c



 

  
 
 

INTRODUCTION
Floods are almost annual events in Pakistan. Pakistan has been experiencing floods mainly
because of its topography, Sind, Kabul and swat are three hazard prone rivers, and due to
climatic and ecological condition, Pakistan constantly received flooding every year. This is
not a matter of concern every year. However, when floods exceed normal flooding level,
they take dangerous turns. Many times in the history of Pakistan, floods took severe and
sometimes catastrophic turns. In the past Pakistan experienced severe floods in 1973,
1992, 2006 and 2010. But 2010 flood breaks all past records. Latest Government estimates
put the number of people directly affected by the floods at 15.4 million, and the number
continues to rise (National and Provincial Disaster Management Authorities, 16 August).
Assessments to establish the degree to which affected populations are in need of immediate
humanitarian assistance continue. The official death toll has risen to 1,402, with 2,024
people reported as injured. Over
893,000 houses are now reported to have been either damaged or destroyed.

Pakistan is one of the most natural disaster-prone countries in the World. Natural disasters
often result in great losses, both in terms of materials and people¶s lives.
Due to its unique geo-climatic conditions, Pakistan is one of the most disaster prone
countries in the world. Four provinces, AJK and Gilgit baltastan are vulnerable to one or the
other geo-climatic disaster. Over 40% of landmass is vulnerable to earthquakes, 6% to
cyclone, 60% to floods and 25% of the Barani land under cultivation is vulnerable to
drought.
2010 extreme floods results the loss in terms of lives and assets have been incalculable. A
disaster wipes out the gains achieved in decades of development in the affected area.
Repeated disasters threaten sustainable development in Pakistan Disasters destroy decades
of human effort and investments, thereby placing new demands on society for
reconstruction and rehabilitation.
. If one adds the losses in countries like Pakistan, where most of the property of the people,
especially in the rural areas remains uninsured, the losses are astronomical.
The unique geo-environmental setting of the North Himalayas, the heavy rainfall, weak
geological formations, accelerated rates of erosion followed by silting and meandering of
rivers, very high seismicity makes the Northern area one of the most disaster prone regions
in the country. Considering this, and the comparative inaccessibility, the North region
demands special attention to minimize loss of lives and social, private and community losses
and to ensure sustainable development.
Vulnerability to natural disasters combined with socio-economic vulnerability of the people
pose a great challenge to the government machinery.

Disasters in Pakistan
Pakistan is confronting series of disasters in recent past, 2005 earth quake, Hunza land
slide, air blue crash, and 2010 Floods, are major disasters. These disasters have different
type and onset but resulted huge damage to life and property .Pakistan is facing different
problems like terrorism, political uncertainty which badly affected the government and its
institutions capacity.
Government of Pakistan after 2005 earth quake establish a authority for disaster
management but due to lack of technical knowledge and manpower the authority fail to play
its role effectively while coping these disasters, there is an urgent need to built the capacity
of this authority and also clearly lay down its bylaws and mandate , NDMA think that its role
is only to regulatory which is totally wrong perception, the role of any National disaster
management authority all over the world is to regulate ,coordinate , develop systems and
train technically manpower for disaster management.

Disaster management in Pakistan

Disaster management is multidimensional field and required technical knowledge to get job
done ,army can not manage disaster , army can manage war and law and order ,the only
role army can play in disaster management is that they can respond to post disaster phase
for rescue , relief and recovery on request , but here we misuse army in disaster
management which not only kept them away from their original task but also put extra
burden on armed forces, in spite from the fact that army play a exceilent and efficient role
in all national calamities , on other hand it also indicate weakness in NDMA ,which is
responsible to provide technical assistance to other government agencies in disaster
management, But we witness that due to lack of technical knowledge and techniques we
suffer maximum damages in term of life and property, e.g. in Air Blue crash the plane
caught by fire for many hours and rescue workers reached the spot in minimum possible
time but they fail to control the fire and rescue the victims because they don¶t have fire
fighting knowledge ,this fire can easily be controlled if they put green bushes on fire which
is very effective instrument in absence of water, these green bushes are wild and
extensively available at crash spot ,but we let the bodies burn to ashes ,secondly I also
observed the search operation for black box which was also conducted in nonprofessional
manners ,CDA worker and other common people are exploring the area like doges exploring
bones outside the butcher shop and official called its search operation which is purely
technical think and done through scientific methods.
These type of searches must be carried out by train searchers according to search
methods(triage search or up to down left to right search) and with the support of magnetic
rods which identified black box and this type of search is called electronic search ,which is
correct and scientific method of search. I think that we can safe life of the people if we have
trained USAR team for future emergencies.

DISASTER RESPONSE SYSTEM IN PAKISTAN

Due to frequent occurrence of disasters induced by natural hazards, the National disaster
management authority(NDMA), which has been given the responsibility and mandate for
coordinating national disaster management efforts across all agencies. The newly born
authority fails to develop system across the country to handle disaster at national level .
Training and capacity building of the officials dealing with emergencies would be an
important instrument of disaster reduction and recovery. While natural hazards cannot be
controlled, the vulnerability to these Hazards can be reduced by planned mitigation and
preparedness measures. There needs to be concerted and sustained steps towards reducing
the vulnerability of the community to disasters.

Importance of disaster management

Taking into consideration the value of development gains which are wiped out through
disasters, as also the huge quantum of funds required for post disaster relief and
rehabilitation, any investment in disaster mitigation will yield a higher rate of return than
any other development project. Also considering the developmental gains, which are wiped
out because of disasters, all development schemes/projects will need to incorporate disaster
assessment and vulnerability reduction as critical components in order that the development
process be sustainable. Therefore, a paradigm shift has now taken place with the shift in
focus from reactive to proactive i.e. from relief to prevention and mitigation of disasters.

PAKISTAN ORGANIZATIONAL STRUCTURE FOR DISASTER MANAGEMENT

NDMA National
PDMA Provincial
DDMA District

IMPACTS OF 2010 FLASH FLOODING

Many houses and bridges have been destroyed due to flash flooding and also, due to the
water accompanied debris, which mostly consists of timber logs, tree branches and
uprooted trees of different sizes. The mass of debris has been created by destabilization of
slope, the sub soil layer and vegetation over the same which is transported by the
floodwaters. Mountainous watershed systems in northern Pakistan collectively send water to
rivers leading downstream areas.

2010 FLOOD IN URBAN AREAS NOSHERA

The city of Noshera and few other urban areas of Punjab and Sind located in the flood plain
of the swat and Sind Rivers badly destroyed by floodwater associated with heavy rain. The
urban area is located in the catchments, In Noshera city debris flow and flooding caused
damages and losses to shops, commercial centers and house hold items such as furniture,
electronic items so on. The city transportation system, water supply, sewerage and drainage
systems were also subjected to severe destruction or failure in functioning.

Consequences of poor disaster management

2005 earth quake is fast onset disaster, all damages are natural and one can not criticized
government or any authority because in fast onset disaster damage to life and property can
not be minimized by any mean, 2010 flood is slow onset disaster in which damage to life
and property is failure of NDMA and government of Pakistan because in slow onset disaster
damages can be minimized if a country have system in place (like early warning system,
hazard assessment, risk calculation etc). Political differences amongst federal and provincial
governments leading the Flood 2010 disaster toward complex disaster.
If government of Pakistan and international community fail to manage or poorly managed
2010 flood disaster then it will resulted dire consequences for Pakistan and rest of the world
.If we calculate the amount of damage, magnitude and spread of this disaster, there is a
immediate need to manage this disaster properly, if serious steps will not be taken by
Government, UN and donor countries the situation will create complex disaster which later
on change into second disaster which not only affect Pakistan but the whole civilized world.

