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THE GUJARAT EARTHQUAKE RECONSTRUCTION EXPERIENCE: 2001-04

CIVIL SERVICE DAY 2007Vigyan Bhavan, New Delhi

21 April 2007

Dr. P.K MishraSecretary to Government of India

Department of Agriculture & Cooperation

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CONTENTS

• The devastation

• Reconstruction: programme outcomes

• Processes and innovation

• Mitigation and preparedness measures

• An analysis: how and why

• The larger impact

DEVASTATION: A TERRIBLE HUMAN TRAGEDY

• Lives lost 13,805• 167,000 persons suffered

injury

• Over 2,22,035 houses completely destroyed and 9,17,158 houses damaged

• Over 10,000 small and medium industrial units went out of production

• 50,000 artisans lost their livelihood

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Photo by : Ashok B. TrivediPhoto by : Ashok B. Trivedi

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Photo by : Ashok B. TrivediPhoto by : Ashok B. Trivedi

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RECONSTRUCTION & REHABILITATION

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Housing

Reconstruction of 2,00,218 houses (90%) completed Repair of 9,08,751 houses (99%) completed

Social Infrastructure

Education Infrastructure 44,218 (100%) school rooms repaired 12,750 (100%) school rooms reconstructed 13,000 new additional school rooms reconstructed

Health Infrastructure Repair & Reconstruction of 1,107 health structures

Livelihood Restoration

Restoration of livelihood of over 200,000 families working in agriculture and village / cottage industries etc

Social Rehabilitation

Setting of orphanages, assistance to paraplegics, pension to widows and old aged, artificial limbs to handicapped etc

PROGRAMME OUTCOMES

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Public InfrastructurePower

Strengthening of 8,903 km (90%) of transmission and distribution lines completed

Roads & Bridges Repair/Reconstruction of 4,134 km (98%) of state highways and rural

roads completed

All 179 bridges reconstructed

Rural Water Supply 2,615 km (96%) of water supply pipelines laid

Dam Safety & Irrigation 181 dams (82%) have been strengthened

Urban Infrastructure

349 Km (100%) of urban roads completed

333 Km (93%) of sewerage pipelines have been laid

700 Km ( 99.7%) of water supply pipelines have been laid

171 (99%) new municipal buildings have been reconstructed out of 173

Public Buildings

2,758 ( 99%) public buildings reconstructed

8,999 (98%) public buildings repaired

Retrofitting of 3534 undamaged buildings underway and 377 completed

PROGRAMME OUTCOMES

HEALTH INFRASTRUCTURE

Education - After Health - After

Health infrastructure damaged

Health infrastructure reconstructed

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HOUSES: REPAIR

928369

229194

638054

791719

891972 895841 901323

0

200000

400000

600000

800000

1000000

No.

of H

ouse

s

To berepaired

Jul-01 Jan-02 Jul-02 Jan-03 May-03 Feb-04

(97%)

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HOUSES: RECONSTRUCTION

215255

12119

57466

115014

142858

168127187346

0

50000

100000

150000

200000

250000

No.

of H

ouse

s

To bereconstructed

Jan-02 Jan-03 Feb-04

(87%)

RECONSTRUCTION OF HOUSES

Before – Text/Photograph

• Owner-driven Reconstruction (80%)

• PPP Reconstruction (20%)

PPP Housing Owner-driven Housing

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SCHOOL ROOMS: REPAIR

42678 41514 42678

0

10000

20000

30000

40000

50000

No.

of C

lass

room

s

Target Jan-02 Jan-03

(100%)

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SCHOOL ROOMS: RECONSTRUCTION

8212

0

1792

3865

63557080

7469

0

3000

6000

9000

No.

of C

lass

room

s

Target Jul-01 Jan-02 Jul-02 Jan-03 May-03 Jan-04

• In addition to the 8212 destroyed classrooms, 3810 additional classrooms have been constructed

(91%)

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LIVELIHOOD RESTORATION

Livelihood of 77,587 beneficiaries could be

restored through• Working Capital Assistance to Handloom Weavers• Toolkits to Handloom Weavers, Artisans, Handicraft

Artisans, Masons• Loan Subsidy to self-employed persons • Handlooms and handicraft parks, Gramudyog vikas

kendra sanctioned

1,83,793 farmers have benefited through• Input kits• Pucca Structure on Farms• Irrigation Assets

