Dfa nepal position paper

DISASTER RISK REDUCTION IN NEPAL

Flood, Banke District, 2006 Landslide, Kaski District, 2006

Earthquake, Bhaktapur District, 1934 Fire, Terhathum District, 2006

Road to Resilience to Disaster: Realizing HFA in Nepal

A NATIONAL POSITION PAPERJuly 2008

POSITION PAPER

1.0. Introduction

This world that we live in is being struck by disasters since time immemorial. But the frequency of the disasters and the number of deaths has increased phenomenally in the recent times. For example, in the last decade, 901177 people lost their life but in the decade earlier to the last one, the number of deaths was 643418 only. South Asia has been the world’s most disaster prone region. The occurrence of earthquake in Pakistan killing 73000 people in the year 2001 followed by several deaths in the wake of Tsunami reflects this reality. In South Asia also, Nepal suffers the most when judged by the number of deaths compared to the number of affected persons by disasters as shown below. The proportion of number of deaths to the number of affected persons of Nepal is the highest in the SAARC region.

Table 1.0. Ratio of the dead and the affected persons in disastersCountry 1983-92 1993-2002Bangladesh 007 0.02Bhutan No data No dataIndia 0.01 0.01Maldives Not available Not availableNepal 0.25 0.34Pakistan 0.03 0.07Sri Lanka 0.01 0.02Source : World Disaster Report

2.0. Disasters in Nepal

Nepal faces diverse disasters. These are Flood and Landslides, Fires, Epidemics, Windstorm, Hailstorm, Thunderbolt and the Earthquake. But it is the earthquake, which towers over the rest of its mates when evaluated in terms of the number of deaths. One can see the coverage of disasters that has taken place in the last two decades.

2.1. Landmarks in Disaster Management in Nepal

Nepal has been facing disasters since a long time. The disasters were managed in an ad-hoc basis in the past. It was in the year 1982 that disaster management in Nepal took an institutional turn after the enactment of Natural Calamity Act (NCRA, 1982). Nepal was a pioneer in this sense because no other countries had such an Act not only in the South Asian but also in the whole of the pacific region. But Nepal reenacted the Hair and the Tortoise story by taking a nap in the following years. Whilst the countries in the neighborhood have made considerable advance, Nepal still finds itself lagging far behind in the arena of disaster management. The entry of UNDP in the disaster scene created awareness about the disasters, which was otherwise in shadow till then. Some of the other important steps taken in the arena of Disaster Management in Nepal are as follows.

Year Steps taken for Institutional development1982 Enactment of the Natural Calamity Relief Act ( NCRA)1984 Study by UNDP about threats of disaster and study about the need of foreign help1987 Establishment of a Unit under the Ministry of Home Affairs related to disasters1989 First Amendment of NCRA, 19821990 A study Report about Strategy for Training on Disaster Management1990 Formation of a National Committee to celebrate the decade of 1990 as an International

Disaster Reduction 1991 Preparation of Comprehensive Disaster Management Plan1992 Second Amendment of NCRA, 19821993 Organization of a 15 day Training for Government Officers by the Government in

collaboration with UNDP/DHA1993/94 A two week training on disaster Management organized on the request of the MoHA

by USAID and ADPC, Bangkok1994 Preparation of action plan with the help of UNDP, Nepal1996 Beginning of capacity building program for Disaster Management in Nepal by UNDP2001 Establishment of a Department of Narcotics Control and Disaster Management2003 Disaster Impact Assessment made mandatory in the Tenth Plan Document in the

execution of a Development Project2004 The Department of Narcotics Control and Disaster Management reduced to a simple

Branch 2005 Participation in the Hyogo Conference2007 Preparation of the Drafts of the Act, Policy and Strategy on Disaster Management in

Nepal

3.0. Ongoing Initiatives

Initiatives in Disaster Risk Management are taking place in three fronts in Nepal. Firstly, they are in the Governmental level, secondly on the United Nations Level and thirdly on the I/NGOs level.