Complex Disasters-
Complex disasters exist where adverse political conditions compound a disaster or
emergency situation. Such situations are complicated because the breakdown of the political
structure makes assistance or intervention difficult. This sort of emergency is usually
associated with the problems of displaced people during times of civil conflict or with people
in need caught in areas of conflict.

THE SECOND DISASTER

The actual disaster results in a lot of damage to the population in terms of loss of life and
property. This direct result can be dubbed as the µfirst disaster¶. The impact of the first
disaster sends another wave of damage triggered by chain of events relating to the first
disaster by means of cause-and-effect, resulting in indirect damage to people remote from
the original disaster. This can be called the µsecond disaster¶. For example, tsunami had
caused loss in terms of life, damage to houses, etc. This is the first disaster. This leads to
disruption in the trade of fishing industries, which suffers massive financial losses. The
losses suffered by these industries results in lower wages and salaries to those involved in
the fishing business. These people cannot repay their loans, resulting in losses to money
lenders, and so on. Such events can also result in higher incidences of Looting robberies
civil war, heart attacks, strokes, suicides and homicides. This is called µsecond disaster¶ and
can be in greater magnitude than the µfirst disaster¶. Proper rehabilitation and care of the
victims of first disaster can break the chain of events leading to the second disaster.
NDMA must prepare national disaster plan for flood victims to avoid above stated situations
and also centralized all disaster management activities for effective recovery at national
level and setup national early warning system, Hazard assessment, and Risk and hazard
mapping for minimizing damages in any future event. Apart from an effective disaster
response system, it is important to have a good flood prevention and mitigation system to
achieve objectives of vulnerability reduction.

Supportive Technologies
A number of tools are available to array and display information for the use of technical
experts, to explain programmes of flood damage reduction to the decision-makers, and to
communicate real time forecasts and warnings to the public. In general the tools should be
interactive in the sense that the information can be easily updated, and flexible enough to
develop scenarios, and to provide visual and quantitative information regarding the state of
conditions during the forecasted event.

FLOOD ADVISORY/WARNING (READY, GET SET, GO)

MEANING
The message suggests awareness that flooding is possible within the next24 hours The
message suggests preparedness and that flooding is threatening within the next 12 hours
The message prompts response as flooding is expected to occur/or will persist within the
next 12hours.

To minimize flood damage the basic approach is to prevent flood waters from reaching the
damage vulnerable centers. The Flood Forecasting Network sends information to all the
major flood prone inter-Provincial river basins in the country. Information from satellites is
used for mapping and monitoring flood prone areas. The Flood commissioner under the
Ministry of Water issues flood forecasts and Warnings. A flood alert is issued well in advance
of the actual arrival of floods to enable People to take appropriate measures and shift to
safer places.
Despite this, floods continue to be a menace primarily because of the huge quantum of silt,
which has raised the bed level in many rivers. During high floods, many breaches occur,
causing inundation over vast areas for most of the monsoon months of June to September.
The country thus needs a better and effective flood mitigation system to ensure the safety
of its people and economy.

Who is Responsible for damages?

2010 floods are historical in term of magnitude and spread out, Pakistan is exposed to
floods almost every year but the recent floods breaks all records of the past, If we put bird
eye view on and affected area we see that amount of damage is maximum in term of
property and livelihood, If we calculate damages ,first of all food basket of the country
completely destroyed ,loss of livelihood ,loss of infrastructure. These damages can not be
recovered or rehabilitated in short period of time by any mean, these damages are
irrecoverable and irreversible, e.g. The soil of fertile basin plate of Indus River badly
polluted and overlapped by flood salty mud which can not be removed shortly, this type of
damage can create drought in country.

(1) Governments of Pakistan is responsible for Immoveable property and livelihood

damages.
As a disaster manager I agree from the fact that in floods damages to moveable property
can not be minimized by any mean but we can mitigate the risk of a hazard in pre flood
period.
Past and present Governments of Pakistan are responsible to Irrecoverable Damage to food
basket or Indus basin plate of Pakistan ,because this damage can be minimized if
government of Pakistan built Dams which is best instrument of flood control , Sind river is
biggest in water flow but its water never ever generate floods because of Terbela dam which
capacitated large amount of water and utilized for energy and irrigation purposes in spite
from the fact that sind river have large potential of flood creation, Swat and kabal rivers
generated flood because there water is unchecked or free in flow, technically both rivers
must have dams for control over its water and flow but due to lack of technical knowledge
,mindless politics and poor planning of government of Pakistan and its concern institutions
which not only push the country in darkness butt also destroyed its only god gifted
agriculture resource.

(2)NDMA is responsible for damages to Life and moveable property.

In disaster manger eyes NDMA is responsible for damages to life and immoveable property
,Because flood is slow onset disaster not a fast onset disaster, which give enough time to
Authorities for preparation and mitigation ,if NDMA have national disaster management
strategy in place which includes (countrywide early warning system ,emergency
management plan, Hydro meteorological hazards assessment, Structural / non-structural
measures, , Environmental impact assessment, Environmental degradation assessment,
Forecast ) damages can be minimized ,but due to lack of technical management and
preplanning the whole country exposed to floods resulted damages to life and property of
people ,on the other hand government and army also faced hard time in rescue and relief
due to sudden occurrence. This poor management of flood raises questions in mind of
international community that Pakistan suffers huge damages to life and property in slow
onset disaster due to mismanagement .
People of Pakistan are already suffering from poverty and energy crisis, now lost their bread
and butter .Being a disaster manager we know that the impact of flood disaster is more
destructive then earth quake, In earth quake damages are bi end while in floods damages
are uni- end (bi-end life and property, uni-end only property).
In earth quake people last there life, in floods people losses their livelihood and property so
they demanded more resources and compensation and disaster of this nature need much
resources and money for rehabilitation as compare to earth quake ,because population
remain same and resources reduced.

Potential Flood Hazard in Pakistan

I think that we have manpower and instrument but due to lack of technical knowledge we
suffer damages in disasters, Flood mitigation is not difficult task ,it can be managed
properly through flood mitigation system, In Pakistan we have three potential Flood Hazard
Moon soon rains, Northern glaciers and Dams Firstly the country is more commonly exposed
and vulnerable to moon soon rains which are predictable and come periodically ,With
modern satellite weather forecast we can take affective measures to minimize its damages,
because in floods only immovable property and crops are vulnerable and people , livestock
and moveable property can be saved ,but here we suffer maximum damages in flood and
turn whole country in to disaster, we must have early warning system which can inform
vulnerable community about hazard ,secondly we must have Hazard assessment like
amount of water in rivers , river delta capacity and the water spread area, forecast through
which these damages can be minimized.
Second potential hazards are Terbela, Mangla dams, which due to any sudden event can
create Flood disaster, for this type of hazard we must educate those people whose are
vulnerable in downstream area about risk and hazard (e.g. Everybody must have boat or
tire tubes according to house hold size), this type of risk reduction tools save life of people.
Third Northern glaciers
Melting of glaciers in northern Pakistan due to global warming is also potential hazard, this
hazard can generate flood in Pakistan .we can reduce its affect by constructing Dam in
northern area Factors behind flood in Pakistan.

(1) Environmental degradation

Environmental degradation is major factor behind floods in Pakistan
Potential effects are varied and may contribute to an increase in vulnerability and the
frequency and intensity of natural hazards.
Some examples: land degradation, deforestation, desertification, wild land fires, loss of
biodiversity, land, water and air pollution, climate change, sea level rise and ozone
depletion.

(2)Global warming
Global warming is an other major factor of floods in Pakistan, Developed industrial states
and wild fires contributing major share in global warming which resulted heavy and long
spell rains, melting of snow, raise in sea level, storms and floods, in my view moon soon
rains are annually fall but this time the unpredictable increase in rain fall is due to global
warming resulted flood in Pakistan e.g. recent wild fire in Russia resulted heavy and large
scale rains in Pakistan resulted flood.

