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January 2021
Report of the Committee
Constituted for Formulation of
Strategy for Flood Management
Works in Entire Country and
River Management Activities
and Works Related to
Border Areas (2021– 26) Title: Report of the Committee Constituted for Formulation of
Strategy for Flood Management Works in Entire Country and
River Management Activities and Works Related to
Border Areas (2021– 26)
Publisher
NATIONAL INSTITUTION FOR TRANSFORMING INDIA, NEW DELHI
Date of Publication: January 2021
Copyright © NITI Aayog (2021)
Year of Publishing: 2021
Disclaimer
NITI Aayog does not claim copyright for any images produced in the
Report. No part of this report may be reproduced in any form (electronic or
mechanical) without prior permission from or intimation to NITI Aayog.
The full Report should be referenced as follows:
NITI Aayog (2021) “Report of the Committee constituted for formulation
of strategy for Flood Management Works in entire country and River
Management Activities and works related to Border Areas (2021– 26)”
Text from this Report can be quoted provided the source is acknowledged. Water is one of the greatest assets under the possession of mankind. It is a source of life but
when challenged, it also has ability to destroy the whole life structures. Throughout the history
of mankind, floods have brought untold wealth and prosperity to civilizations. Some of our most
prosperous civilizations flourished on the flood plains and the fertile great northern plain of India
which produces nearly 60 percent of our food grains is result of sediments brought by the floods
of Indus-Ganga-Brahmaputra and their tributaries. Yet at the same time, floods have caused
tremendous losses and resulted in untold suffering for millions of people. Even today, floods lead
all natural disasters in the number of people affected and in resultant economic losses, with these
numbers rising at alarming rates.
In response to such disaster, we have to move from the current paradigm of post-disaster response.
Plans and efforts must be undertaken to break the current event-disaster cycle. More than ever,
there is the need for decision makers to adopt holistic approaches for flood disaster management.
In this current report, NITI Aayog has tried to focus on the main causes of the floods which
in turn give us the sustainable solutions for this disaster. The report has clearly endorsed that
the effective and long lasting strategy involves combination of - structural and non-structural
measures along with the use of modern technology which can alleviate the problem of floods to
a great degree.
Our last experiences have clearly demonstrated that we need a paradigm shift from our
conventional approach of dam building to more non-structural measures like flood plain zoning,
flood forecasting, reservoir operations and state of art space technology. Along with this, we
have to focus on building a National Water Model for India which with the help of some scalable
models can be used to feed the information into a decision support system which can provide
support services to Nation by predicting and forecasting flood and other water related events.
This technology and their predictions will further assist us in making flawless Flood Management
plans.
One thing which every decision maker has to understand is that floods are not something which
we have to prevent. It is the destruction of livelihood which has to be minimized by leaving the
room of the river. Like any other natural entity, rivers have their own course and methods of
operation and in order to minimize the loss and destruction we have to develop a sustainable
ecology wherein both mankind and nature can benefit from each other.
Preface Flood is the most prevalent and costliest natural disaster in the world which devastates
both life and economy on large extent. Extreme flooding events are not relegated to
the least developed nations, but can also devastate and ravage the most economically
advanced and industrialized nations. The effective and long lasting strategy not only
involves structural and non-structural measures but also some important measures
like river rejuvenation, watershed development, land use planning, tree horticulture
along the banks of the rivers, creation of lakes and wet lands in both rural and urban
areas for flood management and water security. Through this report, NITI Aayog
has tried to explore all these options and present a comprehensive strategy for flood
management in entire country.
Message Foreword
The Kerala flood of 2018 was less intense than that of 1924 one, the biggest in Kerala’s history till
then. Yet it caused the unprecedented loss of lives, property and infrastructure. The mighty rivers
ruptured their banks and floodwaters gushed through the structures constructed on the floodplains.
Major reasons for the flood of such magnitude are unplanned construction and encroachment on
riverbeds that have reduced the capacity of rivers to carry flood waters. Unfortunately, this is not
just the picture from one disaster but in India the soaring rise in the damage from the flood is
result of the heedless construction and increasing activities in flood plains.
Flood plain zoning which is neglected in almost every effort of flood control and management
has to be one of the most important focal point of our strategy to manage floods. The lack of
protection of river floodplains from reprehensible acts like encroachment affects both the river as
well as those who encroach it adversely. Therefore NITI Aayog through “Report of the Committee
constituted for formulation of strategy for Flood Management Works in entire country and
River Management Activities and works related to Border Areas (2020 – 23)” has focused on
encouraging the States to adopt flood plain zoning.
Technology can also play an important role in tackling floods and it is very heartening to see that
we as a Nation have deciphered the way to it. The Central Water Commission is collaborating
with M/s Google Inc., to provide inundation alerts based on the Flood Forecast available in
Common Alerting Protocol (CAP) platform using high quality Digital Terrain Models available
with Google using Artificial Intelligence and Machine Learning. The system started functioning
from 2018 when inundation alerts were provided for Patna Gandhighat forecast stations. In
similar manner, Odisha is the first State in the country that has implemented an Early Warning
Dissemination System (EWDS) which aims at establishing a foolproof communication system
to address the existing gap of disseminating disaster warning from the State, District and Block
levels to communities. The Government of Kerala has also entrusted the Kerala State IT Mission
(KSITM) to set up an ICT Platform comprising of Web based backend and a mobile app-based
field survey application to document the flood related damage caused to houses and commercial
establishments in affected districts. Recently, students from IIT Madras have developed an AI-
enabled drone that can help authorities provide vital information on people trapped in disaster-
hit areas. All these examples show that innovations in flood forecasting and management can lead
the way for timely evictions and minimize the losses from the flood.
The report covers the constitutional position of the flood, approach and methodology for
mitigation of flood which focuses on non-structural and structural measures, efficacy of past flood
management programmes and way forward in terms of early warning system, flood inundation
level and decision support system. The present report is the result of incessant efforts of many people. I would like to acknowledge
the efforts of all the committee members which have come together under the able and excellent
leadership of Dr. Rajiv Kumar, Vice Chairman, NITI Aayog to produce this report. My special
thanks to Member, NITI Aayog, Dr. Ramesh Chand and Secretary, Department of Water
Resources, River Development and Ganga Rejuvenation, Ministry of Jal Shakti, Shri U.P Singh
for the continuous support and guidance in making of Report.
I would also acknowledge the efforts of Adviser (Water Resources) and Member Secretary of the
Committee, Shri Avinash Mishra and his team for convening the meetings, collating the inputs
and report writing.
With each disaster, there are numerous lessons to be learnt. India needs to observe, document
and ensure that these lessons are captured in the form of knowledge, which coupled with modern
technology can help the states in handling the disasters of the future. Table of Contents Preface v
Message vii
Foreword ix
Section 1
Floods: As the Nationwide Problem 1
Introduction 2
Flood prone states 3
Constitutional Position 4
Approach to Flood Management in The Country 5
Section 2
Structural and Non-Structural Measures for Flood Mitigation 9
Structural Approach 10
Non-Structural Approach 16
Section 3
Critical Review of Flood Management Works in India and some
solutions from International Best Practices 25
Important Government Initiatives 26
Critical Review of the various Flood Management Works in India 27
Solutions: International Case studies for better flood management 29
Section 4
Major Flood Events of the Country: Case Studies and Lessons Learnt 34
Uttarakhand Flood 2013 35
Tamil Nadu Flood 2015 39
Kerala Flood 2018 42
Bihar Flood 2019 46
Hyderabad Flood 2020 48
Section 5
Flood Management and Border Areas Programme (FMBAP) 51
Introduction 52
Flood Management Programme (FMP) 52 River Management Activities And Works Related To Border Areas 53
Flood Management and Border Areas Programme (FMBAP) 53
Salient Features Of FMBAP 54
FMBAP Scheme For The Period 2021-26 54
Section 6
National Water Model for India and preparation Flood Management Plans 59
Use of Technology 60
Development of National Water Model for India 61
Flood Management Plans 63
Section 7
Recommendations 67
Non-Structural Measures 68
Structural Measures 70
Flood Management and Border Areas Programme (FMBAP) 72
Official Order for Committee Formation 76
Official order for Sub Committee for “Formulation of Strategy for
Flood Management Works in entire country and River Management
Activities and Works related to Border Areas (2020-23) 78
Comparison of the existing guidelines with the revised guidelines
and reasons for the change in guidelines under the River
Management Activities in Border Area Programme (RMBA) 79
Important Government Initiatives and Policies on Floods 81
List of Large Dams having the Emergency Action Plans 83
Minutes of the Meeting held on 27th February, 2020 89
Minutes of the Meeting held on 27th May, 2020 95
NDMA Guidelines for Management of Urban Flooding
(Enclosed as separate Annexure with the report) Annexures List of Tables List of Figures Table 1: Flood Prone Area in India 2
Table 2: Major Flood Evens of Last few Years 34
Table 3: Damage of Uttarakhand Flood 36
Table 4: District wise rainfall during 1 June 2018 to 22 August 2018 42
Table 5: Damage due to Flood 46
Table 6: Revision of monetary limits for appraisal of flood control scheme 56
Table 7: Revision of monetary limits for appraisal of flood control scheme 73
Figure 1: Average Annual Damage due to flood (1953-2018) 3
Figure 2: Flood Prone Areas in India 4
Figure 3: Various Structural Methods for Flood Control 13
Figure 4: Two Tier System of Flood Management in India 26
Figure 5. Various approaches to Flood Management 31
Figure 6: The Indian Meteorological Department image (17th June 2013) suggested
heavy rainfall on the higher reaches of Uttarakhand, Himachal and Nepal Himalaya 36
Figure 7: Kedarnath Before and After the Flood 37
Figure 8: Chennai Flood 39
Figure 9: Rain gauge stations of Kerala used for rainfall analysis 43
Figure 10: Kerala Flood snapshots 46
Figure 11: Patna in 2019 Flood 47
Figure 12: Hyderabad Flood 2020 Snapshots 49
Figure 13: IoT Sensors 61
Figure 14: AI Based Flood Forecasting 62
Figure 15: National Water Model for India 63 AIArtificial Intelligence
ALTMAirborne Laser Terrain Mapping
ANNArtificial Neural Network
ARGAutomatic Rain Gauge
AWSAutomatic Weather Station
BBBrahmaputra Board
BCMBillion Cubic Meter
BEBBeach Erosion Board
CAGComptroller and Auditor General
CAPCommon Alerting Patrol
C-DoTCentre for Development of Telematics
CMISCoastal Management Information System
CMPCrises Management Plan
CONUSContinental United States
CPDACCoastal Protection and Development Advisory Committee
CWCCentral Water Commission
DMDam Management
DMSPDisaster Management Support Programme
DoWR, RD, GR
Department of Water Resources, River Development & Ganga
Rejuvenation
DPRDetailed Project Report
DRIPDam Rehabilitation and Improvement Project
DTMDigital Terrain Model
DoLRDepartment of Land Resources
DSSDecision Support System
DVCDamodar Valley Corporation
EoCsEmergency Operations Centers
EAPEmergency Action Plan
FCIFlood Control InfrastructureList of Abbreviations FCMTFlood Crises Management Team
FFFlood Forecast
FMBAPFlood Management and Border Area Programme
FMPFlood Management Programme
FMPsFlood Management Plans
FRLFull Reservoir Level
FYPFive Year Plan
GAGenetic Algorithms
GFCCGanga Flood Control Commission
GHLSCGandak High Level Standing Committee
GISGeographic Information System
IIScIndian Institute of Science
IITIndian Institute of Technology
IMCInter- Ministerial Committee
IMDIndia Meteorological Department
IoTInternet of Things
IROIntegrated Reservoir Operation
KHLCKosi High Level Committee
MEAMinistry of External Affairs
MhaMillion Hectare
MHAMinistry of Home Affairs
MLMachine Learning
MoCITMinistry of Communication and Information Technology
MoEFCCMinistry of Environment, Forest and Climate Change
NDMANational Disaster Management Authority
NGONon-Governmental Organization
NHPNational Hydrology Project
NITNational Institute of Technology
NDRFNational Disaster Relief Fund
NRSCNational Remote Sensing Centre
NWDANational Water Development Authority
NWICNational Water Information Center NWMNational Water Mission
NWMNational Water Model
NWPNumerical Weather Prediction
PDAPancheshwar Development Authority
QPFQuantitative Precipitation Forecast
RBARashtriya Barh Aayog
RBORiver Basin Organization
RCCReinforced Cement Concrete
RMBARiver Management Activities and Works related to Border Areas
RTURemote Terminal Unit
SDMAState Disaster Management Authority
SDRFState Disaster Relief Fund
STACState Technical Advisory Committee
UASUnmanned Aircraft System
UAVUnmanned Aerial Vehicle
UCUtilization Certificates
WIMSWater Information Management System Details of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities
and works related to Border Areas (2020 – 23)
On the instruction of the Prime Minister’s Office (PMO), a Committee was constituted to develop
the strategy for flood management for next three years. It was instructed that the strategy should
have clear priorities, costs and deliverables for next three years.