3.1. Government initiatives towards Disaster Management

The Government of Nepal carries out the disaster management activities through the mobilization of the Ministry of Home Affairs. It is the umbrella institution in Nepal, which is responsible for the disaster management in Toto. It operates through the enforcement of the Natural Calamity Relief Act, 1982 which is more biased towards rescue and relief despite two amendments made in the Act since its enactment in the year 1982. MoHA is without any parallel in the rescue operations but its performance pales dramatically in preparedness, reconstruction and recovery. There is a widespread realization that

there should be a separate Umbrella Institution to address disaster management in a holistic manner. Ministry of Local Development and the Ministry of Physical Planning and Works have been identified as more effective ministries than the Ministry of Home Affairs in the areas of preparedness as well as reconstruction and rehabilitation. Consequently, a new Policy and Act has been drafted by Nepal Centre for Disaster Management in collaboration with Oxfam GB, making the provision of a Nepal Disaster Management Council with three important Committees such as Preparedness Committee, Rescue and Relief Committee as well as Reconstruction and Rehabilitation Committee under the Chairmanship of the Minister for Local Development, Minister for Home Affairs and Minister for Physical Planning and Works respectively.

After the occurrence of disaster, the local police personnel inform the Chief District Officer and the Chief District Officer apprises the Disaster Unit in the Ministry of Home Affairs. The Secretary of Home Affairs is the following recipient of the disaster news who informs the Minister for Home Affairs. Depending upon the scale of the disaster, the Secretary calls a meeting of the Central Disaster Relief Committee or initiates the rescue and relief activities as necessary. It is generally found that the disaster victims of stray incidents have to wait for long to receive what is a token relief amount due to the paucity of fund. The Chief District Officers in such situations direct the victim to seek assistance from the Nepal Red Cross Society or the I/NGOs.

The Government is seeking to enact a new Act on Disaster Management. In addition, it is also initiating efforts towards the approval of the drafted strategy. There are some other Acts and Policies which address the Disaster Management in Nepal in addition to the Natural Calamity Act 1982 and they are :

National Action Plan Soil and Watershed Conservation Act

1962 Building Act ( 1987) and Building

Construction Code (1994) Water Resources Act 1992 Forest Act 1993 National Water Plan River Control Policy

Biodiversity Strategy 2002 National Adaptation Program of Action Water Induced Disaster Management

Policy 2006 Environment Protection Act 1996 Local Self Governance Act 1998 Watershed Management Policy 1993 3 Year Interim Plan

The other Government actors are the Ministry of Local Development, Department of Water Induced Disaster Prevention, Divisional Irrigation Office and Department of Soil Conservation and Watershed Management.

3.2. UN initiatives

UNDP and UNOCHA are working in this direction. Whilst UNDP has been carrying out this work since a long time, UNOCHA has recently entered into the scene. ECHO is the another actor making contribution in this area presently.

3.2.1. UNDP

The involvement of UNDP in the disaster management began with disaster management planning at all the levels leading to the offer of assistance for an institutional support to disaster prevention and relief plan beginning from the year 1987 which continued till the year 1991.

It was followed by post disaster relief and rehabilitation activities. Under its fold are, firstly the technical assistance for road flood rehabilitation, which started from the year 1988 and it continued till the year 1993. Secondly, Post earthquake emergency reconstruction and rehabilitation program was another campaign of UNDP in Nepal which again beginning from the year 1989 continued till the year 1994. Thirdly, a support for disaster relief and rescue activities was made in the year 2004. Fourthly, a BCPR supported flood and landslide response project is underway at the present.

For the strengthening of the institutional and legal systems, several efforts were made. These included policy and technical support for the Urban Sector (1990-1994) , Disaster Risk Reduction at the National Level in Nepal ( 2006-07), and BCPR PA for adoption of Hyogo Framework for Action ( 2006).

The capacity building for Disaster Management was undertaken beginning with upgrading disaster management capacity in Nepal (1996-98) and strengthening Disaster Management Capacity in Nepal (2003-05).

The Community Level Disaster Management Mitigation and Preparedness was initiated with the launching of Participatory Disaster Management Program (2000-04) and Community based Disaster Management Project (2005-07).

Lastly, the Disaster Information System was strengthened through DisInventar I and II Phase. The I phase was implemented under the strengthening of disaster Management Capacity in Nepal Project (2003-05).

Some of the key outcomes of the aforementioned efforts were

Sectoral Working Groups (Health, Logistics and Food as well as agriculture) formed in 1993 for effective disaster preparedness and response

First National Action Plan on Disaster Management prepared in 1996 Building guidelines developed for hazard resistant construction as early as1994 DP-Net, A network of all key players in the disaster management sector established

(1994) and supported. First ever District Disaster Management Action Plans prepared for five most hazard

prone districts Integration of disaster indicator in the poverty monitoring assessment system

(PMAS), formulated by the National Planning Commission Interaction programs on incorporation of disaster risk reduction in development

planning supported at the national and regional levels Support provided to DIPECHO partners' Coordination forum Community level models for disaster mitigation created in most vulnerable districts DisInventar database established of disaster events in Nepal of more than three

decades (1971-2003) National Report on Disaster Management presented in the World Conference on

Disaster Reduction in Kobe, Japan in January 2005

The Community based disaster management Project has not been making expected headway because of problems arising out of the coordination with the Government. Working with the Government has been rather difficult during the last few years in particular due to immediate post conflict period underway in the country.