FLOODS
A flood is a situation in which water temporarily covers land where it normally doesn¶t. This
water comes from the sea, lakes, rivers, canals or sewers. It can also be rainwater. Floods
can be described according to speed (flash flood), geography or cause of flooding.
Floods are among the most common and destructive natural hazards causing extensive
damage to infrastructure, public and private services, the environment, the economy and
devastation to human settlements. Recurring flood losses have handicapped the economic
development of both developed and developing countries. Floods usually are local, short-
lived events that can happen suddenly and sometimes with little or no warning. They
usually are caused by intense storms that produce more runoff than an area can store or a
stream can carry within its normal channel. Rivers can also flood its surroundings when the
dams fail, when ice or a landslide temporarily block the course of the river channel, or when
snow melts rapidly. In a broader sense, normally dry lands can be flooded by high lake
levels, by high tides, or by waves driven ashore by strong winds. Small streams are subject
to floods (very rapid increases in runoff), which may last from a few minutes to a few hours.
On larger streams, floods usually last from several hours to a few days. A series of storms
might keep a river above flood stage (the water level at which a river overflows its banks)
for several weeks.

FLOOD ASSESSMENT LEVEL

Alert
Alarm
Critical

RIVER HEIGHT
Level 4 (The River at a Particular reference point is about 40% full)
Level 6 (The river at a particular reference point is about 60% full)
Level 10 (The River at a particular reference point is 100% full)

However, all floods are not alike. Some floods develop slowly, sometimes over a period of
days. But flash floods can develop quickly, sometimes in just a few minutes and without any
visible signs of rain. Flash floods often have a dangerous wall of roaring water that carries
rocks, mud, and other debris and can sweep away most things in its path. Overland flooding
occurs outside a defined river or stream, such as when a levee is breached, but still can be
destructive. Flooding can also occur when a dam breaks, producing effects similar to flash
floods.
Flood types
Flash floods
Coastal floods
Urban floods
River (or fluvial) floods
Ponding (or pluvial flooding)
Flood has always been a annual phenomenon in Pakistan , According to the MET department
Government of Pakistan, around 75% of the total rainfall is concentrated over 4 months of
monsoon (June ± September) and, as a result almost all the rivers carry heavy discharge
during these four months.. The most flood prone area is the Indus basins. The whole
country is vulnerable to floods includes Gilgit Baltastan, KPK, Punjab, Sind, Baluchistan and
AJK. But of recent 2010 floods breaks all past records,

Lists of simple things one can do to stay safe and protect one from floods.

Before flooding occurs

1. Know the route to the nearest safe shelters that you area aware off.
2. Keep the First Aid Kit ready with extra medication for snake bite and diarrhea
3. Strong ropes for tying things
4. A radio, torch and spare batteries
5. Stocks of fresh water, dry food, candles, matchbox, kerosene etc
6. Umbrellas and bamboo sticks (to protect from snakes)
7. Higher ground where people and animals can take shelter

When you hear a flood warning

1. Tune in to your radio or watch for warning and advice
2. Keep vigil of flood warning given by local authorities
3. Keep dry food and drinking water and warm clothes ready
4. Check your emergency kit

If you need to evacuate

1. Pack clothing, essential medication, valuables, personal papers etc in water proof bags to
be taken to the safe shelter.
2. Raise furniture, appliances on beds and tables
3. Put sandbags in the toilet bowl and cover all drain holes to prevent sewage back flow.
4. Do not get into water of unknown depth and current
5. Lock your house and take the recommended or known evacuation routes for your area of
safe shelter.

During Floods
1. Drink boiled water or use halogen tablet to purify water before drinking.
2. Keep your food covered
3. Do not let children remain on empty stomach
4. Use bleaching powder and lime to disinfect the surroundings
5. Avoid entering flood waters. If you need to enter then were proper foot wear.
6. Stay away from water over knee level.

After a Flood
1. Stay tuned to local radio.
2. Do not allow children to play in, or near, flood waters.
3. Stay away from drains, culverts.
4. Do not use electrical appliances.
5. Do not eat food, which has been in floodwaters.
6. Boil tap water.
7. Use halogen tablets before drinking.
8. be careful of snake bites, snakebites are common during floods.

Flood Resistance and Resilience measures

Flood Resistance and Resilience

Where buildings must be located in areas with medium to high levels of flood risk, the
incorporation of flood resistance and resilience at the design stage can reduce the impacts
should inundation occur. Standard measures include the provision of a minimum freeboard
above ground or predicted flood level, and the use of resilient fixtures and fittings within.
Flood resistance measures include:
‡ Fitting one way valves to sewage pipes, or the use of temporary bungs;
‡ Sump and pump systems to remove water from buildings faster than it enters; and
‡ Temporary door or air vent flood boards to stop the entry of flood water.

Flood resilience measures include:

‡ Use of concrete floors rather than timber;
‡ Location of boilers, and electrical above the possible flood level;
‡ No chipboard or MDF, instead using plastic and metal alternatives; and
‡ Lime plaster or cement render rather than conventional gypsum plaster.
Retrofitting flooded properties during the repair procedure with these is common practice.
These measures are not necessarily more expensive than conventional techniques, but will
significantly reduce the damage, cost and time to repair if properties are flooded.

Future Proofing
It is important that new developments, particularly in the higher flood risk zones, are future
proofed against uncertainty. Therefore it is advised that proposed flood mitigation measures
associated with developments are reviewed at the detailed FRA stage, paying attention to
the potential implications of future changes in climate and land use. The application of the
precautionary principle and the provision of freeboard and flood resistance and resilience in
buildings can mitigate future increases in flood risk at relatively low cost at the design and
construction stage.
.
Other Measures
Measures to mitigate the risks of flooding both to and from development are not necessarily
limited to those above. Depending on the specific risks relating to a site, the following
investigations / options may need further consideration at the detailed FRA stage of
development planning:
‡ Flood resistance / resilience measures specific to the potential for groundwater flooding;
‡ Management of surface µrun-on¶ (i.e. runoff entering the site from upslope areas) as part
of the development¶s drainage strategy;
‡ Maintenance / improvement of watercourses, culverts, drain and sewerage networks to
reduce associated flood risks.

Flood Preparedness Planning

Flood preparedness planning is about putting in place a set of appropriate arrangements in
advance for an effective response to floods. Some of the commonly identified flood
preparedness activities are:
‡ Public awareness rising on flood preparedness, response and mitigation measures;
‡ Stockpiling of emergency relief materials i.e., food, fodder for livestock, emergency
medicines, materials for temporary shelter etc;
‡ Installation of community-based early warning system for issuance of timely and effective
flood warnings;
‡ Management of safe areas for temporary removal of people and property from a
threatened location;
‡ Transportation to safe areas/ evacuation centre;
‡ Ensuring access to health and sanitation facilities;
‡ Conducting drills and rehearsals.

The key to flood preparedness planning is to have a clarity and agreement on the roles and
responsibilities of relevant stakeholders such as the government line agencies, disaster
management organizations, Red Cross, voluntary groups as well as community members.
Such an arrangement is possible by forming disaster management authorities and teams at
various levels to agree on set of standard operating procedures (SOPs) defining what
actions to be taken before, during and after floods.

Flood preparedness Planning

‡ Systematic arrangement and deployment of resources to reduce the impact of flood
disaster;
‡ Vulnerable communities to get access to crucial information, such as timely flood forecasts
and warnings;
‡ The provision of basic needs, such as shelter and medical care, clean water, sanitation and
food during floods;
‡ Continued access to livelihoods, in order to minimize disruption of economic activities;
‡ Effective coordination among disaster management agencies to ensure efficient
emergency response during floods;
‡ Urgent restoration of critical infrastructure and measures to be taken to bring normalcy
immediately after the floods.

