderabad
14. Jaiswal Lokesh, Joint Secretary, Department of Municipal Administration and Urban
Development, Government of Andhra Pradesh, Hyderabad
15. Jauhari V. P., (Dr.) Director General, Dr. MCR HRD Institute of Andhra Pradesh, Road No.25,
Jubilee Hills, Hyderabad
16. Jena Susanta Kumar, (Dr.) Senior Research Officer, National Disaster Management
Authority, New Delhi
17. Khanda O.P., Chief Engineer, A.C. Guards, Hyderabad
18. Kumar Dinesh, Principal Secretary (Revenue) and Commissioner (DM), Government of
Andhra Pradesh
19. Kumar G.S.P., Project Director, CEAD – NGO, Sainagar, Mrpeta Tuni, East Godavari District,
Andhra Pradesh
20. Kumar Manashvi, Additional Deputy Commissioner, Mini Secretariat, District- Hoshiarpur,
Punjab
152
Contributors
21. Lakshmikantham B., Special Commissioner, L-Block, 7th Floor, AP Secretariat,

Hyderabad
22. Makwana Chandrakant M., Dy. Municipal Commissioner (A), Vadodara Mahanagar Seva
Sadan, Khunderao Market Building, Vadodara, Gujarat
23. Mehta A.K., Joint Secretary, Nirman Bhavan, New Delhi.
24. Meshram Mukesh Kumar, Vice Chairman, Pradhikaran Bhawan, VIPIN Khand Gomti Nagar,
Lucknow
25. Mujumdar P. P., (Prof.) Chairman, Department of Civil Engineering, Indian Institute of
Science, Bangalore
26. Muralidhar, (Dr.) Executive Member, Road No.5, Balaram Nagar, Near Safilguda Railway
Station, Malkajgiri, Secunderabad
27. Murthy Gautam, (Dr.) Professor of Economics, Centre for Indian Ocean Studies, Osmania
University, Hyderabad
28. Murthy M. Krishna, Assistant Commissioner, Corporation of Chennai, Zone-5, E.V.R. Salai,
Chennai
29. Murty M.V. Ramana, Senior Scientific Officer, Andhra Pradesh State Remote Sensing
Applications Centre, Hyderabad
30. Murty P.V. Ramana, Dy. Executive Engineer, Andhra Pradesh State Disaster Mitigation
Society, Hyderabad
31. Nagaraju C., (Dr.) Dy. Director, Revenue (DM) Dept., L – Block, 7th Floor, A.P., Secretariat,
Hyderabad
32. Nayakwadi Sharada, Consultant, Architecture, Building Engineering & Management, Flat
Maguolia, L and T Info city, Gachibouli
33. Papaiah Chinthalapati, Municipal Commissioner, Municipal Corporation Nizamabad,

Nizamabad
34. Prasad Rama M., Additional Director General, Dr. MCR HRD Institute of Andhra Pradesh,
Road No.25 Jubilee Hills, Hyderabad
35. Priyadarshini Y. Indira, Jr. Faculty Member, Dr. MCR HRD Institute of Andhra Pradesh,
Road No.25 Jubilee Hills, Hyderabad
36. Raghu P.V., Head, Centre for Urban Development Studies, Dr. MCR HRD Institute of Andhra
Pradesh, Road No.25 Jubilee Hills, Hyderabad
37. Ragupathy M, Chief Engineer (GL), Chief Engineer Office, Ripon Buildings, Corporation
of Chennai
153
38. Raj Alok, Colonel, FDS, College of Defence Management, Sainikpuri Post,
Secunderabad
39. Raju V.R.K, Executive Engineer, Greater Visakhapatnam Municipal Corporation,
Visakhapatnam
40. Raju Y. Simon, Executive Engineer, Greater Visakhapatnam Municipal Corporation,
Visakhapatnam
41. Ramakrishna A., Assistant Executive Engineer, Andhra Pradesh State Disaster Mitigation
Society, Hyderabad
42. Ramesh K. J., (Dr.) Adviser & Scientist- ‘G’, Ministry of Earth Sciences, Block-12 C. G. O.
Complex, New Delhi
43. Rao A. Narsing, (Dr.) Associate Professor, Geology Department, University College of
Science, Osmania University, Hyderabad
44. Rao Bhasker M., (Dr.) Head, Centre for Disaster Preparedness, Dr. MCR HRD Institute of
Andhra Pradesh, Road No.25 Jubilee Hills, Hyderabad
45. Rao G. Prasada, Senior Scientific Officer, Andhra Pradesh State Remote Sensing
Applications Centre, Hyderabad
46. Rao G. Srinivasa, Dy. Head, Disaster Management Support, National Remote Sensing
Centre, ISRO, Hyderabad
47. Rao Rama Krishna, Jr. Faculty Member, Dr. MCR HRD Institute of Andhra Pradesh, Road
No.25 Jubilee Hills, Hyderabad
48. Rao V. V. S. Gurunatha, (Dr.) Scientist - ‘G’, National Geophysical Research Institute,
Hyderabad
49. Ratnam D. Venkata, Chief Planning Officer, Hyderabad Metropolitan Development
Authority, Greenlands Guest House, Begumpet, Hyderabad
50. Reddy B.S.N., Engineer-in-Chief, Jalasoudha Building, Errum Manzil, Hyderabad
51. Reddy G. Pratap, Additional Director of Fire and Emergency Services A.P., Tankbund Road,
Hyderabad
52. Reddy Jagan Mohan K., (Dr.) Faculty, Dr. MCR HRD Institute of Andhra Pradesh, Road
No.25 Jubilee Hills, Hyderabad
53. Reddy Jeevananda S., (Dr.) Secretary, Forum for Sustainable Development, Jubilee Hills,
Hyderabad
54. Reddy K.M., (Dr.) Director General, Andhra Pradesh State Remote Sensing Applications
Centre and Director (Technical) Andhra Pradesh State Disaster Mitigation Society,
Hyderabad
154
Contributors
55. Reddy K. S. Jawahar, Metropolitan Commissioner, Hyderabad Metropolitan Development