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LIVELIHOOD RESTORATION

187,284 industrial units benefited

through • Cash Assistance to Small Cabins & Shops• Subsidy assistance for small industrial units• Subsidy and interest subsidy given for service &

trade units

Rehabilitation of 69 affected tourism

units

LIVELIHOOD RESTORATION

• Restored livelihood of over 200,000 families (Agriculture, Industry including Cottage Industry)

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Owner Driven Reconstruction ( 80%)

Owner was the prime mover of the reconstruction process and reconstruction as per the need, pace and will of the owner

Government provided material, technical and financial assistance

A sense of acceptance and ownership leading to higher occupancy

Knowledge transfer resulting in long-term disaster management capacity building

Public Private Partnership Programme (20%)

Partnership with 80 NGOs on a 50% cost sharing basis with government

Community through Gram Sabha to approve NGO involvement

HOUSING RECOVERYAPPROACH

19HOUSING RECOVERYINNOVATIVE ASPECTS

RISK TRANSFER

Insurance to 14 types of

hazards for 10 years at

premium of Rs.367 deducted

from the last financial

installment by the state

ENSURING STANDARDS

Multi-hazard resistant reconstruction

Payment of installments after engineers’ certification

Third party quality audit by National Council for Cement and Building Materials (NCCBM)

RESOURCE ASSISTANCE

Payment made directly in bank accounts - 6,60,000 bank accounts opened

1,082 outlets opened - 219 lakh cement bags distributed apart from steel at subsidized cost

Excise duty / Sales tax exemption for building materials procured in KutchEQUITY

Joint ownership of house by

husband and wife

COMMUNITY PARTICIPATION

Largely Owner Driven Minimal relocation Choice of relocation decided by

village community through gram sabha

GRIEVANCE REDRESSAL

District Judge declared as

Ombudsman and around 42,000

cases were re-solved

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Task undertaken scientifically & methodically..

In 14 affected towns

Task 2

Task 1

Relocation and

Rehabilitation

Preparation of Town Planning Schemes

Infrastructure Development

URBAN RECONSTRUCTIONAPPROACH

Task 3

Task 4

Preparation of

Development Plans

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URBAN RECONSTRUCTIONProgramme implementation - Institutional arrangement

Designation of Gujarat Urban Development Company as implementation agency for procurement, design supervision and implementation

Setting up Area Development Authorities in the worst affected towns of Kutch to facilitate the development process and rehabilitation

Programme design Elaborate mapping done through 19 studies of the affected areas

Using existing legislations for preparation of Development Plans (DPs) and Town Planning Schemes (TPS) to lay the base for infrastructure design and implementation

Separate packages for procurement of town planning, infrastructure design and supervising, and detailed unit design consultants

Community participation 1,800 consultative meetings conducted for incorporating public

objections and suggestions in the development and town planning processes

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Large central market area

Market streets for pedestrians

Well planned street

network

Proper access for all plots

Existing Proposed

Traditional markets on specific streets

Traffic congestio

n

No hierarchy of

streets

Plots have no proper access

Source – Bhuj Development Plan: GERRP

URBAN RECONSTRUCTIONREPARATION OF 4 DEVELOPMENT PLANS

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Source – Bhuj Development Plan: GERRP

URBAN RECONSTRUCTIONPREPARATION OF 13 TOWN PLANNING SCHEMES

Before the implementation of the Town Planning Scheme

After the implementation of the Town Planning Scheme

Previous plot layout New plot layout

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Road network in periphery poor

No clear pattern

No hierarchy

Poor quality of construction

New roads for growth areas

Ring - radial pattern

Clearly defined hierarchy

Better quality of construction

Source – Bhuj Development Plan: GERRP

URBAN RECONSTRUCTIONROAD NETWORK PLANNING

Existing Proposed

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City only partly served

Inadequate supply

Periphery has no piped supply

Pipes in old city

damaged

Service to entire

city

Narmada drinking water

New system for

periphery

Reconstruction of city networks

Existing Proposed

Source – Bhuj Development Plan: GERRP

URBAN RECONSTRUCTIONWATER SUPPLY AND SEWERAGE NETWORK PLANNING

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SEARCH & RESCUE 49 personnel trained in Search & Rescue at ICET,

Netherlands and in Germany

The persons trained at ICET, in turn, would train 500 more first responders in the state. Three batches of 30 fire personnel have been trained.

Two batches of 30 fire officers/ firemen trained in flood rescue

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Equipments received for the establishment of Emergency Response Unit (ERU) at Ahmedabad

Three sets of emergency equipments were procured for AMC, SMC and RMC.