COMPONENTS OF FLOOD PREPAREDNESS PLAN

A flood preparedness plan (FPP) which is an integral component of the multi-hazard disaster
management plan, is an action oriented document detailing specific actions to be
undertaken prior to floods, which set the ground for effective execution of emergency
response and recovery activities during and after floods.

The components of a FPP:

1. Assessment of probable needs: Based on historical data from previous flood disasters,
officials at the State and district levels compile a list of likely needs and available resources.
Gaps between needs and resources are identified in advance and also ways to mobilize
them.
2. Institutional Mechanism for implementation of FPP: The Flood Preparedness Plan outlines
the institutional structure of the States, District or Community level Committees for Disaster
Management, its roles and responsibilities before, during and after floods. The Plan also
establishes the coordination among the line agencies and other stakeholders in
implementation of priority activities identified in the plan.
3. Activating early warning and disaster response systems: The FPP defines how to warn the
whole community, based on the forecast received from the national and regional agencies
and what they should do in advance. The plan ensures ways of involving all stakeholders,
according to their roles and responsibilities, and outlines these in the plan.
4. Resource mobilization and allocation. Responding to a flood requires resources; therefore
the plan specifies what resources are already available at the State, district, community and
village levels. The plan also specifies what resources will be needed and where to find those
resources.
5. Communication within and outside the community. To ensure clear and effective
messages in an emergency, the plan specifies how communication will take place and via
what media (radio or indigenous systems, etc.)
6. Sectoral components. A flood preparedness plan outlines standard operating procedures
(SOPs) for specific measures such as search & rescue, emergency medical assistance,
provision of water supply and sanitation, food and nutrition, logistics and transport, health,
agriculture and environment management, temporary shelter, evacuation procedures;
protection and security.

Implementation Arrangement of the Flood Control and Search & Rescue Plan at all levels.

a. Coordination among Line Agencies

b. Sectoral Plan development Infrastructure Restoration
c. Search and Rescue
d. Relief and Social Policies
e. Health, Education and Environment
f. Information and Communication
g. Reporting scheme
h and Report formats
i. Dissemination of the Plan

Roles and Responsibility of Line Agencies at Province, District, Cities in three phases of
Flood
a. Agriculture

b. Transport
c. Education
d. Committee of Population
e. Construction
f. Health
g. Electricity & Water
h. .Post, Radio and Television
i Industry:
j. Hydrometeorology station
k Police
l. Armed forces
m. Red Cross
n. Labor, invalids and social affairs:

. Immediate and Long-Term Measure for Flood, Storm Control, Search and Rescue Planning
in the Province
a. Safety for infrastructure
b. Protection of Agriculture production
c. Exploit the advantage of flood management programs
d. Ensure safety for people, particularly, households in high risk areas
e. Measures for storing food, medicine, equipments, and materials
f. Plan to mobilize military forces and transportation to be ready to respond to natural
disaster situations
g. Policies to support people to overcome the impact of natural disaster
h. Invest to enhance the flood, storm forecasting and warning, search and rescue, dyke
protection and information dissemination work

. HAZARD, VULNERABILITY AND CAPACITY ANALYSIS

a. Hazards
b. Vulnerability analysis
c. Provincial Resources
d. Number of Safe Area and Location
e. Transportation
f. Communication system
g. Human Resources
h. Organizations

Technical guidelines for Management of Floods prone Area and communities

I recommended some technical guidelines to adopt and minimize damages to life and
property of flood affected Pakistani citizens.

CBFEWS
The capability of communities to monitor and warn people about impending floods is crucial
to protecting lives and property. The high cost of telemeter flood forecasting equipment
prompts a lot of communities in developing countries to search for cheap but equally
effective mechanisms. One such alternative is a community-based flood early warning
system (CBFEWS) Flood Warning System consists of two components: flood forecasting as a
technical issue and flood warning and dissemination as a communication.

COMMUNITY RESPONSE
Considerable attention has been given to providing understandable and actionable warnings
to target communities. To this end, warning messages have been streamlined with only
three different stages (READY, GET SET, and GO) so that the public can easily remember
what each signal means.

VICTIMS
VICTIMS AND SURVIVORS OF FLOOD
Almost everyone in the population is affected by a disaster. No one is untouched by it.
Those who suffer damage are called victims. The victims may die or live. Those who
manage to live are called survivors. These survivors can be classified as.
1. Primary survivor ± One who is exposed to the disaster first-hand and then survives. They
are called µsurvivor victims¶.
2. Secondary survivor ± One who grieves the loss of primary victims? Example, a mother
who lost her child, or a man who lost his friend.
3. Third level survivor ± The rescue and relief personnel. These people are also affected due
to the disaster as they are at the site of disaster and undergo almost the same mental
trauma as the other victims.
4. Fourth level survivor ± Reporters, Government personnel, traders, etc.
5. Fifth level survivor ± People who read about or see the event in media reports.

PSYCHO SOCIAL ASPECTS OF FLOOD VICTIMS

There is a phenomenal increase in the incidence of psychiatric disorders in the Flood
affected population. The common problems include
1. Acute stress disorder
2. Post traumatic stress disorder
3. Anxiety disorders
4. Depression
5. Alcohol and drug abuse
Flood Risk mitigation

Alert-
The notice issued indicating that specific precautions should be taken because of the
probability or proximity of a dangerous event.

Emergency management
The organization and management of resources and responsibilities for dealing with all
aspects of emergencies, in particularly preparedness, response and rehabilitation.
Emergency management involves plans, structures and arrangements established to engage
the normal endeavors of government, voluntary and private agencies in a comprehensive
and coordinated way to respond to the whole spectrum of emergency needs. This is also
known as disaster management.

Hydro meteorological hazards Natural processes or phenomena of atmospheric, hydrological

or oceanographic nature, which may cause the loss of life or injury, property damage, social
and economic disruption or environmental degradation. Floods bring misery to those that
live in the area. They can cause loss of life and often cause a great disruption of daily life:
water can come into people¶s houses, drinking water and electricity supplies may break
down, roads can be blocked, and people can not go to work or to school. Floods all over the
world cause enormous damages every year like economic damages, damage to the natural
environment and damage to national heritage sites.
A flood is a situation in which water temporarily covers land where it normally doesn¶t. This
water comes from the sea, lakes, rivers, canals or sewers. It can also be rainwater.
Floods can be described according to speed (flash flood), geography or cause of flooding.
Several types of flooding will be described in these pages together with some aspects of
hydrology.
Hydrology
‡ Water cycle
‡ Water storage
‡ A little or lots of water (water quantity)
‡ Rainfall intensity
‡ Speed (water velocity)
‡ Catchment area
Hydro meteorological hazards include: floods, debris and mud floods; tropical cyclones,
storm surges, thunder/hailstorms, rain and wind storms, blizzards and other severe storms;
drought, desertification, wild land fires, temperature extremes, sand or dust storms;
permafrost and snow or ice avalanches. Hydro meteorological hazards can be single,
sequential or combined in their origin and effects.