Members of the Committee
1. Vice-Chairman, NITI AayogChairman
2. Member, Water and Agriculture, NITI AayogMember
3. CEO, NITI AayogMember
4. Secretary, Department of Water Resources, RD & GR, Ministry of Jal
Shakti
Member
5 Secretary, Department of SpaceMember
6. Additional Secretary (Border Area Management), Ministry of Home
Affairs
Member
7. Joint Secretary, Ministry of External AffairsMember
8. Member Secretary, National Disaster Management Authority Member
9. Commissioner, Flood Management Programme, Department of Water
Resources, RD & GR, Ministry of Jal Shakti
Member
10.Member (River Management), Central Water Commission,Sewa
Bhavan, Sector 1, RK Puram, New Delhi
Members
11.Principal Secretaries (Irrigation) of Governments of Jammu & Kashmir,
Uttar Pradesh, Bihar, West Bengal, Punjab, Assam, Arunachal
Pradesh, Tripura, Madhya Pradesh and Kerala
Members
12.Director, Central Water and Power Research Station, Pune Member
13.Prof. Deepak Khare, Department of Water Resources Planning and
Management, IIT-Roorkee
Member
14.Dr. Sharad K. Jain, Director, National Institute of Hydrology, RoorkeeMember
15.Dr. (Prof.) Biswa Bhattacharya, Hydro-informatics, IHE Delft Institute
for Water Education, Delft, The Netherlands
Member
16.Adviser, Water Resources, NITI AayogMember Secretary Terms of Reference
of the Committee 1. Chalking out Strategy with clear priorities, costs and deliverables for flood management in
the country and river management activities and works in border areas, for the years 2020-
2023.
2. Devise strategy for urban flood and flash flood mitigation, preparedness and management.
3. Undertake the assessment of impact of climate change on probability of floods in the country.
4. To enlist the priorities, which are deconstructed clearly into medium term and short term
measures over the next three financial years along with funding requirements and its
mechanics, timelines and deliverables.
5. Suggest policy interventions required for optimally addressing the problem of flood
management and river management activities and works in border areas.
6. Identification of various mechanisms / technological interventions / institutional arrangements
for flood management and river management including state-of-the-art space technology for
designing mechanisms for early warning for floods and other river management works.
7. To make a framework to identify inter-sectoral and inter-ministerial issues and arrive at an
action-plan for solving the same.
8. Study the best practices followed globally for flood defense, prevention, protection,
preparedness and mitigation, and appraise their replicability and scalability in the Indian
context.
9. Spell out the strategy for the catchment area treatment works to prevent sediment load into
the rivers along with the extent of fund requirement.
10. To work out fund requirements scheme-wise and state-wise as per the priority. Executive Summary Flood is the most recurrent natural calamity and its high time that we should formulate and
implement sustainable mitigation measures. The effective and long-lasting strategy involves
combination of - structural and non-structural measures along with the use of modern technology
which can alleviate the problem of floods to a great degree. The previous plans/strategies of the
government to tackle flood emphasized predominantly on the usage of medium-term measures
such as embankments, spurs and channelization of rivers. The long-term structural measures
like Dams, Reservoirs, detention basins etc have been used in few cases. The long-term measures
should be taken up in the cases where there is compulsion for protection of larger area, population
or assets. In majority of the places, less expensive non-structural measures like flood forecasting,
flood plain zoning, flood proofing etc should be adopted to accommodate high spat of water.
The room of the river should be provided by taking up the measures like creating wetlands, lakes
and check dams. The construction of embankments/levees should be taken up as the medium-
term measures to provide protection to the railway lines, national highways, valuable assets or
international boundary. The medium-term measures should be used after the detailed study of
river morphology for the entire length of river stretch so as to avoid erosion at one bank and
aggradation at another bank or subsequent erosion on upstream and aggradation on downstream
and vice versa. Therefore, construction of embankments should be taken up only after the detailed
study of the basin.
The committee is of the view to provide priority to non-structural measures to mitigate the
floods and shall go for long term and medium-term structural measures when and where those
are unavoidable. Aayog also like to emphasize the use of advanced technology like artificial
intelligence, satellites, remote sensing and GIS for flood forecasting and warning systems. The
committee proposes National Water Model for India which can be built with the help of some
scalable models. These models can be used together to feed the information into a decision
support system which can provide support services to Nation by predicting precipitation and
forecasting flood and other water related events.
The committee has also proposed to extend the Flood Management and Border Area Programme
(FMBAP) for the period of 2021-26, co-terminus with the period of 15th Finance Commission
with the provision of inclusion of new projects for funding under the scheme. Keeping in view the
persistent demand from States to include new schemes under central funding, as no new projects
have been included for central funding since the year 2015, the proposed outlay of the FMBAP
Scheme for the period 2021-26 shall be around Rs. 15,000 Crores. Some changes like revisions in monetary limits for appraisal of flood control schemes etc have been suggested in the scheme for
its successful implementation.
The committee has also advocated the formation of Flood Management Plans which can also
help in rescue and relief works during and after the floods. Aayog also proposes for the policy to
provide flood cushion in the existing dams to accommodate peak time flood so that the tragedy
like Kerala floods doesn’t repeat itself. 1
When we talk of flood control, we usually think of dams and
deeper river channels, to impound the waters or hurry their
run-off. Yet neither is the ultimate solution, simply because
floods are caused by the flow of water downhill. If the hills are
wooded, that flow is checked. If there is a swamp at the foot
of the hills, the swamp sponges up most of the excess water,
restores some of it to the underground water supply and feeds
the remainder slowly into the streams. Strip the hills, drain
the boglands, and you create flood conditions inevitably. Yet
that is what we have been doing for years.
Hal Borland
Section 1
Floods:
As the Nationwide Problem 2
Introduction
Flood is the most prevalent and costliest natural disaster in the world which devastates both
life and economy on large extent. It is defined as, “High-water stages in which water over flows
its natural or artificial banks onto normally dry land, such as a river inundating its floodplain.”
India receives major rainfall in four months spanning from June to September. Distribution
of rain across India is dissimilar as some areas receive heavy rainfall while some are at deficit.
The variation also varies time to time; the areas which are not traditionally prone to floods also
experience severe inundation due to downpour and cloud bursting. Urban flood has become one
of the major problems now a days, the recent floods in Kerala, Uttarakhand and in metropolitan
cities like Delhi, Mumbai, Kolkata point towards the need for proper management of floods and
the drainage system.
The Rashtriya Barh Ayog (RBA) estimated the total area liable to floods in the country as 40
Million Hectare (Mha). The extent of maximum area affected by floods in any year during 1953-
2010 as per the Report of Working Group on Flood Management and Region-Specific Issues
for XII Plan is 49.815 Mha
1
. Out of it, nearly 21 Mha can be provided with reasonable degree of
protection. Based on the statistical details available so far, it has been estimated that annually 7.17
mha. of area is affected with floods of which 3.94 mha. is cropped area. On an average, floods
claim 1654 human and 618248 cattle life annually. Around 1.2 million houses are damaged by
floods and the average annual losses in monetary terms came to the tune of Rs 5649 crores
2
.
India faces floods almost every year, in varying degrees of magnitude. The frequent occurrence
of floods can be attributed to factors like wide variations in rainfall both in time and space with
frequent departures from the normal pattern, inadequate carrying capacities of rivers, river bank
erosion, degradation of hilly catchment and silting of river beds, landslides, poor natural drainage
in flood prone areas, glacial lake outbursts, cloud burst, etc. The country suffers huge economic loss
annually besides the loss of precious human lives due to floods. There are evidences of increasing
number of high intensity rainfall event in the recent years varying non-uniformly in space and
time. Such events lead to flash floods. Urban flooding due to storm water drainage congestion
(pluvial in nature) has also become common in towns/cities due to such extreme meteorological
events. The devastation caused due to floods in the past has drawn attention of the planners of the
country towards comprehensive flood management plans, policies and implementation thereof.