3.2.2. UNOCHA

The main approach of UNOCHA has been to achieve disaster preparedness for effective response. The working mandates are advocacy, coordination and capacity building. It seeks to

Strengthen the risks, hazard and vulnerability mappings on different disaster themes. Institutionalize Disaster Information Management System (DIMS) at national and

regional level Institutionalize the Emergency Customs Clearance Procedures Establish National Emergency Operation Centre (EOC) Incorporate Climate Change issues in humanitarian as well as development programme Mitigate the flood inundation problems along Nepal and India border (terai) Improve coordination mechanism for mitigation and prevention activities Ensure the interactive forum for regional/ international humanitarian actors (SAARC–

DMC, BCPR, ICIMOD, DiPECHO, ISDR, ADRC, ADPC etc…) Establish the functional National Platform (NP) for the HFA implementation at national

levels Strengthen the early warning systems for pertinent hazards and predictable natural

disaster events

UNOCHA can provide within 24 hours initial survival assistance in the form of food aid, health care, water and shelter for 200.000 people for a week. This could extend to providing relief for up to 500,000 people for a month (See World Disaster Report, 2002, Countering the Risks of a Kathmandu quake, p 120, International Federation of Red Cross and Red Crescent Societies.)

3.3. European Commission

ECHO is yet another actor making substantial contribution in the area of disaster management in Nepal. It began its disaster management Program DIPECHO from 1996. It realized the vulnerability of South Asia to disasters and started a DIPECHO first action plan in 2001. What followed was an assessment of the action plan, which recommended to

Strengthen the interventions at local community level with a strong participation Eliminate and streamline certain procedures which strongly dilute the impact Concentrate on a country based approach except if a particularly vulnerable region

belonged to several centers Undertake a real coordination effort, exchange information and good practices follow

up of projects

ECHO then invited proposals giving preference to Bangladesh, Nepal and the north part of India. Accordingly, the following proposals have been accepted and the works are making a headway. Following Districts are covered under DIPECHO Initiatives Chitwan, Nawalparashi, Bankey, Bardiya, Kailali, Sarlahi, Makwanpur, Rupandehi, Udayapur, Sunsari, Kathmandu, Bhaktapur and Lalitpur, Mahottari and Dhanusha, Kapilbastu, Nawalparashi, Mahottari, Dang and Doti

3.4. INGOs and NGOs

The body of INGOs are the ones to quickly reach the disaster sites. However, the response activities are limited mainly on the rescue and relief works. In the last few years, it has demonstrated the success model of the “Community Based Disaster Preparedness (CBDP) Programme” in the areas affected from the landslides and floods. Most of other international organizations join with Nepal Red Cross in the time of disaster relief works to avoid duplication.

Among them, Oxfam is committed to support poor and disadvantaged people to bring about positive and sustainable change and reduce their vulnerability to flood disaster through the river basin program. Oxfam has a long term program to improve the livelihoods of vulnerable people living in Terai region using the rights-based approach.

Lutheran World Service Nepal has Disaster Preparedness Project since 1996 focusing on disaster preparedness, response and mitigation at the grassroots level. These activities are Community Based Disaster Preparedness (CBDP), strengthening of strategic relationships, building cooperative partnerships and launching School Earthquake Awareness Training (SEAT) program. Recently, it has extended its Disaster Preparedness Project in several districts. Danish Christian Aid (DCA) is a core member of the Lutheran World Federation (LWF).

ActionAid Nepal is responding to emergencies such as flood and earthquake disasters but is limited to relief and rehabilitation to date. It is gradually shifting its priorities, along with relief and rehabilitation, to preparedness and capacity building of community-based organizations to cope with disaster situations. Committed to Rights-based approach, it is working primarily in community-based disaster preparedness, disaster risk reduction through school, school safety, and safety-net campaigns in line with Hyogo Framework of Action and MDG.

The United Mission to Nepal (UMN), as one of the largest non-government service agencies in the country has large number of skilled manpower and effective facilities, which can be helpful in any disaster response situation. 