HYDROMETEOROLOGICAL MONITORING
The hydrological monitoring system consists of a network of rainfall and water level
monitoring stations,
‡ Assessment of flood hazard and existing flood control structures;
‡ Identification and verification of locations for rainfall and water level gauges using the
network density derived from a topographic map of the river basin;
‡ Acquisition, fabrication, and installation of rainfall, water level gauges, and flood markers;
‡ Identification and training of community volunteers as rain and water level observers; and
‡ Discharge measurement and cross-sectioning of rivers

Risk assessment/analysis A methodology to determine the nature and extent of risk by

analyzing potential hazards and evaluating existing conditions of vulnerability that could
pose a potential threat or harm to people, property, livelihoods and the environment on
which they depend.
The process of conducting a risk assessment is based on a review of both the technical
features of hazards such as their location, intensity, frequency and probability; and also the
analysis of the physical, social, economic and environmental dimensions of vulnerability and
exposure, while taking particular account of the coping capabilities pertinent to the risk
scenarios.
Structural / non-structural measures

Structural measures refer to any physical construction to reduce or avoid possible impacts
of hazards, which include engineering measures and construction of hazard-resistant and
protective structures and infrastructure.(e.g. Dams,).
Non-structural measures refer to policies, awareness, knowledge development, public
commitment, and methods and operating practices, including participatory mechanisms and
the provision of information, which can reduce risk and related impacts.
Flood Mitigation Strategies:
There are two different ways to mitigate floods: -
1. Structural
2. Non- Structural
Structural measures are in the nature of physical measures and help in ³modifying the
floods´, while non- structural measures are in the nature of planning and help in ³modifying
the losses due to floods´. In the structural measures we keep the water away from people
and in the non structural measures to try to keep the people away from water. All of these
works can be individually divided into long term and short-term measures.
This tailoring of technical information into displays that are more readily understood is
valuable for explaining programmes to decision-makers, informed experts, and the public at
large. Highly visual information is particularly valuable for public meetings or open houses,
but must be tailored carefully for the audience.

Flood Plain Management

Management of activities within the flood prone area can significantly reduce flood damages
to existing development and prevent the amount of damages from rising in the future. The
most desirable approach is to prohibit new development in the flood plain and to flood proof
existing structures, or to replace the existing development by alternative usage of the land.
However, where the amount of present development is substantial or the flood plain is
essential for the production of food or other key economic activities, alternate strategies
such as flood and protection can be considered.

A. Structural Measures
Construction of dams/diversions/storm channels/levees Construction of protective works
such as
flood storage reservoirs, diversion of water to side channel storage or other watersheds,
construction of storm channels to carry water around the area to be protected, and levees
along the floodway provide tools to reduce flood damages. Such works can be constructed
to various levels of protection, usually based on: 1) minimum standards for flood
protection; 2) the optimum level of costs and benefits based on an economic.
Analysis; or 3) to meet established levels of acceptable risk. Protective works should be
considered when major infrastructure has already been developed and costs to protect
existing investments are far less than those related to reconstruction, lost economic activity,
disaster assistance, or relocation of existing structures and activities. However, it must be
recognized that at some point in the future the design event will likely be exceeded and
catastrophic damages will result. Levees and storage dams are particularly dangerous when
design thresholds are exceeded in that unexpected failure can result in a rapid rise in water
level and make evacuation and emergency protection extremely difficult. Diversions or
storm channels are less prone to catastrophic failure and the level of protection
contemporarily be increased by emergency measures if the lead-time of the flood warning is
sufficient. Information must be credible and easily understood. The above techniques,
combined with the flood forecast, provide a very effective means of delineating areas at risk
and for communicating this to the decision-makers, emergency response teams, and the
public.
Flood control storage may be one component of a multi-purpose reservoir development.
Over time the operation of the reservoir could be altered to enhance other beneficial uses of
storage to the detriment of flood control. A commitment to "designated flood storage" and
to reservoir operation procedures to achieve that storage is needed. Inspection,
rehabilitation and maintenance Structural works require a periodic and systematic
inspection, rehabilitation and maintenance programme to ensure that the design capabilities
are maintained. For example, levees may be subject to weakening due to erosion during a
past flood event, by the actions of burrowing animals, or the construction of utility lines
through the levee. Of particular importance is an inspection programme and responsibility
assigned for rehabilitation and maintenance.
Structures such as dams should be subject to a dam safety programme, usually at the
national level, to ensure that the specialized expertise required is available for the
inspection of all structures. Dam safety programmes are carried out in many countries and
standards or guidelines are readily available.

Flood proofing of new and existing structures

Any new construction permitted in the flood plain should be flood proofed to reduce future
damages. Building codes can be developed that minimize flood damages by ensuring that
beneficial uses of buildings are located above the design flood elevation. For example,
buildings can be raised above the design flood level by placement of fill; stilts or piles used
to elevate the structure; and building utilities can be located above the flood level (Ground
floors can be designed in a way that little flood damage occurs through use of masonry
materials and specifying that contents must be removable. If any new development is
allowed within the flood-prone area, then the impact of that development must be taken
into account to ensure that flood levels do not rise significantly due to the additional
constriction to flow. Hydraulic analyses can be undertaken to ascertain the impacts of
potential activities and to keep the rise to within acceptable limits Flood proofing of existing
structures is difficult and expensive. One successful strategy is to link flood disaster
assistance available after a flood event to methods of reconstruction that minimize future
flood damages. This approach often requires additional funding over and above a payment
for damages, but can be costs hared between various levels of government and the owner.
This strategy is particularly useful when flooding is frequent and future disaster assistance
can be expected as part of disaster policies. Flood proofing of existing structures can include
raising of structures to prevent damage, relocation of utilities, changed building use,
installation of protective walls and waterproof closures, and use of materials that are not
damaged by water and can be easily cleaned after the flood event. Relocation of existing
buildings and structures to an area that is not flood prone is also an option. Buyout and
relocation programmes for a particularly vulnerable development should form a component
of flood proofing initiatives. In many cases it may be more economical to buy out and
relocate the existing use than to protect it. Guidelines for Reducing Flood Losses A number
of critical services such as water lines, power pylons and telephone services often cross the
flood plain. These utilities can be protected against the ravages of flooding at relatively low
cost through additional depth of burial, a higher design standard for exposed components,
and rising of components above design flood levels. Water supply and treatment plants are
particularly vulnerable. They are often located on the flood plain yet are critical for the
protection of human health during and after a flood event. Such structures need to be
protected against extreme events and designed to prevent cross-contamination from flood
waters or sewers.

Bridges and roads

Bridges generally constrict the flow of water, and they can act as artificial dams if debris
jams on the structure. In all cases, the ir hydraulic characteristics must be considered at the
design stage to prevent an un acceptable rise of water levels upstream of the structure.
Bridges are important in terms of maintaining access for evacuation and delivery of medical
and other emergency services. Key transportation corridors should have high design
standards that will with stand extreme flooding events. However not all bridges require a
high level of protection, and the design criteria can be to a lesser standard that takes into
consideration the possibility of overtopping. Bridges are expensive, and difficult to replace
quickly after a flood event. An alternative strategy is to design the approach roads to be the
weak link in the chain so that extreme events wash out the road but do not damage the
bridge. Approaches can be quickly repaired after a flood event and transportation corridors
restored. Road design, either parallel to the river or leading to bridges, must be given
careful consideration. There is a temptation to raise roads that have been overtopped by
flood events without giving adequate consideration to the number and size of openings
necessary to pass local drainage or tributary inflow. In such cases the road can artificially
raise water levels upstream and cause additional flood damage. Roads can act as levees
when they are parallel to the river. This is a two-edged sword: while flood protection is
provided, the water level upstream can increase, resulting in additional flood damages
there. Hydraulic studies must be undertaken before roads are raised to fully establish the
impacts of these activities.

Enforcement of standards and codes

The enforcement of standards and codes for flood-prone areas is as important as the ir
initial development. There is a tendency to bend the rules as the memory of a flood event
and its catastrophic consequences gradually fade away with time. Enforcement procedures
and penalties need to be built into the process, and emergency response drills undertaken
to ensure that flood prevention measures such as waterproof closures still work. An audit
should be performed by higher orders of government with participation of all interested
parties to ensure broad national standards are being met and that codes and rules are being
suitably followed and enforced. Governments should consider introducing requirements such
as surveyor certificates to verify that design elevations have been met, or inspector reports
that flood-proofing measures have been implemented. Lending and insurance institutions
could usefully be involved in this process, as they have a vested interest in ensuring that
their investments are protected.