Table 1: Flood Prone Areas in India
S.no.ParticularsArea
1.Flood Prone Area by Rashtriya Barh Ayog (RBA, 1980) 40 Mha
2.
The extent of maximum area affected by floods in any year
during 1953-2010 as per the Report of Working Group on
Flood Management and Region-Specific Issues for XII Plan
49.815 Mha
1 Report of Working Group on Flood Management and Region-Specific Issues for XII Plan 2011.
2 CWC Database. 3
3.Annually affected Area7.17 Mha
4.Annually affected Cropped Area3.94 Mha
5.Area provided reasonable degree of protection 21 Mha
6.
Target area to provide reasonable degree of protection
by 2035
35 Mha (additional 14 Mha
phased in 15 years: 4+5+5)
Monetary
Damages
5694 cr
Loss of
cattle life
618248
Loss of life
1654
Flood
Damages
Houses
Damaged
1.2 m
Monetary
Damages
5694 cr
Loss of
cattle life
618248
Loss of life
1654
FLOOD
DAMAGES
Houses
Damaged
1.2 m
Figure 1: Average Annual Damage due to flood (1953-2018)
Flood prone states
The Ganga-Yamuna basin states of Haryana, Himachal Pradesh, Uttar Pradesh, Bihar, West Bengal
are prone to floods. Also, Assam gets affected due to floods in Brahmaputra river. The delta
parts of river basins of Mahanadi (in Odisha), Godavari, Krishna, Pennar (In Andhra Pradesh),
Narmada, Sabarmati and Tapti basin areas in Gujarat are identified as prone to floods. However,
of late, the upper reaches of river basins of Krishna, Godavari caused severe floods in the states
of Karnataka and Maharashtra. Even states like Kerala received significant rainfall in 2018 causing
widespread floods and damage to life and property in almost entire state. The peninsular India
faces flood situation during the retreating NE monsoon cyclones during October-November.
4
Figure 2: Flood Prone Areas in India
Source: WRIS- The state of J&K is now divided into UTs of J&K and Ladakh. The state of Andhra Pradesh is divided into Telangana and
Andhra Pradesh.
Constitutional Position
As per constitutional provisions, the subject of flood management including erosion control falls
within the purview of the States. The flood management and anti-erosion schemes are planned,
investigated and implemented by the State Governments with own resources as per priority within
the State. The Union Government only renders assistance to States which is technical, advisory,
catalytic and promotional in nature.
The subject of flood control, unlike irrigation, does not figure as such in any of the three legislative
lists included in the Constitution of India. However, drainage and embankments are two of the
measures specifically mentioned in Entry 17 of List II (State List), reproduced below:
“Water, that is to say, water supplies, irrigation and canals, drainage and embankments, water
storage and water power subject to the provision of entry 56 of List I (Union List).”
Entry 56 of List I (Union List) read as follows: 5
“Regulation and development of inter-State rivers and river valleys to the extent to which such
regulation and development under the control of the Union is declared by Parliament by law to
be expedient in the public interest.”
It may be seen that the primary responsibility for flood control lies with the States. A number
of States have already enacted laws with provisions to deal with matters connected with flood
control works. However, there exists a significant provision that the powers to be exercised are
subject to Entry 56 of Union List. It may be pointed out that Entry 17 of List II (State List) quoted
above does not cover land use involved in the administrative measures of dealing with reduction
of flood losses viz. flood plain zoning.
Approach to Flood Management in The Country
The flood management practices have largely focused on reducing flooding and reducing the
susceptibility to flood damage through variety of interventions. Different measures have been
adopted to reduce the flood losses and protect the flood plains. Depending upon the nature
of work, flood protection and flood management measures are broadly classified as under: (a)
Structural Measures (b) Non-Structural Measures
Structural Measures for Flood Management: The structural measures for flood control which
bring relief to the flood prone areas by reducing flood flows and attenuating the flood levels are:
a. A reservoir created behind a dam across a river
b. A natural depression suitably improved and regulated, if necessary
c. By diversion of a part of the peak flow to another river or basin, where such diversion
would not cause appreciable damage.
d. By constructing a parallel channel by-passing a particular town/reach of the river prone
to flooding.
The structural methods of flood protection/anti erosion, which do not reduce the flood flow but
reduce spilling are:
a. Embankments which artificially raise the effective river bank and thereby prevent spilling.
b. Channel and drainage improvement work, which artificially reduce the flood water level
so as to keep the same, confined within the river banks and thus prevent spilling.
c. Anti-erosion measures which prevent further loss of valuable land.
d. River channelization works to train the braided rivers to flow in a desired course to
prevent further loss of land and to induce siltation.
Non-Structural Measures for Flood Management: The non-structural measures to mitigate
adverse impact of floods involve the following:
a. Disseminating advance warning of incoming flood through a flood forecasting system
and facilitating timely evacuation of the people to safer grounds. 6
b. Discouraging creation of valuable assets/settlement of the people in the areas subject to
frequent flooding i.e. enforcing flood plain zoning regulation.
Urban Floods
Increasing trend of urban flooding is a universal phenomenon and poses a great challenge to
city administration and urban planners the world over. Problems associated with urban floods
range from relatively localized incidents to major ones, resulting in cities being inundated from
a few hours to several days. Therefore, the impact can also be widespread, including temporary
relocation of people, damage to civic amenities, deterioration of water quality and risk of
epidemics. The problems posed by urban flooding are quite challenging and aggravate with
continuous climate change, with its adverse impact affecting variation in rainfall and intra-city /
intra-region disparities in the distribution of rainfall. Unplanned development and encroachments
by sprawling habitations alongside rivers and watercourses have meddled with the natural streams
and watercourses. As a result of this, the runoff has increased in proportion to urbanization
of the watersheds causing urban floods. In recent years, the challenges posed by Urban Floods
coupled with rapid urbanization and climate change requires altogether different approach in
comparison to riverine floods. National Disaster Management Authority (NDMA) has brought
out detailed guidelines for management of urban floods to boost the efforts for urban flood
disaster management and strengthen the national vision of moving towards a more proactive pre-
disaster preparedness and mitigation centric approach. These guidelines contain all the details
that are required by planners and implementers and help Central Ministries/ Departments and
the States/ UTs in preparing the plans. The guidelines are attached as Annexure VIII of the report.
In order to check the threat of urban flooding, each city should have their Flood mitigation plans
(floodplain, river basin, surface water, etc.) amalgamated with the overall land use policy and
master planning of the city.
Impact of Climate Change on probability of flood
Impact of climate change can be witnessed largely in every sector of the economy leading to huge
social, environmental and economic losses. Besides, scientists and environmentalists, local people
have also started experiencing wrath of climate change. Frequent and unexpected flooding is one
of the worst tangible outcomes of climate change. Climate change has intensified the occurrence
of natural events by modifying the amount, the distribution and the timing of precipitation,
aggravating the incidences of floods in both coastal and land locked regions.
Broadly, climate change can exacerbate the flood situation in two-fold manner:
1. Sea level rise due to melting of glaciers can submerge coastal areas of country degrading
fresh water resources due to sea water intrusion, destroying coastal communities and
impairing economy while affecting agriculture, industry and tourism sector. 7
2. Variation in intensity of rainfall: The climate change has caused to increase the frequency
of short duration heavy rainfall leading to higher water run-off. It has been observed that
due to global warming, increasing temperatures can result into increase in total rainfall
coupled with simultaneous decrease in rainy days. Moreover, the steady rainfall with
distributed rainy days may get replaced by flashy and momentous rainfall adding large
amount of water in a short span of time leading to a disaster.
Natural Disasters always have a huge economic cost attached to it wherein it has also been seen
that floods are the most economically damaging climate impact. As per the report published by
Asian Development Bank, floods account for more than half of climate-related disasters in India
and cause damages of $54.63 billion during 1990–2017. Furthermore, the worst flood of Kerala in
2018 led to the estimated losses of US$ 4.25 billion displacing over 8,00,000 people in the region.
Besides this, it has also been estimated that one percent increase in floods can reduce economic
growth by 2.7%. Hence, the rising intensity of floods due to climate change calls for urgent need
for government functionaries to be well prepared to handle the aggravated situation of flood in
the country.
The structural and non-structural measures should be considered meticulously to get prepared
for flood like situation in the country. Maintaining the flood plain zones, reviving the urban
wetlands, effective storm water management are few of these measures to be considered.
Pragmatic Approach for Flood Management in Country
Providing absolute protection to all flood prone areas against all magnitude of floods is neither
practically possible nor economically viable. Such an attempt would involve stupendously high cost
for construction and operation & maintenance. Hence a pragmatic approach in flood management
is to provide a reasonable degree of protection against flood damages at economic cost through a
combination of structural and non-structural measures. The State/UT Governments have largely
focused on the structural measures through their investments on flood management works, anti-
erosion, anti-sea erosion, drainage development and maintenance works commensurate to the
problems faced by them. Such works are implemented through the State WR/Irrigation/Flood
Control/Public Health Departments. Govt. of India under Flood Management Programme (FMP)
has been providing promotional financial assistance to States for such works in critical areas
subject to budgetary allocations. Govt. of India has also been contributing through the non-
structural measure of flood forecasting and warning on inter-State rivers which is less capital-
intensive and has enabled the State Governments to take advance action/ measures to save
valuable life and property. The Flood Management Programme (FMP) with an outlay of Rs. 8,000
crores were implemented by the Government of India in XI Five Year Plan to provide financial
assistance to States/UTs in implementing flood management projects. The Scheme was continued
with outlay of Rs. 10,000 crores during XII Plan. Another scheme “River Management Activities
and Works related to Border Areas (RMBA)” was started in XI Plan with an outlay of Rs 820 8
@prakhar photography
Cr and was continued in XII Plan also with an outlay of Rs 740 Cr for taking up of different
works in Border areas. Both the schemes were merged as Flood Management and Border Areas
Programme (FMBAP) and continued for the year 2017-20 with merged components.
Inter-sectoral Contribution
Aftermaths of flood are struck across different sectors. By means of the flood protection
measures transportation network, power-transmission lines, amenities of civic
communities and the bio-diversity in forest and non-forest land are saved from the peril.
The custodian agencies of such sectors may be encouraged to earmark some budgetary
allocations towards the flood management initiatives, which will be instrumental in
ensuring cross-sectoral involvement. 9
Section 2
Structural and Non
Structural Measures for
Flood Mitigation 10
Structural Approach
The traditional approach to flood management is to decrease the intensity of flood peak by
holding or diverting a part of inflows or increasing the capacity of stream to enable passage of
flood peak without spilling. The structural measures of flood management are aimed to keep
the floods away from the people and several structural approaches for flood management are
discussed in succeeding paragraphs.