After the 1993 floods, landslides and debris flows, UNDP established a full time UN Disaster Management Secretariat (UN-DMS) to support Nepal Government's disaster response efforts. The major objectives of the program are to increase disaster management capacity of the government agencies, and I/NGOs, the disaster-affected communities, and to assist to UN Disaster Management Secretariat Communities.

The major disaster management work under ICIMOD includes regional workshops, trainings, hazard mapping using GIS and preparation of a Climatic-Hydrological Atlas of Nepal using available information. ICIMOD initiated the regional cooperation on the disaster management programme since 2002.

Care Nepal is widely involved in agriculture and natural resource management programs focusing on the livelihoods of disaster-affected people within the flood- and landslide-prone areas. More specifically, it has been implementing the watershed management program in the Terai and the middle hills with a primary focus to reduce impacts of landslides/flood disasters. CARE also has some works in the flood mitigation and preparedness.

Practical Action is a UK-based INGO with main focus on establishing use of appropriate technology by demonstrating and disseminating knowledge and influencing decision-makers. It is piloting early warning systems (EWS) for flood and landslides in selected areas of Banke, Bardiya, Chitwan and Nawalparasi districts.

United States Office for Disaster Assistance (US/OFDA) and Disaster preparedness of European Commission Humanitarian Aid department (DIPECHO) have been providing financial assistance to run several disaster-related programs in South Asia. It has been channelling these assistances also through international organizations such as DFID and AusAid as cosponsors. Donor agencies such as World Bank, Asian Development Bank, and OPEC Fund are also involved in flood management through their loans in the Irrigation and Flood Protection Sector.

Non-governmental Organizations (NGOs) and networksThere is handful of NGOs working in disaster sector in Nepal. Among them, National Society for Earthquake Technology-Nepal (NSET-Nepal) is a very active NGO working admirably in the field of earthquake safety and preparedness with the mission of assisting all communities in Nepal to become earthquake safer by developing and implementing organized approaches. Similarly, National Centre for Disaster Management (NCDM), ECO-Nepal, Nepal Geologic Society (NGS), Nepal Landslide Society (NELS), Natural Disaster Management Forum (NDMF), Friends Service Council Nepal (FSCN), Institute of Engineering (IOE), Nepal Engineering College (NEC), Disaster Preparedness Network (DPNET), Disaster Management Action Network Nepal (DiMaNN), and Task Group on Disaster Management (TGDM – within AIN) are other important NGOs and their networks with some significant works under their belts.

4.0. Achievements made under HFA

Nepal has participated in the Hyogo Conference and it has shown its full commitments to its framework for action. Accordingly, some works have been initiated in this direction. These are

• Developing policy ownership and securing priority at the national polity• Effective integration of disaster risk considerations into national development framework• Development and strengthening of institutions, mechanisms and capacities at all levels of

disaster response, and in particular at the community level • Developing educational, scientific and technological support systems

• Systematic incorporation of risk reduction approaches into emergency preparedness, response and recovery

• Persuasive and collaborative partnerships at all levels: regional and international, national and community, government and non-government

4.1. Ensuring that risk reduction is a national and local priority with a strong national basis for implementation

Disaster Management has been given national priority by including it in the Three Year Interim Plan Document for the first time. In the past, it did not appear as an issue in the Five Year Planning Documents. The key achievements are

• Tenth Plan and PRSP priority: Mainstreaming and sectoral interventions• Integration into local self-governance act and the development planning system• National Strategy for Disaster Risk Management in process• Participatory exercise for a National Platform on Disaster Risk Reduction• Disaster programming by Central Disaster Relief Committee• New Act on Disaster Management in exercise with a focus on developing strong national

and community level institutions• Community based disaster management initiatives

4.2. Identify, assess and monitor Disaster Risk and enhance early warning

Disaster Risk Assessment has been initiated for floods, landslides and earthquakes. For example, the disasters risk due to earthquake has been assessed especially for the Kathmandu valley. Similarly, Department of Water Induced Disaster Prevention has identified five most vulnerable districts (River Basins) with respect to flood and landslides. In addition, the following steps have been initiated.

• Central Disaster Relief Committee has improved the criteria and methods for disaster risk assessment

• Guidelines for effective preparedness to disaster risks• Seismic vulnerability assessment of major hospitals/drinking water supply network• Municipal earthquake risk management• Information sharing at national, district and community levels on disaster risks• Disaster Preparedness Network in action ( DPNet)• Awareness campaigns and community level early warning system applied through

community based disaster risk management programmes• Pre-disaster seminars at national and community levels for disaster risk assessment and

early preparedness• Weather forecasting and monitoring system

4.2.1. Early Warning System for Flood

Department of Hydrology and Meteorology has established a real data forecasting system for GLOF and floods. Similarly, Practical Action has erected one flood early warning tower in Chitwan and it is going ahead with the construction of yet another tower in Nawalparasi district. Besides, several other INGOs and NGOs are going ahead with the promotion of suitable early warning system for local level based on indigenous practice which includes new innovation and research.