B. Non-structural Measures
Non-structural measures are particularly applicable to flood-prone areas that are not yet
developed. As such, they are a complement to structural approaches in areas where
additional development may occur, and they also represent an independent approach where
some control over flood plain development can be exercised at low cost. Non-structural
approaches do not mean "no use", but rather" wise use".

Land-use planning
Land-use planning at the local or municipal level can be a useful tool in reducing future flood
damages. Consideration should be given to ensuring that there are conforming uses in
flood-prone areas as part of master
Guidelines for Reducing Flood Losses plan.

The land along a river is highly desirable for parks and recreational uses, as well as for
ecological reserves. Supportive infrastructure such as washrooms, picnic facilities and
changing rooms can be flood proofed. Private development of conforming uses such as golf
courses can also be considered. The important point here is to integrate the land-use
planning for flood prone lands into the broader plans for the urban and surrounding area.

Zoning of flood-prone lands

The best way to reduce future flood damages is to prevent development from occurring on
flood-prone lands. Zoning of such lands is an effective approach, but generally should be
coupled with the broader land-use planning mentioned above so that the land has a defined
use. Zoning can be used to reduce damages from flooding and be flexible enough to
recognize that other forms of land use are compatible. An example is agricultural use of
lands in flood-prone areas where water velocities are low enough not to cause serious
erosion. Flood-prone lands can continue to be used for agricultural purposes, particularly in
countries where the amount of agricultural land is limited and self-sufficiency in food supply
is a national goal. It is important, however, to ensure that the supporting infrastructure
such as buildings and houses are located away from the flood-prone area or flood proofed.
It is also important that livestock, machinery or stored crops can be evacuated quickly from
the area in the event of a flood. This underscores the importance of a flood forecast,
warning and response system. Zoning of flood-prone lands as ecological reserves or
protected wetlands can often help to meet broader environmental or biodiversity goals. In
addition, such lands often play an important role in sustaining the fishery, and they can also
act as temporary storage and infiltration areas. Riparian buffer strips also reduce the
movement of agricultural chemicals and nutrients into the aquatic system.

Redevelopment of flood-prone areas

A major flood disaster is sometimes an opportunity to correct the planning errors of the
past. Removal of flood-prone development and conversion of the land to a conforming use
is an option to consider. It may be less expensive in the long run to physically relocate
flood-prone development, buy it out as part of a disaster assistance programme, or include
its purchase in long term planning. The success of the latter approach can be enhanced by
measures such as prohibiting improvements not required for health and safety, placing
caveats on the land title, and by obtaining rights of first refusal on resale. Compensation
and incentives Compensation as part of disaster assistance should always have as a goal
the reduction of future flood damages. Rather than simply paying for damages, the funds
should be focused on flood proofing, buy out, relocation and public education on the risks
and consequences of living on flood-prone lands.
In a similar manner, incentives can be developed that encourage flood proofing or
relocation, and these can be financed through cost-shared programmes. Here the cost of
flood proofing can be shared in proportion to the benefits to the various levels of
government of not having to compensate for future flood damages. Property owners should
also be expected to pay a reasonable share in view of the enhanced value of a flood-proofed
structure and the reduced inconvenience after a flood. Land exchange programmes can be
used as an incentive to relocate from flood-prone lands. In such cases a public entity makes
alternate land available and disaster assistance is generally used to pay for relocation or
replacement of structures, depending on the costs and benefits. Incentives can also take the
form of penalties. For example, if an individual is aware of the risk of flooding through such
programmes as flood plain delineation, or caveats on land titles, and still decides to build on
flood-prone land, then that person should bear the consequences of his/her actions and not
be eligible for disaster assistance. However this is difficult to enforce and is reliant on strong
political will at the time of announcing disaster assistance.
Insurance is an option that needs to be considered, but is probably not feasible in many
developing countries at this time.
Land-use planning
Branch of physical and socio-economic planning that determines the means and assesses
the values or limitations of various options in which land is to be utilized, with the
corresponding effects on different segments of the population or interests of a community
taken into account in resulting decisions.
Land-use planning involves studies and mapping, analysis of environmental and hazard
data, formulation of alternative land-use decisions and design of a long-range plan for
different geographical and administrative scales.
Land-use planning can help to mitigate disasters and reduce risks by discouraging high-
density settlements and construction of key installations in hazard-prone areas, control of
population density and expansion, and in the sitting of service routes for transport, power,
water, sewage and other critical facilities.

Environmental impact assessment (EIA)

Studies undertaken in order to assess the effect on a specified environment of the
introduction of any new factor, which may upset the current ecological balance.
EIA is a policy making tool that serves to provide evidence and analysis of environmental
impacts of activities from conception to decision-making. It is utilized extensively in national
programming and for international development assistance projects. An EIA must include a
detailed risk assessment and provide alternatives solutions or options.
Environmental degradation The reduction of the capacity of the environment to meet social
and ecological objectives, and needs.
Potential effects are varied and may contribute to an increase in vulnerability and the
frequency and intensity of natural hazards.
Some examples: land degradation, deforestation, desertification, wild land fires, loss of
biodiversity, land, water and air pollution, climate change, sea level rise and ozone
depletion.
Effects of Deforestation?

There are a number of adverse effects of deforestation, such as:

Erosion of Soil: When forest areas are cleared, it results in exposing the soil to the sun,
making it very dry and eventually, infertile, due to volatile nutrients such as nitrogen being
lost. In addition, when there is rainfall, it washes away the rest of the nutrients, which flow
with the rainwater into waterways. Because of this, merely replanting trees may not help in
solving the problems caused by deforestation, for by the time the trees mature, the soil will
be totally devoid of essential nutrients. Ultimately, cultivation in this land will also become
impossible, resulting in the land becoming useless. Large tracts of land will be rendered
permanently impoverished due to soil erosion.

Disruption of the Water Cycle: Trees contribute in a large way in maintaining the water
cycle. They draw up water via their roots, which is then released into the atmosphere. A
large part of the water that circulates in the ecosystem of rainforests, for instance, remains
inside the plants. When these trees are cut down it results in the climate getting drier in
that area.

Loss of Biodiversity: The unique biodiversity of various geographical areas is being lost on a
scale that is quite unprecedented. Even though tropical rainforests make up just 6 percent
of the surface area of the Earth, about 80-90 percent of the entire species of the world exist
here. Due to massive deforestation, about 50 to 100 species of animals are being lost each
day. The outcome of which is the extinction of animals and plants on a massive scale.

Flooding and Drought: One of the vital functions of forests is to absorb and store great
amounts of water quickly when there are heavy rains. When forests are cut down, this
regulation of the flow of water is disrupted, which leads to alternating periods of flood and
then drought in the affected area.