1. Reservoirs: Reservoirs can moderate the intensity and timing of the incoming floods.
They store water during periods of high discharges in the river and release it after
the critical high flow condition is over, so as to be ready to receive the next wave of
floods. Their effectiveness in moderating floods would depend on the reservoir capacity
available at that time for absorbing the flood runoff and their proximity to the likely
damage centre. They are operated with a carefully planned regulation schedule which
takes into account both the safety of the dam and related structures and the safe carrying
capacity of the lower reaches of the river in their present condition. Reservoirs are more
effective for flood management if, apart from the incidental moderation available for
any type of storage on a river, specific flood cushion is earmarked, as in the case of DVC
dams across the Damodar and its tributaries. A solution to floods lies in construction of
large storage reservoirs which moderate flood peaks by adopting appropriate reservoir
operation schedule. However, the construction of large reservoir have many challenges
and constraints like topographic, geological, geographical, environmental, submergence,
interstate & international issues, long gestation period, water sharing etc.
Government of India has been regularly interacting with the Government of Nepal for
construction of dams on the cross border rivers flowing from Nepal to India for mutual
benefit of the two countries which includes flood control. Survey and investigation
including preparation of DPRs of Sapta Kosi High Dam Project and Sun Kosi Storage
cum Diversion scheme proposed in the Sapta Kosi basin in Nepal along with Kamla
(tributary of Kosi) and Bagmati (tributary of Kosi) has been undertaken jointly by India
and Nepal. Pancheshwar Development Authority (PDA) has been set up jointly by India
and Nepal for execution, operation and maintenance of the Pancheshwar Multipurpose
Project on river Sharda. The projects will provide significant flood control benefits to the
states of Uttar Pradesh and Bihar and their implementation need to be fast tracked. In
order to mitigate Brahmaputra flood, flood storage is essential in Subansiri, Siang, Dibang
and Lohit sub basins. Several projects have been identified in these sub-basins. However,
except for Lower Subansiri Project, not much progress has been achieved on ground in
respect of identified projects. As per a study by CWC, in order to mitigate Brahmaputra
flood at Pandu, Guwahati, from 22 lakh cusec to 14-15.5 lakh cusec (reduction in level
by 1.25 to 1.6 m) aggregate flood storage of the order of 13.30 BCM would be required
in various sub-basins. In order to mitigate Barak flood, flood storage is also essential
in Barak basin. There is an urgent need to expedite implementation of these identified 11
projects. The National Water Policy (2012) emphasize that all water resources projects,
including hydro power projects, should be planned to the extent feasible as multipurpose
projects with provision of storage to derive maximum benefit from available topology
and water resources.
2. Detention Basins/ Wet Lands: Detention basins are usually formed by utilizing natural
depressions/ swamps and lakes by improving their capacity by constructing encircling
embankments and providing suitable devices for regulating the release of stored
waters. Since, the land under the marshes or low depression may hardly require much
compensation and rehabilitation measures, this method is relatively inexpensive. The
Ghaggar detention basin in Rajasthan is a good example. Depressions available upstream
of Srinagar City, on the left bank of river Jhelum, the Mokama Tal area in Bihar and
Ottu, Bhindawas, Kotla lakes in Haryana and various beels/ haors of Barak basin are
some examples of natural basins. It has been observed that in view of growing pressure
on land resources, particularly in and around urban areas, there are cases where naturally
occurring detention have been encroached upon or their path obstructed. To get benefit
of flood control, it is essential that such tendencies are curbed and the basins are restored
to their natural state. Integration of such Detention basins/Wetlands with other structural
measures in form of embankments, cross drainage works in form of sluices etc. may be
beneficial for managing floods in an efficient manner.
3. Embankments: Embankments (including ring bunds and town protection works)
confine the flood flows and prevent spilling, thereby reducing the damage. These are
generally cheap, quick and most popular method of flood protection and have been
constructed extensively in the past. These are reported to have given considerable
protection at comparatively low costs, particularly in the lower reaches of large rivers.
The raising and strengthening of existing embankments have also been taken up in many
of the flood prone States. In order that this work is done adequately it is necessary to
adopt the flood frequency approach in their redesign, taking into account the data of
historical floods, which is now available. Efforts of the State Governments have so far
been concentrated mostly on undertaking these measures like raising & strengthening of
the existing embankments, and also construction of new embankments. During XI and
XII Plan period with Central assistance under Flood Management Programme (FMP) of
Ministry of Jal Shakti, State Governments have taken up several projects for construction
of embankments. So far State Governments have built 37073 km length of embankments
in the country which includes projects undertaken from their own resources till March,
2017. The efforts in this regard may need to be continued in the times to come, as per
site specific requirement.
4. Channelization of Rivers: Some of the States are proposing channelization of rivers, at
least in certain reaches, in the context of tackling the extensive meandering problems of
the rivers, activating navigational channels and training these rivers into their original
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courses by means of constructing embankments on both banks. As the river Brahmaputra
and some of its tributaries are very much braided in nature, the State of Assam is taking
up river channelization and dredging measures for training the oblique channels for
preventing severe erosion. While venturing to channelize rivers, thought must be given
in allowing the river certain freedom to flow and right of way to pass its flood waters
and silt load within its natural waterway. The dynamic nature of the rivers should be
appreciated and preventive measures planned accordingly instead of pinning down the
river by channelizing.
5. Channel Improvement: The method of improving the channel by improving the
hydraulic conditions of the river channels by desilting, dredging, lining etc., to enable the
river to carry its discharges at lower levels or within its banks has been often advocated
but adopted on a very limited extent because of its high cost and other associated
problems. Dredging operations of the Brahmaputra, which were undertaken in the early
seventies on an experimental basis, were discontinued because of their prohibitive cost
and limited benefits. The issue of dredging/de-silting of rivers has been studied by various
experts/ Committees and it has been opined that de-silting/dredging in general is not
feasible technically, due to several reasons like non-sustainability, cost effectiveness, non-
availability of vast land required for the disposal of dredged material, etc. Dredging in
selected locations may perhaps be considered as a component of a package of measures
for channel improvement to check the river bank erosion subject to techno-economic
justification. It may be economically justifiable as a method for channel improvement
where navigation is involved. Dredging is sometimes advocated for clearing river mouth
or narrow constrictions.
6. Drainage Improvement: Surface water drainage congestion due to inadequacy of natural
or artificial drainage channels to carry the storm water discharge within a reasonable
period causes inundation and damages. It is often difficult to distinguish between flood
and drainage congestion situations. This problem is rather acute in Andhra Pradesh,
Bihar, Haryana, Punjab, Orissa, Uttar Pradesh, Assam and West Bengal. Therefore,
improvement of drainage by construction of new channels or improvement in the
discharge capacity of the existing drainage system is recommended as an integral part of
the flood management programme in the country. The adequacy of existing sluices and
drainage channels should be reviewed in areas suffering from drainage congestion. If the
capacities of existing sluices in embankments and drainage channels are inadequate, this
should be improved by increasing the vents and improving outfall conditions. Drainage
improvement and embankment together have resulted in protecting area of about 20.54
Mha from floods. 13
Lower Subansiri ProjectMokama Tal area in Bihar
Before ChannelizationAfter Channelization
Green Method for Flood ControlGroynes
Figure 3: Various Structural Methods for Flood Control
7. Diversion of Flood Waters/ Interlinking of Rivers: Diversion of flood waters as a
flood control measure involves transfer of a part of the flood discharge to another basin
or to the same basin downstream of the problem area or to a depression where it could 14
be stored for subsequent release. This measure can be used to manage unusual floods
around cities as in the case of flood spill channel near Srinagar and also in the lower
reaches of a river near the sea as in the case of Krishna Godavari drainage scheme. The
projects for interlinking of rivers for diversion of flood water to water scarce areas may
be taken up in a time bound manner. Large dams and canal systems are proposed to
be constructed for storage and transfer flood waters of the surplus river in inter basin
water transfer proposals. NWDA has identified 30 inter-basin transfer links (16 under
Peninsular component and 14 under Himalayan components).
8. Watershed Management: The watershed management measures include developing
and conserving the vegetative and soil covers (Catchment Area Treatment) and also to
undertake structural works like check-dams, detention basins, diversion channels, etc.
In the watershed management of upper catchment, land treatment through afforestation
and grass land development practices should be supplemented by structural works for
retarding the water velocity and arresting silt. By proper management of watershed, silt
carried and deposited in the lower reaches of rivers can be reduced, leading to better
carrying capacity of the channel and thus serves as an effective flood control measure.
Catchment Area Treatment measure may be termed as Green Measures for flood
management. The treatment involves understanding of the erosion characteristics of
the terrain and identifying/ suggesting remedial measures to reduce the erosion rate. It
is also considered as soft engineering measures for reducing the silt load in river thereby
increasing the discharge carrying capacity of the river and hence protection against
flood. Generally, it deals with vegetation growth in catchment area to hold soil from
erosion. Watershed management works in the hilly catchments of the rivers originating
in Nepal, Bhutan as well as in hilly areas of India should be selectively chosen and
funded through central assistance. Nodal Ministry viz Ministry of Rural Development,
Department of Land Resources for the watershed management works may work out a
detailed programme in consultation with Ministry of Jal Shakti, other stake holders and
State Governments.
9. Anti-Erosion Works: Alluvial rivers are characterized by meandering from one bank
to another. It erodes constantly materials from concave bends and deposits between
two successive bends or deposits along the convex banks of successive bends. The flow
pattern along its path changes considerably from flood to flood. River bank erosion
leads to loss of valuable land and related socioeconomic problem. Rivers in flood plain
can be aggrading, degrading or stable depending upon silt deposition or erosion. A
variety of factors play a major role in causing bank erosion. These parameters among
others include river curvature, reverse / cross flows, composition of bed / bed material
etc. Anti-erosion works in the form of bank revetment, spurs, porcupines (RCC or
bamboo porcupines) etc. are provided to manage/control the floods, to check the bank
erosion. Measures in form of bamboo porcupines may be termed as green structural 15
measures. Now–a-days, new innovative materials like Geo-textile in the form of Geo-
textile bags, Geo-textile tubes, Sand filled Geo-mattress, Neo-web, submerged vanes
and RCC porcupines are being increasingly used in construction of revetments, spurs,
groynes, embankments etc. These materials are used due to their unique characteristics
like durability, resistance to chemical waste, environment friendly nature, easiness in
installation etc. Recent developments have found that riparian vegetation interacts with a
range of geomorphological, geotechnical, hydrological and hydraulic factors to affect the
type and extent of riverbank erosion. In this regard, special vegetation like vetiver grass
on river banks have been found to be helpful in checking erosion. These measures may
be termed as Green Measures for bank protection. The vetiver is a special type of grass
having longer roots length with high tensile strength and is thus resistant to the high
velocity streams and checks the erosion. However, such type of grass needs replacement
after flood season, in case of silt deposition over the grass. The enhanced lateral channel
stability offered by well-vegetated riparian zones can also reduce the need for engineered
stabilization and heavy maintenance.