4.3. Use knowledge innovation and education to build a culture of safety and resilience in all levels

Disaster Management has been included in the School curriculum through Action Aid Nepal. A Master course on Disaster Management is being opened in Nepal Engineering College. DAV School have been offering a course on Disaster Management in collaboration with IGNOU. Center for Disaster Studies has been opened in the Institute of Engineering which is carrying out research and dissipating through the mobilization of the students. One student is carrying out research in Doctoral level. Khwopa Engineering College is offering Master Course on Earthquake Engineering.

In addition to them the following works have been carried out: • Community based disaster risk management programme• School safety programme• Behaviour change communication through media and training, seminars and interactions• Earthquake safety day / ISDR campaigns• Integration of disaster risk reduction into school curricula• Publication of IEC materials at national and local levels• Disaster Watch web site to update disaster events in Nepal• Dynamic website on 'Disaster' and Disaster Information Centre at local government level

is in progress• Several HFA sensitization workshops held at district level• Community level vulnerability Analyses resulting in the formation of local level disaster

preparedness plan • Translation and dissemination of HFA in Nepali

4.4. Reduce the underlying risk factors

Several efforts have been made towards the reduction of the underlying risks at community as well as national level. These include

• Enforcement of 'Building Code' and safety requirements by Municipalities• EIA and IEE• Relocation of at-risk communities in process• Retrofitting of public buildings• Hazard mapping and Vulnerability mapping is in progress at district level• Fire Brigade operation responsibility transferred to the municipal authorities

4.5. Strengthen disaster preparedness for effective response at all levels

Several steps have been taken to strengthen disaster preparedness for effective response at different levels. These are

• Prime Minister Disaster Relief Fund, Central Disaster Relief Fund and District Disaster Relief Fund

• Disaster preparedness programme budget at national and district levels• National guidelines reviewed and put into force

• Planning and simulation exercises at national and local levels• Kathmandu Valley earthquake preparedness initiatives• Seminars and workshops at all levels• Disaster preparedness and response action plan at local level• Community level disaster risk management/ flood management programme• Pre-positioning of emergency rescue stores• Community Level Preparedness for Glacier Lake Outburst Flood• Model agreement with UN OCHA for emergency response• Programme for Enhancement of Emergency Response-Training on

• CSSR• MFR• HOPE

5. Issues, Challenges and Experiences

The first issue is one of coordination. It has improved much when compared to the past but there are still rooms for improvement. At the present, CDRC and DDRC have been coordinating in the Government level. In the I/NGO level it is the AIN group. The IASC cluster approach has been adopted in the UN System. It is the DPNet which has been trying to coordinate all of them. It is hoped that the National Platform will also serve very effectively in this regard.

The challenges are

Governance Challenges Peace building process and political stability: determinant to political priority Developing a competent national institution with decentralized system of

functioning Utilization of international and regional cooperation Inadequate legal instrument and weak enforcement Lack of visible and persuasive role by local self-governing bodies Inclusion of

Gender, other vulnerable groups (OVG) and minorities Frequent Change of trained and Dedicated human resources Political manipulation

Socio-cultural/Behavioural Challenges Culture of submission to divinity and lack of resilient culture Conventional pattern of human settlement Complacent and non-demanding society Lack of environment-friendly society Inadequate behaviour-change communication Natural resource dependency trap Response centered coordination

Methodological Challenges Lack of scientific data, disaster mapping and micro-zonation National documentation and information system on disaster is lacking Unpredictability due to climate change Sustainability of technological applications Linking inter agency activities Inventories of Stockpiling System and physical facilities Information Management

Organizational Specific Assessment system Reluctance to share information Incorporation of Indigenous Knowledge Consolidation and verification of information

Economic Challenges Widespread poverty and livelihood problems Weak capacity of national treasury to adequately fund disaster risk reduction Maintenance and reconstruction of developmental infrastructures

6. Forward Moving Strategies: Priority Actions

Though there have been significant improvements in disaster management in Nepal when compared to the past lot remains to be done in the days to come. Some of the efforts to be made in the future can be as follows:

• A nationally-owned and practical national strategy on disaster risk reduction to implement HFA

• Mainstreaming disaster risk reduction into national and local level planning, implementation, monitoring and evaluation frameworks

• Strong institutional base for effective response to disaster risk preparedness and reduction: Networked, decentralized, entrepreneurial, collaborative, professional and virtual

• Strengthening prevention and preparedness: systems, mechanisms, methodologies and actions

• Scientific, educational and technological interventions• Behaviour-change interventions• Reconstruction, recovery, relocation and rehabilitation• Sub-regional, regional and international cooperation and collaboration

7. Conclusion

It can be seen that HFA works are going on in three levels in Nepal and they are effort, output and outcome level. The achievements in the outcome level are a few at the present because the country is passing through a post conflict and state restructuring phase. But it is felt that the efforts made at the present will demonstrate very effective results as soon as the country passes through this interim phase.

Nepal will continue to face the challenge emerging out of the inadequacy of resources, knowledge and technology to realize the objectives of HFA in totality. The cooperation among the SAARC countries as well as the international community is indispensable in this regard. The disaster management activities will be further enhanced if there is a proper coordination between the regional networks and the civil society movements in an outside Nepal.

AnnexEarly Warning System for Landslide and Debris Flow

An Early Warning System has been developed using a siren system through the Centre for Disaster Studies, Institute of Engineering (See Science Reporter, 2007) for landslides and debris flow. This system costs Rs 12000 where the power is available locally and Rs 35000 where solar cells have to be used in places of the unavailability of conventional power. The technology consists of running an electric circuit along vulnerable areas invariably gullies connected to a siren along the lines of a burglar alarm. Before there is a landslide, a crack occurs in the ground and the circuit breaks following, which the siren goes off the air before considerable period of time. People can take shelter in an earlier identified spot before it is engulfed by the debris flow. In 2002, 18 people lost their life due to debris flow in Matatirtha, a place about 15 Kilometer away from Kathmandu. Had this system been installed in this place, people would have known before 9 hours and no casualty would probably take place. According to the local people, a noise had been heard around 6 pm and the debris flow engulfed the site at the following 3 am.

INSTALLATION OF THEINSTALLATION OF THEEARLY WARNING SYSTEMEARLY WARNING SYSTEM

2.8.4. Demonstration for early warning system

Early Warning System for Earthquake using a snake yard

For the successful prediction of earthquake, a proposition has been made to erect snake yard in the agricultural farms of Nepal located in Nepalgunj, Bhairahawa in the western Nepal, Birgunj, Kathmandu in the central Nepal and Jankapur as well as Tarahara in the eastern Nepal. It consists of an office building flanked by a diurnal yard which, will be occupied by diurnal snakes (snakes that come out in the open in the day time) and nocturnal yard, which will be occupied by nocturnal snakes). In the hibernation period spanning from October to January if the snakes come out, the earthquake will occur with epicenter in the western, central or eastern Nepal depending upon heightened snake activities in the respective agricultural farms. In the period between February and September, if the snakes come out in the daytime in the nocturnal yard then it is a

harbinger of the earthquake. If they come out in the nighttime in the diurnal yard, it is an indication of the occurrence of the earthquake. The snake yard has been proposed as it can function with the revenue obtained from the venom abstraction. Moreover, snakes are the most sensitive of animals in earthquake. It has been found that some 1.5 million Rupees can be earned by rearing thirty snakes, 15 in the diurnal and 15 in the nocturnal yard.

3.0. Disaster Management in Nepal

Disaster Management has been recognized as a trinity consisting of disaster preparedness, rescue and recovery. An assessment of the disaster management should make an evaluation of all these three phases in order to project a holistic scene of disaster management in Nepal.

3.1. Preparedness

The Ministry of Home Affairs is supposed to hold a meeting of the Central Disaster Relief Committee before the likely beginning of any disaster. For the fire it is February and March and for the flood as well as the landslide it is the month of June. Accordingly, the District Disaster Relief Committee should also hold a meeting to put the whole machinery in full alert. But the Ministry of Home Affairs finds very little time to hold the meeting and sometimes the meetings are not held. Similar is the situation in the Districts. The Chief District Officer has to chair more than forty committees and hence the CDO who is the Chairperson of the District Disaster Relief Committee finds very little time and thus the meetings are seldom held.