Authority, Hyderabad
56. Reddy M.N., Professor of Geology (Retd.), Geology Department, Osmania University,
Hyderabad
57. Reddy N. Sai Bhaskar, (Dr.) CEO, Geology Energy Organisation, Ramanthapur,
Hyderabad
58. Reddy B. Purushothama, Director of Town and Country Planning, 2nd Floor, Mithri Vihar,
Ameerpet, Hyderabad
59. Reddy V. Venugopal, Chief Planner, Hyderabad Metropolitan Development Authority,
Greenlands Guest House, Begumpet, Hyderabad
60. Sailesh M.V., Faculty, Disaster Management, AP, Academy of Rural Development,
Hyderabad
61. Sharma Anil, (Brigadier) Head of Faculty, College of Defence Management Sainikpuri P.O.
Secunderabad
62. Sharma C. V. S. K., (Dr.) Principal Secretary, Department of Municipal Administration and
Urban Development, Government of Andhra Pradesh, Hyderabad
63. Sharma P.S.R., Technical Training Instructor (EME), EMC ‘C’ Bolarum, Hyderabad
64. Shastri K.S., Former Professor, Indian Institute of Technology, Kharagpur
65. Singh S. P., Commissioner and Special Officer, Greater Hyderabad Municipal Corporation,
Hyderabad
66. Srinivas M.K., Superintending Engineer, K.G. Bhawan, A.C. Guards, Hyderabad
67. Tyagi S.B., Director, Meteorological Centre, Hyderabad Airport, Hyderabad
68. Vanjari Shivkumar Ramchandra, Deputy Engineer (Civil), Nashik Municipal Corporation,
Rajeev Gandhi Bhavan, Nashik
69. Venkataramana P., District Fire Officer, Gowliguda Chaman, Gowliguda, Hyderabad
List of Participants who attended the Regional Workshop at New Delhi

and State level Workshops in different States
Shri M. Shashidhar Reddy, MLA and Member, NDMA Chairman

Dr. Kapil Gupta, Professor, Department of Civil Engineering, Convener
Indian Institute of Technology Bombay, Mumbai
1. Antony Mini, Commissioner, Department of Disaster Management, Government of
Kerala
155
2. Antony T. T., Additional Secretary, Department of Disaster Management, Government of