10. Coastal Erosion: The coastline of country extending from West Bengal to Tamil Nadu
in the Bay of Bengal and Kerala to Gujarat in the Arabian Sea is perpetually exposed
to erosion of Sea. Indian Coastline has been experiencing erosion problem and around
45.5% percent of coastline is affected by it in varying magnitude. There have been several
measures adopted in India to counter the problem of erosion in the form of structural
measures such as Sea Wall, revetments, Groynes etc. Their suitability and adverse effects
are debatable however it is now increasingly felt world over that soft measures and non-
structural measures such as beach nourishment etc, should be employed in conjunction
with traditional structural measures while dealing with coastal erosion problem. Coastal
Erosion problem is complex effect of various natural processes working in coastal zone
and sometimes beyond it. Any intervention to combat erosion requires adequate data
in terms of quality and quantity on various processes such as wave, tide, current, wind
etc. along with other factors such as bathymetry, beach profile/material etc. Places where
rivers are joining sea, poses further challenges in terms of data requirements to account for
discharge, silt load etc. In India, data on above aspects are collected by different agencies
as per their mandate and requirement and hence coordinated approach is lacking. The
issue of Coastal Erosion has been in the focus of Government of India and Beach Erosion
Board (BEB) was constituted as early as in 1966 to study the problem along the Kerala
Coast which was having severe problem. Later on, it was realized that same program and
attention is required for the entire coastline of India and scope of BEB was extended to
cover the entire coast. With the objective of the development in the protected coastal
zone and the pressure of population in the densely populated areas in the coastal zone,
the Beach Erosion Board was reconstituted and rechristened as Coastal Protection and
Development Advisory Committee (CPDAC) in April, 1995 with the major objective to 16
identify and develop the various resource potential available behind the protected areas.
Since then, various initiatives have been taken at national level as well as state level to
address the problem in a more scientific manner. Coastal Protection and Development
Advisory Committee provides a common platform to all concerned maritime States/UTs
to discuss issues related to coastal protection and development. The Committee has given
its recommendations in the past on various coastal related issues. Government of India
has initiated setting up of Coastal Management Information System (CMIS) with an
objective to create an integrated data bank to tackle coastal erosion in a scientific manner
keeping in view the long-term perspective and collection of data on coastal processes
relevant for evolving long term plans and coastal protection measures. The activities
related to control of coastal erosion in an integrated manner to provide environmentally
and economically acceptable coastal protection system need to be promoted.
Integrated River Basin Management Approach
Integrated flood management calls for a paradigm shift from the traditional, fragmented and
localized approach, and encourages the use of the resources of a river basin as a whole. Therefore,
there is a need for an approach backed by latest technologies and implemented in a most effective
manner. In order to have integrated basin development including flood management in a holistic
manner, setting up of River Basin Organisations (RBO) may be expedited by the Central/ State
Governments. The River Basin Organizations shall have the mandate to implement flood control
measures encompassing immediate, short-term and long-term solutions in an effective manner
apart from overall water resources development of the basin
Non-Structural Approach
Integrated flood approach aims at adopting well judicious mix of structural and nonstructural
measures. Another dimension to this approach is that flood management works should not be
limited to critical reaches only. Rather, the planning should be done at hydrological unit (basin)
level. Also, a coordinated effort among different central ministries/ department, state Governments
and public is needed as part of integrated flood management.
i. Flood Plain Zoning: Flood-plain zoning is a concept central to flood plain management.
This concept recognizes the basic fact that the flood plain of a river is essentially its
domain and any intrusion into or developmental activity therein must recognize the
river’s ‘right of way’. Flood-plain zoning measures aim at demarcating zones or areas
likely to be affected by floods of different magnitudes or frequencies and probability
levels, and specify the types of permissible developments in these zones, so that whenever
floods actually occur, the damage can be minimized, if not avoided. Although, this
approach is generally endorsed by all in principle, scant attention is given to it in actual
practice, leading to increased flood damages. Ministry of Jal Shakti has continuously
impressed upon the states about the need to take action to implement the flood plain 17
zoning approach. A model draft bill for flood plain zoning legislation was also circulated
by the union government in 1975 to all the states. The state of Manipur had enacted
the flood plain zoning legislation way back in 1978 but the demarcation of flood zones
is yet to be done. The state of Rajasthan has also enacted legislation for flood plain
management in the State but enforcement thereof is yet to be done. The Government of
Uttarakhand has enacted the Flood Plain Zoning Bill in December 2012 and has notified
limit of Flood Plain Area in two reaches viz. Haridwar (Chandi ghat to Laskar) and
Uttarkashi (Gangori to badethi Chungi). Other States are yet to take action for enactment
of legislation. Enactment and enforcement of Flood Plain Zoning regulations should be
one of the priority areas for which provisions of Disaster Management Act, 2005 can
also be relied upon. The States/UTs are to be encouraged to complete the hydrologic and
hydraulic modeling for flood mapping in time bound manner.
ii. Flood Forecasting: Flood forecasting is considered as one of the most cost effective
non-structural measure for flood management. The work of flood forecasting and
warning in India is entrusted to the Central Water Commission (CWC). Flood
Forecasting and flood warning in India commenced in a small way in the year 1958 with
the establishment of a unit in the Central Water Commission (CWC), New Delhi, for
flood forecasting for the river Yamuna at Delhi. Presently, there are around 1600 Hydro-
meteorological sites being operated by CWC across the country covering 20 river basins
for gauge, discharge, sediment & water quality observations. Many of these stations are
used as flood monitoring stations for formulating flood forecasts. The activity of flood
forecasting comprises of Level Forecasting and Inflow Forecasting. The level forecasts
help the user agencies in deciding mitigating measures like evacuation of people and
shifting people and their movable property to safer locations. The Inflow Forecasting
is used by various dam authorities in optimum operation of reservoirs for safe passage
of flood downstream as well as to ensure adequate storage in the reservoirs for meeting
demand during non-monsoon period. Presently, Flood forecasts are issued by CWC at
325 stations (128 Inflow Forecast Stations + 197 Level Forecast Stations) as per Standard
Operating Procedure. Annually, about 7000 flood forecasts are issued by CWC during
floods.
a. Modernisation of Data Collection and Transmission System: CWC had planned
for installation of real-time data acquisition system for 968 stations in various river
basins. There is a proposal to increase the coverage by another 125 stations under
14th Finance Commission period for which work is in progress. Another 100
stations are also planned to be added by 2025 taking the total automatic sensor-
based data acquisition and satellite-based data transmission to around 1193 stations.
In addition to 1193 stations to be established by CWC by 2025, IMD is also planning
to expand its Automatic Weather Station (AWS)/ Automatic Rain Gauge (ARG)
Network which can also be utilised by mutual sharing for use in Mathematical 18
models for flood forecast. In addition, under National Hydrology Project (NHP)
many of the State Governments are also installing automatic telemetry-based water
level/reservoir level and rain gauge sensors in various river basins within their State.
These data are also likely to be available through Water Information Management
System (WIMS)/National Water Information Centre (NWIC) portal. All these
stations can be utilised on real-time basis for use in mathematical modelling for
flood forecasting. This will increase the coverage of Hydro-meteorological data
network significantly in the country during the coming years for real-time use in
flood forecasting. Further, simplified data dissemination policy for use of data by
the States particularly regarding trans-boundary rivers needs to be developed.
b. Advancements in Flood Forecast Formulation: During the early period of flood
forecasting activity upto 1958 to 1990s, conventional flood forecasting models using
Statistical correlation and regression equations were used to formulate flood forecast.
During 1990s, the data entry systems were modernized using data processing
software such as spreadsheets and Tables. Spreadsheets were also used to generate
correlation and regression equations. During the X Plan period, tools like Mike-11
software were adopted for telemetry modelling centres established. During XII Plan,
all the new flood forecasting stations which were operationalised were also brought
under mathematical modelling. New Mike-2016 software was utilised during XII
Plan. Three-days advance advisories for flood were started from 2017 onwards and
are now available for all the 325 flood forecasting stations. In this regard CWC has
entered into an understanding with IMD for getting their data seamlessly. IMD
has started sharing Numerical Weather Prediction (NWP) model outputs and is
also providing map based sub-basin-wise Quantitative Precipitation Forecasts
(QPFs) from 2017 onwards. In view of several instance of flash floods being faced
in recent times in the country, there is a need to develop flash flood forecasting
and early warning system. Flash floods are attributed to favourable combination of
meteorological and hydrologic conditions along with characteristics of catchment
area. Focus on scientific research in development of Model based system to forecast
flash flood with sufficient lead time will provide a much-needed relief from menace
of flash floods.
c. Modernisation of Forecast Dissemination: CWC is maintaining a web-based flood
forecasting web site since 2006 which was upgraded and made more user friendly
from 2014 and is being used till date. This is further being upgraded using Water
Information Management System (WIMS) through which better data entry system,
report generation and user-friendly web functions are envisaged. CWC is also
working in collaboration with M/s Google for generating Common Alerting Protocol
(CAP) for sending CWC’s Flood Forecasting information to general populace in the
affected areas through Google enabled android smart phones or through various 19
Google platforms from 2015 onwards. National Disaster Management Authority
through Centre for Development of Telematics (C-DoT) under MoCIT is also
developing its own CAP alert systems through which priority call routing will be
given from the concerned mobile towers. Radio and TV broadcast of alerts are
also being envisaged. The system is being tested on pilot basis in Tamil Nadu since
March 2020 onwards. CWC is also collaborating with M/s Google Inc., to provide
inundation alerts based on the Flood Forecast available in CAP platform using high
quality Digital Terrain Models available with Google using Artificial Intelligence
and Machine Learning. The system started functioning from 2018 when inundation
alerts were provided for Patna Gandhighat forecast stations. This has been expanded
to around 11,000 sq.km. covering 7 FF stations (Patna Gandhighat & Kahalgaon in
Bihar, Neamatighat, Tezpur, Guwahati & Goalpara in Assam and Ayodhya in Uttar
Pradesh) during 2019. This is likely to be covered to all level forecast stations during
the next few years.
iii. Reservoir Operation: Dams in our country are not dedicated for single purpose of flood
moderation whose requirement is conflicting in nature to conservational purposes. Most
of the large dams in the country are multipurpose with competing demands. Even in the
reservoirs having no dedicated flood cushion, incidental benefits of flood moderation
can be derived by providing dynamic flood cushion. To meet the objective set forth
in planning a reservoir or a group of reservoirs and to achieve maximum benefits out
of the storage created, it is imperative to evolve guidelines for operation of reservoirs.