Nepal Centre for Disaster Management (NCDM) had been holding Monsoon Preparedness Workshop since the year 2002 in Kathmandu in collaboration with the Ministry of Home Affairs with the participation of most of the institutions and individuals working in this area attend the workshop. The Workshop focused on the review of last year's disaster management activity and the analysis of strength and weakness. The Workshop ended with recommendations, which are sent to the CDOs of all the seventy-five districts through the Ministry of Home Affairs. The CDOs hold the meeting of the District Disaster Relief Committee to alert the disaster management machinery. But this year, with the support of DPNet such workshops were held in all the flood prone southern districts of Nepal. The objective was to standardize the Rapid Assessment Forms and Kits but this task is taking rather long due to many agencies having their format and inability to agree to one single format.

For the flood, the Department of Water Induced Disaster Prevention distributes the gabion wires and the Village Development Committees erect an embankment to deter the bank erosion likely by the river. The INGOs also invest some amount in such a joint undertaking. 3.2. Disaster Response

The disaster response is carried out generally with respect to the flood, landslide and fire because of their annual occurrence. The flood and landslide occur annually and hence scenario of the disaster management of flood and landslide is presented here. Nepal Red Cross is the institution, which is working in this area since a long time having presence in all the seventy five districts in Nepal and hence the disaster response in the country at times appears as virtually Nepal Red Cross Society's solo performance.

3.2.1. Disaster Management of the year 2006

In the year 2006, the country was dealt a fatal blow by landslides and floods, in 27 of its districts in general and in some of the districts located in the western part of Nepal in particular such as Banke, Bardia, Achham and Mugu where 84 people lost their valuable lives, 69 went missing and

33 were injured. A total of 93,922 people from 16,003 families were severely affected by the disaster. 842 houses were completely destroyed and 3,338 partially.

The Nepal Red Cross initiated the distribution of the relief materials mobilizing the existing disaster preparedness stocks simultaneously assessing the damage. It also established effective coordination with the Ministry of Home Affairs, the Federation’s regional delegation (SARD), the ICRC, UN agencies, Participating National Societies (PNS), I/NGOs, civil society and the most affected district chapters/units in the country (wherever possible). The NRCS it may be remembered is also an active member of the DDRC chaired by the Ministry of Home Affairs at central level in Kathmandu as well as member of “Disaster Preparedness Network” (DP – Net).

The NRCS quickly dispatched its volunteers to carry out field assessments in different chapters/units of the country. The Society mobilized its emergency relief stocks to the most affected district chapters: mostly Banke, Bardia, Achham and Mugu from its regional and zonal warehouses. 122,257 people from 20,376 families benefited from the food distribution (the operation). A further 43,953 people received benefit from non-food assistance under the relief operation carried out by NRCS in the four districts.

A multi-sectoral coordination and support was the key in responding to the disaster situation in the region. The bulk of the food assistance was provided by WFP and non-food items (family kits) were received from different sources including ICRC, IFRC, UN agencies, SCF US, Swiss Red Cross, Oxfam, LWF Nepal, Plan Nepal, DFID/CSP/CARE/RRN, Nepal Army, Nepal Police, FIDA Intl, IRC, civil society and others. The food assistance from WFP for populations affected by flooding in Mid-West and Far-West Nepal, managed by NRCS helped a lot to sustain the lives. The food assistance was provided to meet the regular need of one week as immediate response and for 30 days as emergency response/assistance as per assessments carried out immediately after the floods in the districts.

The relief operation provided what was absolutely necessary, but even so the initial phase of the response revealed a number of weaknesses in coordination, planning, assessment, information and overall management between NRCS and its partners. A number of initial management problem emerged in the first week of the occurrence of the disaster. Some of the problems originated from NRCS and others from the cooperating partners. The problems were as follow:

Lack of clear data on disaster situation assessment. Lack of transparencies in initial distribution. Uncoordinated information and reporting system. Lack of continuity of skilled and technically sound staff from NRCS NHQs. Proper mission instruction was missing. One door system was misunderstood since NRCS was solely responsible only for

distribution of food and non food items. NRCS was not open enough for asking with other agencies regarding logistics and staff

support in the operation.

But the problems did not continue for long. With the increasing pace of the relief operation, the coordination mechanism then established among the stakeholders removed such weaknesses without much delay in a participatory way. At the end, it helped to establish a well-coordinated response system building strong support among the stakeholders including the government sector and UN system.