Kerala
3. Apte N. Y., Deputy Director, General Meteorology (H), India Meteorological Department,
Lodi Road, New Delhi
4. Barot Pranav U., Chief Fire Officer, Ahmedabad Municipal Corporation, Ahmedabad
5. Bera T. K., Vice-Chairman, Ghatalpur Municipality, Ghatalpur
6. Bhadram C. V. V., (Dr.) Deputy Director, Regional Meteorological Centre, Mumbai
7. Bhardwaj P. C., Public Health Engineer, Town and Country Planning Organisation, Ministry
of Urban Development, New Delhi
8. Binod Kumar, District Magistrate, 24 Parganas (North), West Bengal
9. Devi Sathi K., Director, Regional Meteorological Centre, Mumbai
10. Dhara P. K., Director General (Civil), Kolkata Municipal Corporation, Kolkata
11. Diwan R. C., Ex. Engineer, Chandigarh Municipal Corporation, Chandigarh
12. Gajbhiye Kishore, Addl. Municipal Commissioner, Municipal Corporation of Greater
Mumbai, Mumbai
13. Gandhi Dipak C., Executive Engineer, Surat Municipal Corporation, Mughalsarai, Surat
14. Gaur R. K., Assistant Commander, Department of Food and Supply, National Capital
Teritorry of Delhi
15. Gautam I. P., Municipal Commissioner, Ahmedabad Municipal Corporation, Ahmedabad
16. Ghosh B., Deputy Commissioner, Kolkata Armed Police, Kolkata
17. Ghosh Shantanu, Director, Disaster Management Department, West Bengal
18. Goswami Anjali, Director, Town and Country Planning, Government of Assam
19. Gupta Aseem, (Dr) Municipal Commissioner, Aurangabad
20. Hasan Md. Ali, Executive Officer, Burdwan Municipality, West Bengal
21. Ishwarlal, Chief Fire Officer, Jaipur
22. Jagadale S. Prabhakar, Assistant Municipal Commissioner, Kalyan Dombivali Muncipal
Corporation, Kalyan
23. Jha S., Chairman, Kalyani Municipality, West Bengal
24. Jindal N. K., M.E, Municipal Council of Panipat, Panipat
156
Contributors
25. Katara N. K., Superintendent Engineer, Municipal Corporation of Faridabad, Faridabad

26. Khadake S. D., Dy. Commissioner, Nasik Municipal Corporation, Nasik
27. Khadia Jayesh N. Secretary, Ahmedabad Municipal Corporation, Ahmedabad
28. Kumar Ramesh M., Principal Secretary, Relief and Rehabilitation, Mantralaya, Mumbai
29. Mahajan Dilip (Capt.) Dy. Municipal Commissioner, Ahmedabad Municipal Corporation,
Ahmedabad
30. Maitra Himadri, Disaster Management Officer, Directorate of Disaster Management,
Government of West Bengal, Kolkata
31. Makwana D. B., Dy. Municipal Commissioner, Ahmedabad Municipal Corporation,
Ahmedabad
32. Manna S., Urban Planner, Howrah Municipal Corporation, Howarh
33. Mazumdar G., Sub-divisional Officer, Ghatalpur Sub-Division, Midnapur
34. Mazumdar Rupak Kumar, Joint Secretary, Revenue and Disaster Management Department,
Government of Assam
35. Meena M. L., Principal Secretary Disaster Management Department, West Bengal
36. Mhaiselkar Deepak, (Dr.) Municipal Commissioner, Nanded
37. Mitra B. K., Chairman, Barrackpore Municipal Corporation, West Bengal
38. Mohanty S. C., Director and OSD, Disaster Management Unit, Mantralaya, Mumbai
39. Molas D. S., Dy. Commissioner, Pune Municipal Corporation, Pune
40. Mukherjee K., Deputy Director, Kolkata Municipal Corporation, Kolkata
41. Patel Mahendra, Dy. Municipal Commissioner, Ahmedabad Municipal Corporation,
Ahmedabad
42. Patnigere A. R., Dy. Commissioner, Navi Mumbai Municipal Corporation, Navi Mumbai
43. Pillai N. Sudarshan, Additional Secretary, Urban Affairs, Government of Kerala
44. Pillai V. Gopalakrishanan, Senior Town Planner, Cochin Municipal Commissioner, Cochin
45. Pipersania V.K., Principal Secretary, Government of Assam, Guwahati
46. Priyadarshini G.D., Assistant Commissioner, Disaster Management, Andhra Pradesh,
Hyderabad
47. Raju K. N., Assistant District Magistrate and Dy. Collector, Thrissur Corporation, Thrissur
48. Ramesh K. J., (Dr.) Adviser & Scientist-’G’, Ministry of Earth Sciences, Block-12, CGO
Complex, New Delhi
157
49. Raut Sandeep Kumar, (Dr.) Associate TCP (URIS Division), Town and Country Planning
Organisation, New Delhi
50. Raute P. M., Dy.Commissioner, Amravati Municipal Corporation, Amravati
51. Roy Arnab, Special Secretary, Municipal Administration Department, Kolkata
52. Saikia Preetam, Chief Executive Officer, Guwahati Metropolitan Development Authority,
Guwahati
53. Santhosh K., Director Greater, Cochin Development Authority, Cochin
54. Sethuraman R., Adviser (PHEE), CPHEEO, Ministry of Urban Development, New Delhi
55. Sharma M. P., Joint Commissioner, Guwahati Municipal Commissioner, Guwahati
56. Shetty Prasad, Urban Manager, JNNURM, Mumbai Metropolitan Region Development
Authority, Mumbai
57. Shetty S. C., Assistant Commissioner Police, Police Main Control, Mumbai
58. Shrivastav P. P., Member, North Eastern Council (NEC), Shillong
59. Srinivas R., Associate Town and Country Planner, Town and Country Planning Organisation,
New Delhi
60. Sundaran Arasu., (Dr.), Faculty of Disaster Management, Anna Institute of Management,
Chennai
61. Thakur Manish, Commissioner, Guwahati Municipal Corporation, Guwahati
62. Unhale Sameer, Municipal Commissioner, Ulhasnagar Municipal Corporation,
Ulhasnagar
63. Verma Sunil Kumar, S.E. (Monitoring), Ministry of Shipping Road Transport & Highways,
New Delhi
64. Vijayan M., Deputy Mayor, Kozhikode Municipal Corporation, Kozhikode
65. Zalavadia T. G., Dy. Municipal Commissioner, Ahmedabad Municipal Corporation,
Ahmedabad
158
Contact Us
For more information on these Guidelines for Management of Urban Flooding
Please contact:
Secretariat of
Sh. M. Shashidhar Reddy, MLA and Member
NDMA Bhawan
A-1, Safdarjung Enclave
New Delhi 110 029
Tel: +91 11 2670 1704