Without proper regulation schedules, the reservoir may not meet the full objective for
which it was planned and may also pose danger to the structure itself and to the people.
Filling of reservoir should generally be slow during initial period of flood season and
aggressive filling should be done near the end of flood season. Inflow forecast should also
be utilized for real time operation of reservoirs. It helps in pre-emptying the reservoir to
avoid flooding like situation downstream. In last few years, dam releases has become an
issue as far as flooding in downstream reaches is concerned such as, the Chennai Floods
of 2015, Ganga floods in the State of UP and Bihar during 2016, the Ranganadi floods
of Assam in 2008 and 2017, Doyang floods of Assam in 2018, Kerala Floods in 2018
and the Krishna Floods in the States of Maharashtra and Karnataka, Chambal Floods
in the States of Madhya Pradesh and Rajasthan during 2019. Control of flood is better
achieved if the reservoir level is kept low in the early stages of the monsoon season.
However, at a later stage, if the anticipated inflows do not realize, the reservoir may not
get filled up to Full Reservoir Level (FRL) even upto end of monsoon. On the contrary,
if the reservoir is kept at high levels initially to avoid the risk of reservoir remaining
unfilled at later stage, there may be problem of accommodating high floods occurring at
later stage. Rule curves of major reservoirs, where flood cushion is not in-built, need to 20
be reviewed to have some dynamic flood cushion for major part of the flood season. In
case of extreme meteorological event, the safety of the dams is of paramount importance
and releases become mandatory. For reservoirs in series with intermediate inflows and
storage serving solely for flood control downstream, it is optimal to regulate floods by
filling the upper reservoirs first and emptying the lower reservoirs first. The operation
of reservoirs in parallel requires simulation with optimization approach. Some of the
essential required actions are:
a. Rule curve/ level for all reservoirs should be prepared & updated accounting
change in rainfall trend and changing demand over the years due to rapid increase
of population, urbanisation and industrialisation. Rule curves of major reservoirs,
where flood cushion is not in-built, need to be reviewed to have some dynamic
flood cushion for major part of the flood season.
b. Inflow forecasting and SoP for water release should be made mandatory for all
reservoirs.
c. Emergency Action Plan (EAP) for dam break/extreme flood situations should be
ready. It will include flood inundation maps and flood waves & time analysis. The
list of dams which has prepared the EAPs is attached in Annexure IV of the report.
d. Release information for downstream areas should be provided with adequate
response time.
e. Channel encroachment in downstream stretches of a dam should be removed.
iv. Integrated Reservoir Operation (IRO): The Crisis Management Plan (CMP) of
Department of Water Resources, River Development & Ganga Rejuvenation (DoWR,
RD&GR) includes the provision on Integrated Reservoir Operation (IRO) for flood
management. The plan for implementation of IRO for flood management included
in CMP involves entry of data by reservoir owners in the State in Water Management
Information System (WIMS). The data from reservoirs along with hydro-meteorological
data available with CWC as well as those received from IMD including rainfall forecast
will be used for running mathematical models for formulating inflow forecast at least
72 hours in advance for the various reservoirs identified in various basins in the plan.
Based on the inflow forecast provided and the availability of flood cushion in the
reservoir, release advisories shall be issued by Flood Crisis Management Team (FCMT)
to be formed in various basins. The FCMT may be headed by the Chief Engineer of
the respective Basin Organization of CWC with members from all co-basin States
and the Superintending Engineer of CWC Basin Organization will be the Member –
Secretary. The FCMT may meet frequently during Flood Crisis and advise the Project
authorities within the system of reservoirs regarding the quantum of release so that
flood inundation in the downstream areas shall be minimized. However, there is no 21
mandate to the project authorities to follow the release advisory of FCMT as the release
of water from project is in the purview of State Governments. In order to operationalize
the concept, mandate in the form of an executive order or a parliamentary act may be
needed. This can be brought as an executive order under DM Act 2005 or as a part of
the proposed Dam Safety Bill which has since been passed by Lok Sabha and is to be
passed by the Rajya Sabha. Based on the type of system, there are single and multi-
reservoir systems. Multireservoir systems can be treated as cluster and connected both in
series and as parallel units. Furthermore, reservoirs can be classified according to their
function as the reservoirs may be for single purpose or multi-purpose reservoirs. Multi-
purpose reservoirs serve a combination of functions, including irrigation, hydropower,
flood management, fisheries, recreation and tourism. The operation of multi-purpose
reservoirs also involves various interactions between these different functions that
can lead to conflicting interests. Dam Safety Bill provides for surveillance, inspection,
operation and maintenance of the specified dam for prevention of dam failure related
disasters and to provide for institutional mechanism to ensure their safe functioning and
for matters connected therewith or incidental thereto. The Bill has exclusive provision
regarding coordinated reservoir operations of cascading dams.
v. Dam Safety and Emergency Action Plan (EAP): Under the Dam Rehabilitation and
Improvement Project (DRIP), two relevant and comprehensive Guidelines for dam
operation related aspect viz., Guidelines for Preparing Operation and Maintenance
Manuals for dams and Guidelines for Developing Emergency Action Plan for dams have
been published for guidance of country’s dam owners. The Guidelines for Preparing
Operation and Maintenance Manuals, CWC, 2018 for dams contain various aspects of
project operation including normal operation and emergency operation. These serve as
guidance for dam owners on various protocols and responsibilities for managing water
releases during a year including flood seasons. Details for preparation of operational
rule curve (both for reservoir filling and release) are also part of the guidelines. The
Guidelines for Developing Emergency Action Plan for Dams, CWC, 2016 describes all
elements of an Emergency Action Plan (EAP) and comprehensively covers requirements
for notification flow charts, emergency conditions, inundation maps, emergency
detection, evaluation and classification, emergency preparedness and implementation
methodologies. The EAP is one of the most important documents to mitigate the
associated risks and consequences in case of a dam failure and any other major exigency.
Under the Project, this document is being prepared for all DRIP dams, and at the same
time Stakeholders Consultation Meetings are being conducted to disseminate provision
of this document with all stakeholders and sensitize all concerned agencies as well as
public in order to develop more resilience in handling such disasters. So far under the
ongoing DRIP project, 176 nos of draft EAPs prepared, and 132 EAPs have been published 22
and 42 nos of Stakeholder Consultation Meetings conducted. These two protocols will
ensure safety and operational performance of dams, will mitigate the associated risks
with dam failure through stakeholder’s sensitization about consequences and contribute
in making more disaster resilience society.
vi. Application of Space Technology: Satellite remote sensing has an enormous potential
in providing inputs to disaster management. Remote sensing provides a means of
quickly visualizing the impact of a natural disaster like floods and make an assessment
for prioritizing and taking necessary relief measures in time and space. In addition,
space-based communications play vital role in disaster management. Earth observation
satellites provide comprehensive, synoptic and multi temporal coverage of large areas
in near real-time. The technology can be adopted to provide real-time information on
major disasters like floods and cyclones in the following areas; - Near real-time flood
mapping due to riverine and cyclonic floods - Damage assessment due to floods and
cyclones - Flood progression, recession, and duration studies - River morphometric
studies - Spatial flood early warning studies - Preparation of flood hazard maps -
Embankment breach studies - River bank erosion studies and efficacy of anti-erosion
measures taken up in the river banks. Considering the potential use of space technology
in terms of satellite remote sensing and communication in disaster management, Indian
Space Research Organization has embarked upon the Disaster Management Support
Programme (DMSP) addressing all three disaster phases of preparedness, response and
mitigation for Disaster Risk Reduction in the country by through space-based inputs.
a. Spatial Flood Early Warning Development of spatial flood early warning models
using very high-resolution Digital Terrain Models is gaining momentum for
giving spatial flood alarm prior to the event. Space based inputs provide very vital
information on topography and climate that can be used in developing long range
flood early warning models. Considering the requirements at national level and its
importance, National Remote Sensing Centre has developed spatial flood forecast
models for Godavari and Mahanadi Rivers in association with CWC using space-
based inputs. Web-enabled semi-automated Spatial flood early warning models for
major floodplains of these two rivers have been developed using high resolution
digital terrain models (ALTM DTM) and land use land cover and being run on
experimental mode in real-time with other data support from CWC and IMD, and
the results are being disseminated. The pilot studies led to the development of fully
automated operational spatial flood early warning systems for Godavari and Tapi
river basins under National Hydrology Project (NHP).
b. Near Real-Time Monitoring and Mapping of Floods Space technology has been
providing accurate and near real-time information on riverine and cyclonic flooding
using its large area and frequent temporal coverage. This Report of information is an 23
important input for near real-time relief and rescue operations and flood management
on the ground. Duration of spatial flooding, flood progression and recession are
the other products provided using temporal remote sensing data. Flood damage
can be assessed using very high-resolution optical data acquired immediately after
the flood events. NRSC works in close coordination with the concerned Central
and State Disaster Management authorities including MHA, NDMA, SDMAs, etc
and disseminates the satellite and aerial based disaster products for disaster risk
reduction in the country.