EMERGENCY RESPONSE

Emergency equipment to be procured for 90 municipalities and 10 industrial areas.

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CAPACITY BUILDING-TRAINING

More than 29,000 masons trained in multi hazard resistant constructions & retrofitting techniques

6,200 engineers trained in multi-hazard resistant construction

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Revised syllabus of all Engineering colleges to include seismic engineering.Revised syllabus already adopted by all the

engineering and polytechnic colleges.

Training programs for the teachers of Engg. Colleges on the revised curricula

Syllabi of schools revised for incorporating general awareness about Disaster Management

CAPACITY BUILDING-EDUCATION

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MITIGATION MEASURES - GUIDELINES

Guidelines for multi hazards resistant

construction provided• For several types of construction such as

masonry, RCC structures, compressed mud earthen wall structures etc.

• Guidelines provided for using local materials in hazard-resistant construction

• Guidelines specifically for low cost reconstruction and retrofitting

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AWARENESS CREATION

Four Shake Table demonstrations & video shows held for awareness generation & confidence building

Two Technical cassettes prepared on construction and retrofitting of houses

Audio and video cassettes prepared to create awareness through the medium of music and jokes, traditional folk art

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DM made as a permanent agenda in Gramsabha conducted in 18000 villages

• “Do’s & Don'ts for EQ” circulated and discussed

• “Do’s & Don'ts for cyclone” circulated and discussed

• Need for safe construction• Preparation of village level

disaster response groups

AWARENESS CREATION – GRAM SABHAS

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OTHER ACTIVITIES ENVISAGED

Certification of masons and licensing of engineers

Provincial Fire Services

A seismic pavilion named “Planet We Live In” at Science City

Revision of Relief Manual

BENEFIT MONITORINGHousing – Urban and Rural

93% G-5 beneficiaries occupied re-constructed and insured permanent houses

52% beneficiaries had separate toilets and 84% had separate kitchens

39% beneficiaries in the 4 towns lived in larger houses as compared to the pre-earthquake situation

85% newly constructed houses in the 4 towns had a road passing directly in front of them

23% more BPL families live in permanent houses

Education More than 90% students who dropped out in both primary

and secondary schools have rejoined - no loss in academic year Livelihood

72% women surveyed have more income now compared to pre–earthquake time

Source – BME (phase II), 2nd sample survey report - 2004

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WHAT GSDMA DID

Earthquake reconstruction work

Formulation of Act and policies

Preparation of DM plans

Preparedness initiatives

Capacity building

Mitigation measures

Awareness & community preparedness

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SOME SALIENT ASPECTS

A comprehensive reconstruction and rehabilitation program

Progress during the first and second years no parallel elsewhere

Capacity building and information dissemination

Public-private partnership in a systematic manner; people’s participation

Medium and long-term perspective

FACTOR LEADING TO SUCCESS

Creation of a new institutional structure in the form of the Gujarat State Disaster Management (GSDMA)

A lean and efficient structure, extremely dedicated and committed personnel, professional approach and operational flexibility

Organizational interlinkages and optimal use of existing structures

Involvement of expertise and specialized knowledge of institutions and individuals

Commitment of the government at the highest level

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MOST INFLUENTIAL POST-DISASTER RECONSTRUCTION INITIATIVE

A strong foundation for national level initiatives, e.g.

• Mitigation projects, changes in syllabus

• Capacity building in search & rescue

• Disaster Management Act, 2005

• Creation of the National Disaster Management Authority

• Community-based disaster preparedness initiatives

Disaster Management Authorities in several States

Framework for post-disaster reconstruction in the context of Asian Tsunami 2004 and Kashmir earthquake 2005

RECOGNITION/AWARDS

GEERP awarded The Green Award by World Bank for successfully integrating environmental concerns in the Emergency Reconstruction and Rehabilitation Program for the year 2001

GSDMA awarded The Commonwealth Association for Public Administration & Management (CAPAM) GOLD Award for Innovations in Governance in 2004

GSDMA was awarded The United Nations Sasakawa Award for Disaster Reduction 2003

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THE CAPAM AWARD CITATION

The massive earthquake rehabilitation and reconstruction programme was a paradigm shift from the conventional approach of response, post-disaster mitigation and preparedness, and that each of the various initiatives like an owner-driven reconstruction programme, the role and involvement of community, the transparency and equity procedures, various capacity building initiatives taken up during the programme was innovation in governance by itself.

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THANK YOU