Climate Change: It is well known that global warming is being caused largely due to
emissions of greenhouse gases like carbon dioxide into the atmosphere. However, what is
not known quite as well is that deforestation has a direction association with carbon dioxide
emissions into the atmosphere. Trees act as a major storage depot for carbon, since they
absorb carbon dioxide from the atmosphere, which is then used to produce carbohydrates,
fats, and proteins that make up trees. When deforestation occurs, many of the trees are
burnt or they are allowed to rot, which results in releasing the carbon that is stored in them
as carbon dioxide. This, in turn, leads to greater concentrations of carbon dioxide in the
atmosphere.
Change in all above stated condition resulted Flooding, swat and northern area was riched
in forest but due to lack of knowledge and information amongst local people about
importance of these natural forest , caused serious consequences for them and rest of the
country in shape of floods.
Forecast Definite statement or statistical estimate of the occurrence of a future event
This term is used with different meanings in different disciplines.
Geological hazard Natural earth processes or phenomena that may cause the loss of life or
injury, property damage, social and economic disruption or environmental degradation.
Geological hazard includes internal earth processes or tectonic origin, such as earthquakes,
geological fault activity, tsunamis, volcanic activity and emissions as well as external
processes such as mass movements: landslides, rockslides, rock falls or avalanches,
surfaces collapses, expansive soils and debris or mud flows.
Geological hazards can be single, sequential or combined in their origin and effects.
Geographic information systems (GIS) Analysis that combine relational databases with
spatial interpretation and outputs often in form of maps. A more elaborate definition is that
of computer programmes for capturing, storing, checking, integrating, analyzing and
displaying data about the earth that is spatially referenced.
Geographical information systems are increasingly being utilized for hazard and vulnerability
mapping and analysis, as well as for the application of disaster risk management measures.

Geographic information systems

Geographic Information Systems (GIS) provide a computer-based information and
manipulation system useful in support off low forecasting and emergency response.
Information from a variety of sources and scales can be combined as a series of layers,
provided that the information can be identified in terms of the common denominator of
location. For example, information on vegetative cover can be combined with soils and land
slope information to estimate infiltration rates for forecasting purposes. Similarly layers of
utility, land use, flood plain delineation, and structures information can help in the
development and updating of emergency response plans. A good representation of the basin
topography is an important asset in flood forecasting, emergency action and mitigation. A
digital elevation model (DEM) or digital terrain model (DTM) for the basin should be
developed as part of any GIS. Technologies exist that enable the construction of a
"seamless best available" DEM. In other words the DEM is constructed from whatever
topographic information is available. Parts of the basin or certain features may be very
accurate while others may be quite basic. The DEM can be improved with time. The
development of inexpensive global position indicators has made GIS information easier to
obtain. For example, data network sites, buildings or physical features can now be easily
located with precision and at low cost. Land use, vegetative cover or soils information is also
easier to assemble. Mapping Maps of areas at risk from natural disasters are valuable
information and communication tools. They can be used for a wide variety of purposes
ranging from flood plain delineation, zoning and land use planning to presentation of
information at public meetings. Zoning maps, however, are static and may require updating
with time as changes occur. For static information, such as the delineation of the flood-
prone area, frequent updating is not required, and maps are a useful reference tool for a
wide variety of users. Visualization techniques.

GIS and other computer-based information

Systems allow for a wide range of presentational material to be easily generated and
tailored to the target audience. Three dimensional displays zoom and scan, and rotational
techniques can be combined with other informational material such as pictures, overheads
or slides. As an example, a GIS flood inundation map can be generated based on hydraulic
model derived information. The map can be conveyed to residents in the flood plain and is
useful for depicting the probable impact of the approaching flood.

Public awareness
The processes of informing the general population, increasing levels of consciousness about
risks and how people can act to reduce their exposure to hazards. This is particularly
important for public officials in fulfilling their responsibilities to save lives and property in
the event of a disaster.
Public awareness activities foster changes in behavior leading towards a culture of risk
reduction. This involves public information, dissemination, education, radio or television
broadcasts, use of printed media, as well as, the establishment of information centre and
networks and community and participation action

Measures and strategies for flood mitigation

Watershed Management
The water storage effect of vegetation, soil, shallow groundwater, wetlands and drainage as
a direct impact on the flood level in downstream areas. Each of these storage retain certain
quantities of water for various periods of time and can influence the timing of tributary flows
and hence their contribution to a flood event. The storage effect can be likened to a sponge
and is dependent on the antecedent conditions and the magnitude of the flood. the impacts
of land-use changes on flood events can be both positive and negative, so predictions are
hard to make for a specific watershed. Generally the removal of forest and other natural
cover, and the conversion of land to agricultural uses, compacts the soil and reduces
infiltration rates, leading to higher flood peaks. Deforestation is believed to have been a
significant cause of the catastrophic flooding in the Indus River. Deforestation and other
land-use practices can also lead to greater incidences of landslides and mud flows. Natural
water storage is also generally reduced due to the gradual loss of organic material and soil
erosion, once an area is converted to agriculture. Additionally, natural vegetation may
transpire moisture to the atmosphere at a greater rate than replacement crops, thereby
affecting both the amount of storage available in the soil and the amount of local rainfall.
Drainage of wetlands and marshes contributes directly to changes in the timing of runoff,
the amount of natural storage in the basin, and the vulnerability of the channel to the
erosive forces of water.

Climate Variability and Change

There is growing concern about the impact of changing concentrations of greenhouse gases
on our current climate system and the ramifications these changes might have on water
availability. It is believed that further alterations of atmospheric chemistry could lead to
increased abnormalities in climatic parameters such as temperature, precipitation and
evaporate transpiration and might well lead to more dramatic impacts on stream flow
patterns and extreme conditions. Some analyses of stream flow over the last 30 to 60 years
have shown evidence of increasing and decreasing trends in the low flows, with marked
geographic patterns to these trends. Thus far, there has been less evidence of trends in
annual flood data for natural Indus basin. However based on scenarios of projected future
atmospheric conditions, it is anticipated that there might be more pronounced alterations to
the stream flow regimes in various regions of the world. If these projections are correct,
more severe or extreme conditions may prevail.

Climate impacts on extreme events

A number of studies on the potential impacts of climate change on flooding have been
carried out as part of the work of the Inter governmental Panel on Climate Change These
studies indicate potential future increases in flood peaks of approximately 15% in temperate
zones due to increased storm activity and overall increases in depth of precipitation. At this
point in time, it is not possible to predict potential increases in flood peaks due to climate
change for specific basins with the degree of certainty necessary for their incorporation into
the design and planning process. However, the freeboard on levees and other works can
probably accommodate the potential modifications in extremes due to climate change
through modified operating procedures of control structures.

Development of Policies, Strategies and Plans

The development of policies, strategies and plans to combat the risks associated with
natural disasters should be based on a comprehensive risk assessment. This requires an
integrated approach whereby a wide range of mitigation measures should be considered.
For example, mitigation activities such as hazardous land mapping (i.e., flood plain mapping
plus landslide and mudslide-prone areas) should be designed so that considerations of other
disaster types lead to sounder overall land use plans. In essence, there would be very little
purpose in moving people and goods from one risk zone to another, especially if the other
hazard is equally or more apt to occur under the prevailing conditions such as torrential
rain. Within this overall process, full consideration needs to be given to the social,
environmental and economic impacts of policy and programme development. This chapter
provides guidance on aspects of flood hazards that need to be considered within the overall
planning process. The aspects contain adhere in are meant to complement other materials
in this guide, such as the development of a flow forecasting and warning system, which are
important tools within the range of options to be considered.

Basin wide planning

Reduction of flood losses must be considered, using the basin as the basic planning unit. It
is absolutely essential to have knowledge of water uses, diversions, storage, and
management practices in all parts of the basin, as well as the antecedent, present, and
forecasted meteorological and hydrological conditions. Tran¶s boundary basins represent a
special challenge in that international collaboration is required. In such cases consideration
should be given to expanding existing bilateral or regional arrangements for exchange of
data and information and to the negotiation of treaties or agreements.
Agreements can also include the option of projects of mutual advantage funded by all the
countries involved, including construction of flood storage or other flood preventative
measures at the most advantageous locations in the basin as a whole.