c. State Level Flood Hazard Atlases using Historic Satellite Data Preparing flood
hazard maps is one of the best inputs for non-structural methods of flood damage
risk reduction. These maps are useful in planning developmental activities in
floodplains, construction of relief, rescue, and health centers, planning flood tolerant
crops in floodplains. Satellites provide synoptic observations of the natural disasters
at regular intervals that help in disaster risk reduction in the country. As part of
disaster mitigation phase, NRSC has taken up major responsibility on the behest
of NDMA in preparing State level Flood Hazard Atlases using historic satellite data
coupled with ground validation. Flood Hazard Atlases of Assam, Bihar, and Odisha
were prepared and released by the concerned States. Preparation of Flood Hazard
Atlases of Andhra Pradesh, West Bengal, Uttar Pradesh, and updation of Bihar Atlas
are taken up on top priority
vii. Adherence to Coastal Zone Regulations: The regulations stipulated under Coastal
Regulations Zone notification 2019, though primarily intended to protect ecologically
sensitive coastal stretches, serve the purpose of reducing impact of floods. The prohibition
of activities in mangrove areas and in area between High and Low tide lines conveys
the clear direction to stay from flood prone belts. Certain ecologically sensitive coastal
area of the country is identified as Critically Vulnerable Coastal Area and an Integrated
Management Plan (IMP) have to be prepared for such areas. Specific provision restricting
new construction within 20 meters from High Tide Line in backwater islands and
islands along the main land coast is also included in the notification. Enforcement of the
notification using the powers under Environment (Protection) Act 1986 will definitely
save a larger community from the avoidable wrath of flooding. 25
Section 3
Critical Review of Flood
Management Works in India
and some solutions from
International Best Practices
@UNDP 26
Important Government Initiatives
Since the flood management is primarily in the domain of States, flood control and management
schemes are planned, investigated and implemented by the State Governments with their own
resources, according to the priority within the States. The Union Government renders assistance
to States, which is technical, advisory, catalytic and promotional in nature. The Department of
Water Resources, River Development and Ganga Rejuvenation (DoWR, RD&GR), Ministry of
Jal Shakti is responsible for laying down policy guidelines and programmes for the development
and regulation of the country’s water resources. The Ministry provides technical guidance and
conducts scrutiny, clearance and monitoring of the irrigation, flood control and multi-purpose
projects (major/medium). The Ministry is also responsible for operation of the central network
for flood forecasting and warning on inter-state rivers, the provision of central assistance for
some State Schemes in special cases and preparation of flood control master plans for the Ganga
and the Brahmaputra. The two-tier system for flood management in India is:
Central Government
State Government
•Central Water Commission
•Ganga Flood Control Commission (GFCC)
•Brahmaputra Board (BB)
•National Disaster Management Authority (NDMA)
•Water Resources Departments
•State Technical Advisory Committees (STAC)
•Flood Control Boards,
•Irrigation Departments
•Public Works Departments
Figure 4: Two Tier System of Flood Management in India
Government of India has implemented two major schemes viz. Flood Management Programme
and Flood Forecasting Scheme towards Flood Forcasting, Control and Management
3.
1. Flood Management Programme: The scheme was sanctioned by the Cabinet in November
2007 with Central Assistance of Rs 8,000 crore in XI FYP (2007-2012). Further, a central
assistance of 10,000 crore was approved in October 2013 for XII FYP (2012-2017) for
undertaking works related to (i) river management, (ii) flood control, (iii) anti – erosion,
(iv) drainage development, etc. During the XI and XII plans Rs 4,723.08 crores was
released by MoWR, RD&GR upto March 2016.
2. Flood Forecasting: As of June 2008, CWC was operating 878 Hydrological and Hydro-
meteorological sites across the country covering 20 river basins for gauge, discharge,
3 Report on Schemes for Flood Control and Flood Forecasting by CAG 2017 27
sediment and water quality observations. Besides, CWC also operated 175 Flood
Forecasting Stations in the country. An outlay of Rs 130 crore in respect of Flood
Forecasting Scheme for XI FYP was approved, of which expenditure of ` 103 crore was
incurred upto March 2012. The outlay for XII Plan was Rs 281 crore, of which expenditure
of Rs 114.09 crore was incurred up to March 2016.
After these the Flood Management and Border Area Programme was launched which is described
in detail in next section. The other initiatives of Government of India are given in Annexure IV.
Critical Review of the various Flood Management Works in India
1. In India, we have history of attaching the highest priority to Flood Control Infrastructure
(FCI) which includes dams, channels, embankments etc. The importance can be gauged
with the fact that Dams are referred as the “Temple of Modern India”. However, these big
infrastructural projects have their own limitations like:
a. FCI is designed with a specific capacity and is a centralized solution of large scope.
Such nature makes it too rigid to quickly adjust to changing boundary conditions,
such as local floodplain urbanization and upstream deforestation, which persistently
make the protection level insufficient.
b. The efficacy of FCI depends heavily on unreliable factors. One example is the long-
term commitment of periodic maintenance to counter undesirable river adjustment
that compromises FCI’s capacity and structural integrity. The cost of maintenance
frequently exceeds initial estimate due to unexpected, emergent problems
4
.
Dredging,
particularly, is often too expensive to be implemented as frequently as needed
5
.
c. FCI produces social injustice by forcing its costs onto other communities
6
. The
degradation of local riverine ecosystems attributed to FCI can have little impact on
the associated city, since cities typically exploit biological productivity and freshwater
elsewhere
7
. However, rural communities upstream and downstream can be impacted
if they depend heavily on the river for livelihoods. These communities can also suffer
from increased flood risk transferred by FCI. In many cases, rural communities
are often sacrificed during extreme basin-wide flood events, strategically flooded
to avoid inundation of economically and politically more important cities. It was
seen in 2011 in the floods of Mississippi River in the USA, Chao Phraya River in
Thailand and 2018 in Kerala Flood in India.
d. Even if the levee effect does not exist, FCI can still worsen long-term flood risk
through structural failure when the capacity of FCI is eventually overwhelmed.
4 Smits AJM, Nienhuis PH, Saeijs HLF (2006) Changing estuaries, changing views. Hydrobiologia 565:339–355
5 Mount JF (1995) California rivers and streams: the conflict between fluvial processes and land use. University of California Press,
Berkeley
6 Smith K, Ward R (1998) Floods: physical processes and human impacts. Wiley, New York
7 Folke C, Jansson A, Larsson J, Costanza R (1997) Ecosystem appropriation by cities. Ambio 26:167–172 28
Levee or dam breach would cause water and sediment to plunge onto the urbanized
floodplain at high velocity to leave little or no evacuation time. Once it occurs, other
intact levees would complicate drainage and prolong inundation to exacerbate the
disaster
8
. Structural failure is less predictable and more damaging than naturally
slow-rising floodwater, impacting more people in a single instance
9
e. FCI’s very function—preventing periodic flooding—exerts significant ecological
impacts. The idea that ecological impacts and flood safety are tradeoffs has justified
the management practice that prioritizes flood control over ecological conservation
and restoration. As the socioeconomic value of ecosystem services of urban rivers
are increasingly recognized
10
, it is questionable whether sacrificing river health
for only short-term protection is sensible. In wealthier cities, while the ecological
decline associated FCI do not seem to limit urban development, the long-term
socioeconomic impacts associated with the ecological decline remains to be seen. In
low-income urban communities where the less privileged still depend on the river
for fishery and water supply, the ecological impacts should be a serious concern
11
.
In both cases, society should recognize that flooding is not merely a hazard but also
critical mechanism to maintain socioeconomically valuable ecosystem services
12
2. Inadequate maintenance of flood protection structures like embankments, groynes, spurs
etc. leads to repeated failure of constructed flood protection works.
3. The flood protection works are done more as a fire fighting one instead of based on a
flood control master plans for flood prone basins.
4. Non-involvement of beneficiaries in the maintenance of flood protection works which
benefit them is major lacunae.
5. As per report on ‘Schemes for Flood Control and Flood Forecasting’
13
on July 21, 2017.
The audit covered flood management projects, and river management activities, including
dams in 17 States and Union Territories from 2007-08 to 2015-16. According to the
report, against a target of installing 219 telemetry stations (recording and transmitting
readings of the flood forecasting instrument) between 2012 and 2017, only 56 had been
installed as of August 2016. 59% of the existing telemetry stations were nonfunctional,
resulting in non-availability of real time data for the corresponding periods
14
.
8 Colten CE, Sumpter AR (2009) Social memory and resilience in New Orleans. Nat Hazards 48(3):355–364
9 Burton I, Kates RW, White GF (1993) The environment as hazard, 2nd edn. The Guilford Press, New York
10 Grimm NB, Faeth SH, Golubiewski NE, Redman CL, Wu J, Bai X, Briggs JM (2008) Global change and the ecology of cities. Science
319:756–760
11 Tockner K, Bunn SE, Gordon C, Naiman RJ, Quinn GP, Standford JA (2008) Flood plains: critically threatened ecosystems. In: Polunin
NVC (ed) Aquatic ecosystems. Cambridge University Press, Cambridge, pp 45–61
12 Postel S, Richter B (2003) Rivers for life: managing water for people and nature. Island Press, Washington,DC
13 CAG Report
14 Report on Schemes for Flood Control and Flood Forecasting by CAG 2017 29
6. Flood management was not taken up in an integrated manner, i.e., covering the entire
river or a tributary or a major segment of it and Detailed Project Reports (DPRs) were
not prepared in eight states. Delay in approval of DPRs leads to delays in completion
of projects. This in turn results in technical designs becoming irrelevant at the time of
actual funding of the project. Also, the complete river morphology not studied before the
implementation of the piece-meal approach of the channelization/embankment projects.
7. CAG report also furnished that discrepancies in execution of projects, like irregular award
of work, splitting of tenders, and payment at higher rates were noted in border areas
projects of Assam, North-Bihar and Eastern Uttar Pradesh. Emergency Action plans for
only 7% of states have been prepared. Only two out of the seventeen states have carried
out a pre- and post-monsoon inspection of dams.
Solutions: International Case studies for better flood management
1. Flood Resilience: Coupling with ever-changing local,
basin, and global conditions, rivers will continue to
change by interacting human and natural processes
to make flood control difficult. It is risky for cities to
continue to count on FCI to prevent flood damage.
Resilience—the capacity to cope with whatever the future brings—is the best policy to
survive in a stochastic world. Flood resilience is not about flood prevention but concerns
survival through flooding. Tolerance of flooding is thus important to prevent flood
damage in the first place, and it depends on whether the city is adapted to floods. There
exist communities that live with floods, functioning normally through periodic flooding
and even harnessing the ecological benefits of it. Resilience to a disturbance is cultivated
through learning from and adapting to that very same disturbance over time
15
.
2. Flood Proofing the Buildings: Some
traditional strategies are still kept in the
modern concept of flood proofing
16
. Flood
proofing involves permanent or emergency
techniques to prevent or minimize floodwater
damage to the building
17
. Techniques such
as building on fills and flood barrier shields
simply push floodwater elsewhere. Techniques allowing floodwater to enter the structure
without damaging it are more socially responsible. These include building with pilotis
or on buoyant foundation (present in Yokohama, Japan); using water-resistant building
15 From flood control to flood adaptation: A case study on the Lower Green River Valley and the City of Kent in King County, Washington
by Kuei-Hsien Liao (https://link.springer.com/article/10.1007/s11069-013-0923-4
16 Parker DJ (2000) Introduction. In: Parker DJ (ed) Floods, v2. Routledge, London, pp 3–5
17 NHRAIC: National Hazards Research and Applications Information Center (1992) Floodplain management in the United States: an
assessment report, vol 1. Prepared for Federal Interagency Floodplain Management Task Force
Yokohama, Japan has
used flood control and
flood adaptation to
prevent flood damage.