3.2.2. Participation of the institutions in rescue and relief operations

In Nepal, the Government used to play a leading role in the rescue and relief operation in the past. But now, there has been a complete volt face with the non Government institutions, national and international leading the show. This is evident from the report of NRCS. The report mentions

A multi-sectoral coordination and cooperation existed in responding to the disaster situation in the region. The major part of the food assistance was provided by WFP and non-food items (family kits) were received from different sources including ICRC, IFRC, UN agencies, SCF US, Swiss Red Cross, Oxfam, LWF Nepal, Plan Nepal, DFID CSP/CARE/RRN, Nepal Army, Nepal Police, FIDA Intl, IRC, civil society and others. The food assistance from WFP for populations affected by flooding in Mid-West and Far-West Nepal, managed by NRCS has helped a lot to sustain the lives aftermath. The food assistance was provided to meet the regular need of one week as immediate response and for 30 days as emergency response/assistance as per assessments carried out immediately after the floods in the districts.

It is clear from the above, that only the Nepal Army and Nepal Police and hence the local Administration Office due to its responsibility for their mobilization, were engaged in the

rescue and recovery from the side of the Government. The I/NGOs and the donors appeared dominated the Disaster Management activity.

In the rescue and relief front, one can see how all the institutions rally together under the leadership of Red Cross. But the relief distribution can sometimes be irregular. For example in 2002 flood of Khotang, a medical Doctor had been alleged to abuse the fund intended for the distribution of the relief materials. The landslide victims complained of receiving Rs 100 but they were made to sign for Rs 1000 (See Dulal, Gopal Prasad, 2003, Devastation caused by flood and landslide, p 27, Paryawaran, A publication of E Nepal)

3.2.3. Rhetoric and reality

Rescue and Relief dominates the Disaster Management in Nepal. Preparedness and Reconstruction as well as Rehabilitation are conspicuous by their unusual rarity. It is because the Natural Calamity Act, 1982 though amended on three occasions continues to address the post disaster scene thereby being overwhelmingly curative instead of the need to be preventive. According to this Act, the Government has to pay Rs 15000/ as relief assistance for family of a dead victim. Similarly, the injured persons are to be given free facility of treatment. Likewise, Rs 4000 has to be given if the house is destroyed. There is a provision of paying Rs 3000 in case the house is not secured for living. Homeless families are given 7 Kg of rice or Rs 125 per head and Rs 500. The unfortunate ones who have lost their land completely are given Rs 500. In order to construct the house, 50 cu ft of timber are given in a subsidized rate ( See Pokharel, L. N., 2005, Disaster Management System in Nepal, Proceedings of the JICA Regional Seminar, Department of Geology, Tribhuvan University).

The aforementioned aspects can be described as rhetoric because the reality is at variance with the rules and regulations. Sharkishova Rai lost her house in a devastating landslide, which occurred in Sungdel village in the eastern hilly district of Khotang. Her son's wife and two children were engulfed by the slide. What she got was Rs 1000 from the Red Cross as a relief fund. The Government offered Rs 4500 as compensation amount for the departed souls. Her son visited several places to receive more relief because of the demise of three persons but ended up spending more money than they would have really got according to the rules (See Action Aid

Nepal, 2004, Landslide took lives and property, Books for Change,). It can thus be said that the relief materials distribution is too little and too late in Nepal.

3.2.4. Recovery

The reconstruction and rehabilitation is very few and far between in Nepal. After the rescue and relief activity comes to an end, it also signals the end of the disaster management activity generally. But sometimes, some works are carried out in this area also. For example, in 2003 July, Red Cross Society Mahottari distributed 47 houses costing 5.8 million Nepali Rupees to the flood victims of Sundarpur VDC and Shri Pur VDC. Similarly houses worth 5 million were distributed to 40 families in Kaawanpur Sarikhet VDC ward No 2 by the Makwanpur Branch of Nepal Red Cross Society. The flood victims arranged for the land and the Red Cross constructed the buildings. The buildings consisted of two rooms, a verandah and a comfort room. (See Dulal, Gopal Prasad, 2003, Devastation caused by flood and landslide, p 27, Paryawaran, A publication of ECO Nepal)

But not all the flood victims are as lucky as those of Makwanpur and Mahottari districts. The flood victims of the 2003 flood in the Bamti VDC of Ramechhap district, the. families of the dead were given Rs 10000 in addition to the food and clothes. The Government had assured of rehabilitation but it is yet to be fulfilled.

Present Organizational structure in the Natural Calamity Relief Act

Central Natural Disaster Relief Committee

Relief andTreatment Sub Committee

Supply, Shelter andRehabilitation Sub Committee

Regional Natural Disaster Relief Committee

District Natural Disaster Relief Committee

Local Natural Disaster Relief Committee