Drainage
All planned development, whether in the floodplain or not, must consider the implications
for its drainage on flood risk. In particular, this applies to development of green field sites,
for which the significant increase in impermeable area can considerably increase runoff
volumes and rates from the site. A strategic approach to the drainage of new urban areas is
likely to increase the effectiveness and efficiency of the drainage and flood risk management
proposals, and reduce the flood risks associated with new development.
Integrated Drainage Strategy
Opportunities for developing an Integrated Water or Drainage Management Strategy across
development site boundaries is recommended, and ideally a catchment-led approach should
be adopted.
Experience shows that integrated approaches often lead to a more efficient and reliable
surface water management system at a comparatively lower cost because it enables a wider
variety of potential flood mitigation options to be used, and a better overall design can be
achieved. Integrated management of surface water has potential benefits in addition to
flood risk, and can include improved water quality through the use of SuDS and a reduction
of water demand through grey water recycling / rain water harvesting. Once the preferred
development area(s) have been selected, consideration should be given at an early stage to
the best way to manage drainage to maximize benefits.

Sustainable Drainage Systems (SuDS)

PPS 25 requires that new development does not exacerbate flood risks elsewhere, which
means there is a need to control drainage and runoff to ensure there are no increases in
overland flow as a result of the development. Sustainable Drainage Systems (SuDS) are
designed to mitigate the propensity of development to generate additional runoff. When
considered at the planning stage, they can be implemented to reduce flood risk to
downstream areas.
³The philosophy of SuDS is to replicate as closely as possible the natural drainage from a
site before development« so reducing the impact on receiving watercourses. This requires a
reduction in the rate and volume of runoff from developments...

Guidelines for Reducing Flood Losses

The community and individuals must have a good understanding of what is expected of
them. A good example would be evacuation. Information that defines evacuation routes,
identifies emergency shelters, and specifies actions to be taken before leaving, such as
removing mobile equipment and removing personal goods and furniture, must be available
in advance. Preparedness and response plans detailed response plans need to be prepared
in advance and reviewed with all of the key agencies and players. There is no one"
common" response plan as the linkages will be different in each case. The response to
ataxic chemical spill is very different from the response to a major fire or flood. Not only
must the plan be in writing and available to those that will be responding, but also it must
be continually reviewed and updated. Some of the key pieces of information are: which
agency and individuals have the specific responsibility; whom to contact for expert advice;
and where to go for information on backup communication systems. This information is
constantly changing and needs to be verified periodically and tested in exercises Multiple
contact points need to be established as the emergency may occur on a week end, holiday,
or after regular business hours. Mechanisms for coordination must be included in the plan,
including the structure of response committees, where they will meet and sources of
resource information available to them. Often this takes the form of something equivalent to
a "war room" where maps, plans, other material and support staff are available
immediately. Inventory of resources A key component of any emergency preparedness plan
is an inventory of resources that can be accessed. In the case of flooding this could include
items such as emergency vehicles, buses and trucks, earthmoving equipment, pumps,
plastic, plywood, emergency generators, supplies of gravel and sand, sandbags, and mobile
communications equipment. The inventory should also include access to expertise such as
surveyors, levee or slope stability experts, forecasting specialists, the media and community
leaders. Emergency shelters should be designated in advance, their individual capacity
defined and plans made for obtaining sufficient supplies of water, food, medicine and
medical/social assistance. If local resources are not sufficient, then the availability circle
must be expanded to include adjacent communities, the provincial/state and national
government levels. Triggering emergency action Advance warning is the key to effective
response. It is possible to set up a series of warnings in advance of an actual extreme storm
event that can be used as alerts. This could start with long-term climatologic forecasts or
more immediate hurricane forecasts that identify potential danger. For specific basins an
alert could be issued based on antecedent precipitation and rainfall intensity data in
advance of an actual flood forecast. A more detailed forecast would then be issued when all
of the data and information required to make a flood forecast became available.
The emergency response to such alerts is very site-specific and should be included in the
plan. If, for example, emergency actions such as temporary levees are necessary, then the
work could begin based on an alert rather than the specific forecast. The same may hold for
emergency evacuation. The response to an extreme flood forecast should be immediate,
and with no un certainty as to what actions and activities should betaken. The public
expects governments to act quickly and in a professional manner under such circumstances.
Community leaders should be visible, informed and active right from the start. Training and
response exercises Emergency response teams need to be well trained in advance and their
skills constantly upgraded. Once the disaster strikes, it is too late to train or try to find
missing expertise.
Trained staff should know their responsibilities, have immediate access to response plans
and other critical information, and already have built a working relationship with colleagues
in other organizations.
The only meaningful way to test response plans is to carry out periodic emergency
exercises. These exercises are meant to simulate real emergency situations and test all
aspects of the plan. Costs are significant but have real payback in an actual emergency.
Often critical gaps are identified and appropriate backup strategies developed as part of the
exercise.

Advance preparation
Assuming that there is advance warning of a major storm event, a number of steps can be
taken to increase readiness. Such steps include: construction of temporary flood protection
works; placing emergency response teams on high alert; distribution of critical materials
such as stockpiled sandbags to targeted locations; and preparation of emergency shelters
and hospitals prepared for occupation.
The population at risk can be informed of what is expected of them in the actuality of an
extreme event. As the event becomes more certain, actions such as evacuation of people,
goods and machinery can begin. Even if the event is not as extreme as predicted, these
preparations help test emergency response plans and inform the public as to the nature of
natural hazards.
Media and public information sessions help set the stage as well. The media are key players
in the link between public officials and the public. It helps if they are familiar with the
terminology used in warnings and forecasts and know whom to contact for more detailed
information during an actual flood event.

After the flood event

The emergency response does not end with the event, but continues through cleanup and
resettlement stages. People will want to know what assistance will be made available, who
is responsible, and how to go about seeking that assistance. Senior levels of government
should develop clearly defined response policies and programmes in advance. In the
absence of such policies, the response is often ad hoc, politically and emotionally motivated,
and sets precedents that are not wise in the longer run.

Development of Policies, Strategies and Plans

The development of policies, strategies and plans to combat the risks associated with
natural disasters should be based on a comprehensive risk assessment. This requires an
integrated approach whereby a wide range of mitigation measures should be considered.
For example, mitigation activities such as hazardous land mapping (i.e., flood plain mapping
plus landslide and mudslide-prone areas) should be designed so that considerations of other
disaster types lead to sounder overall land use plans. In essence, there would be very little
purpose in moving people and goods from one risk zone to another, especially if the other
hazard is equally or more apt to occur under the prevailing conditions such as torrential
rain. Within this overall process, full consideration needs to be given to the social,
environmental and economic impacts of policy and programme development. This chapter
provides guidance on aspects of flood hazards that need to be considered within the overall
planning process. The aspects contained herein are meant to complement other materials in
this guide, such as the development of a flow forecasting and warning system, which are
important tools within the range of options to be considered. Basin wide planning Reduction
of flood losses must be considered, using the basin as the basic planning unit. It is
absolutely essential to have knowledge of water uses, diversions, storage, and management
practices in all parts of the basin, as well as the antecedent, present, and forecasted
meteorological and hydrological conditions.

CHALLENGES AND RECOMMENDATIONS

The biggest challenge for Flood Preparedness Planning is the under lying capacities of the
National, Provincial and district authorities as well as the lack of resources to under take
implementation of the priority activities. In most case, local resources and capacities are
often overlooked, thus relying too much upon external assistance. The linkages between
disaster management and the national and local socio-economic development processes are
most often ignored, resulting in re-creation of risks in already flood prone communities. For
a successful flood preparedness planning, it is imperative to learn from the experiences and
best practices for greater collaboration and information sharing to enhance the synergy and
to extend the resource base for more effective implementation of flood preparedness
programs. It is also important to establish and integrate FPP within the overall
developmental plan for securing resources for better implementation.

Note
These guidelines are developed by me to help Government of Pakistan and other
organizations working for flood victims in Pakistan.