Fax: +91 11 2670 1706
Email: uf.ndma@gmail.com
Web: www.ndma.gov.in
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National Disaster

Management of Urban Flooding

Management of Urban Flooding

National Disaster Management Authority

2 Institutional Framework and Arrangements 14

3 Early Warning System and Communication 26

3.5 Regional Networks 27

4 Design and Management of Urban Drainage System 40

5 Urban Flood Disaster Risk Management 54

7.9 Challenges to Evolve Disaster Response Capability 95

8 Capacity Development, Awareness 98

9 Implementation of the Guidelines:

10 Summary of Action Points 124

New Delhi General NC Vij

New Delhi M. Shashidhar Reddy, MLA

AICTE All India Council for Technical Education

EIA Environmental Impact Assessment

NATMO National Thematic Mapping Organisation

Backwater courses, streams, rivers, lakes, and wetlands.

Drainage Basin Floodplain

Overview Urban areas are centres of economic

Urban flooding is significantly different Urban Flood Risk in India

flooding is by setting up a vulnerability-based recommendations have been made for

Gist of Some of the Key Action Points

1.1 Overview flooding occurs very quickly due to faster flow

1.3 Contributory Factors

Meteorological Factors Hydrological Factors Human Factors

• Rainfall • Soil moisture level • Land use changes (e.g. surface

1.4 Trend of Urbanization in population. Urban population is projected to be

Table 1.2: Trend of Urbanization in India

1.5 Census Towns proper representation, the Census also provides

1.7.4 Western Disturbances 1.7.7 Interaction of Trough in the

II. Intensity of Rainfall

*Value in brackets is average annual rainfall in mm

Monthly Variability of Rainfall in some Important International Cities in mm

*Value in brackets is average annual rainfall in mm

Whenever the rain bearing clouds pass over

1.10.1 Urban Heat Island Effect and

1.12.3 Cities on Major Rivers Sometimes, habitations in hilly areas comprising

1.12.5 Inland Cities 1.13.2 A nine-step process has been followed

International Indo-US Workshop on “Urban Flood Disaster Management:

The Workshop provided valuable inputs to the Guidelines on these issues.

2 Institutional Framework and

2.1 Institutional Framework disasters as may be determined by the central

of measures and programmes considered 2.2.1 Ministry of Home Affairs

MoUD has launched various programme 2.2.2.2 Urban Infrastructure Development

3 Early Warning System and

3.1 Overview the network density is insufficient and national

3.4 National Meteorological iii) ISRO Network over NE India – 80

i) IMD will set up a ‘Local Network Cell’ in the IMD headquarters,

3.7 Doppler Weather Radars 3.7.3 The advanced meso-scale numerical

v) An appropriate redundancy plan for and generate a most representative rainfall

3.15 Decision Support System generated from mathematical models.

Table 3.2: Flood Management Decision Support System

S. No. Category of Flood Warning Impact/Action

1 None No threat of flood • normal functioning of the urban system

4 Major Inundation of large • requires evacuation of houses

Flood Level at Location

1. < R2L < FL2L None Normal