Buoyant buildings or ‘‘amphibian
houses’’ — which sit on dry land
but can float vertically during
flooding — have been built in
Maasbommel, the Netherlands. 30
materials and water-tight seals to resist moisture and mold; and flexible uses of the lower
floors
18
.
3. Revamping the Modern Infrastructure:
Modern infrastructure is often characterized by
rigid structures and operational schemes that
they cannot respond quickly to disturbances
19
.
One strategy of flood adaptation is to break
entire inflexible system into small, simple and
flexible pieces which can fit together to form
new but advanced system. Take the transportation system for example
20
. Flooding would
not disrupt mobility if the transportation system does not depend solely on roadways
and vehicles. The transportation system could be ‘‘amphibious,’’ incorporating both land-
based and waterborne transportation modes that can be easily switched back and forth.
Within a community, mobility could be maintained simply by putting up temporarily
raised walkways, as is practiced in Venice, Italy. Flood adaptation of infrastructure may
not require advanced technology but requires redesigning it at the system level.
4. Open spaces in Urban Areas: It is increasingly common to direct excess floodwater/
stormwater to green spaces to prevent buildings and infrastructure from flooding. These
sunken grassy areas between buildings also function for temporary stormwater retention.
Designed creatively
21
, urban open spaces can function for floodwater conveyance and
storage while maintaining recreational and esthetic values. These open spaces could be
interconnected through surface and underground trenches to become a network to hold
a significant amount of floodwater to prevent buildings and infrastructure from flooding.
A strategic rearrangement of different types of open spaces could maximize human
access. More intensively used spaces such as sports fields, playgrounds, and parking lots
can be assigned to higher ground that floods less frequent in the network, while passive
recreation can take place at lower ground that floods more often.
12-km Indian Bend Greenbelt in
Scottsdale, Arizona, US, and the
324-ha Erchong Flood Spillway
Park in Taipei, Taiwan have been
set aside to convey floodwater
during emergency conditions.
Yonging River Park in Taizhou,
China, and the Bishan-Ang Mo
Kio Park in Singapore are the
urban parks designed as wetlands
or floodplains to allow periodic
flooding.
18 Zevenbergen C, Cashman A, Evelpidou N, Pasche E, Garvin S, Ashley R (2011) Urban flood management. CRC Press, London
19 Hallegatte S (2009) Strategies to adapt to an uncertain climate change. Glob Environ Chang 19:240–247
20 From flood control to flood adaptation: A case study on the Lower Green River Valley and the City of Kent in King County, Washington
by Kuei-Hsien Liao (https://link.springer.com/article/10.1007/s11069-013-0923-4
21 ibid
In Venice Itlay, along with the
water based transportation,
temporarily raised walkways
are used for mobility and
transportation. 31
5. Flood Plain Restoration: Floodplain restoration refers
to excavating channels and ponds, planting aquatic
and terrestrial native vegetation, and placing cobbles,
boulders, and large woods to resemble the natural
floodplain landscape. Floodplain restoration is carried
out in all existing open spaces except in the flood control zone, such that they are either
larger wetlands parks or smaller wetland gardens
22
. Processes naturally accompanying
flooding, such as spontaneous succession, erosion, sedimentation, and debris deposition,
are allowed to occur to periodically rework the landscape. These processes are known
to contribute to diverse topography, high species diversity, and intensified ecological
processes in natural rivers
23
. The ecologically functioning floodplain and riparian
zone could bring a host of ecosystem services to benefit the city directly, such as water
purification through trapping sediments and processing diffuse nutrient pollutants
brought by floods, storm water runoff, and groundwater from upstream and upland
areas
24
. Floodwater stored in the open spaces could restore the process of floodplain
aquifer recharge to prevent subsidence. It would also ensure base flows during the dry
season to help lessen the climate change impact because summer flows are expected to
reduce and it could make fish passage increasingly difficult
25
.
Flood Resilience
Ex. Yo kohama, Japan
Flood proofing of buildings
Ex. Amphibian Houses,
Netherland
Revamping the Infra.
Ex. Venice, Italy
Flood Plain Restoration
Ex. The River Skerne, U.K
Open Spaces
Ex. Indian Bend Greenbelt in
Scottsdale, Arizona, US
Ex
Flood
Management
Figure 5. Various approaches to Flood Management
22 Floodplain Restoration and Storm Water Management: Guidance and Case Study (2009),
http://crwp.org/files/floodplain_restoration_sw_management_march_2009.pdf
23 Naiman RJ, De´camps H, McClain ME (2005) Riparia: ecology, conservation, and management of streamside communities. Elsevier
Academic Press, New York
24 Pinay G, Clement JC, Naiman RJ (2002) Basic principles and ecological consequences of changing water regimes on nitrogen cycling
in fluvial systems. Environ Manag 30(4):481–491
25 Mantua N, Tohver I, Hamlet A (2010) Climate change impacts on streamflow extremes and summertime stream temperature and their
possible consequences for freshwater salmon habitat in Washington State. Climate Change 102:187–223
Some examples of Flood
Plain Restoration are The
Rhine Delta, Netherlands
and The River Skerne, UK. 33
Section 4
Major Flood Events of the
Country: Case Studies and
Lessons Learnt
@UNDP 34
Major Flood Events of the Country: Case Studies and Lessons Learnt
Floods as already described in pervious chapters are the most common yet most destructive natural
disaster in India. Over the years, the intensity of floods has increased and associated destruction
is also on high surge. But every disaster presents an opportunity to redress the situation. It teaches
us some lessons which can be used to prepare ourselves for the future disasters. This chapter
elucidate the major flood events in India and the key lessons learnt from them. This chapter
will help the policy makers to understand the sequence of flood occurrence and post flood best
practices adopted by the affected state governments. But before that given below is the summary
of some major flood events of last few years.
Table 2: Major Flood Evens of Last few Years
State Year Reason Death
Population
Affected
Property Damage
Assam 2012 Heavy Rainfall20 Over 2 Million-
Uttarakhand 2013 Monsoon flood
Nearly
4100
Nearly 4000
villages
21141 Houses and
estimates of 50000 Cr
loss in infrastructure
Madhya
Pradesh
2013 Heavy Rainfall30 40000 people 24000 houses
Jammu 2013 Heavy Rainfall29 2600 villages
15,712 buildings,
houses, agriculture
buildings.
Assam 2014 Heavy Rainfall10
25000
displaced.
-
West Bengal 2015
Cyclone
and rainfall
48
10,000 villages
in 12 districts
38000 Houses
Assam 2015 Heavy Rainfall2
700 villages
15 districts
311,000 people
11000 Hectares crop
Tamil Nadu 2015 Heavy Rainfall500 1.8 million Rs 50000 Cr
Andhra
Pradesh
2016
Long Term
Heavy Rain
15 25000 people
50,000 hectares
of crops.
Bihar 2016
Long Term
Heavy Rain
17
1,500 Villages, 8
districts, 3.753
million.
-
Gujarat 2017
Extreme
Rainfall
224 0.3 million Rs 10 cr 35
Bihar 2017
Long Term
Rainfall
253
180,000
people in
10 districts
25000 buildings
Uttar Pradesh 2017
Long Term
Rainfall
10
2,000,000
people
1182
Buildings
destroyed
Kerala 2018 Heavy Rainfall339 5.4 million
75, 857 cattle, 6.42
lakh houses were
damaged. In addition,
82 thousand hectares
of standing crops
Bihar 2019 Heavy Rainfall116 10 million -
Source: Various Ministerial Sources
Uttarakhand Flood 2013
On 16 June 2013, the State of Uttarakhand suffered mega disaster, one of the worst disasters
in the living memory, causing widespread damage and destruction, besides heavy casualties.
The entire State was hit by very heavy rainfall and flash floods. Though all the thirteen districts
of the State were hit, five districts, namely Bageshwar, Chamoli, Pithoragarh, Rudraprayag and
Uttarkashi were the worst affected. The disaster coincided with the peak tourist and pilgrimage
season, significantly enhancing the number of the casualties and adversely affecting the rescue
and relief operations. The impact of disaster was most pronounced in the Mandakini valley of
the Rudraprayag district. Torrential rains, coupled with the probable collapse of the Chorabari
Lake, led to flooding at the Kedarnath Shrine and the adjacent areas of Rambara, Agastyamuni,
Tilwara, and Guptkashi. Other pilgrimage centers in the region, including Gangotri, Yamunotri
and Badrinath, which are visited by thousands of devotees during the summer season, were also
affected. People in important locations, such as the Harsil, Roopkund and Hemkund Sahib, were
stranded for days together. Over one lakh people were stuck in various regions of the State due to
damaged roads, landslides and flash flood-induced debris.
Effects of Flood
The disaster caused heavy loss of precious lives and extensive damage to private properties and
public infrastructure. More than nine million people were affected by the flash floods. The five
districts namely, Bageshwar, Chamoli, Pithoragarh, Rudraprayag and Uttarkashi were the worst
affected. As far as casualty to human lives is concerned, as informed by the State Government on
09 May 2014, a total of 169 people died and over 4,021 people were reported missing (presumed
to be dead). As per estimates, the disaster has cost Uttarakhand Rs 50,000 crore in infrastructural
loss. Uttarakhand Jal Vidyut Nigam Limited has suffered loss of Rs 77 crore apart from the Rs 50
crore lost in power generation. 36
Table 3: Damage of Uttarakhand Flood
S.NoItemDetails
1. Number of Affected Districts13
2. Number of dead and Missing person (presumed dead) 169+4021
3. Number of houses and cowsheds damaged20141
4. Animals lost11091
Major Findings
1. The disaster essentially occurred due to wide spread heavy rains during the period 14-18
June, which resulted in flash floods in all the major river valleys in the State. Heavy rains
triggered major landslide at numerous locations causing severe disruption in surface
communications.
2. As per the Indian Meteorological Department (IMD), the rainfall in the State between
15 June and 18 June 2013 was measured at 385.1 mm, against the normal rainfall of 71.3
mm, which was in excess by 440%.
Figure 6: The Indian Meteorological Department image (17th June 2013) suggested
heavy rainfall on the higher reaches of Uttarakhand, Himachal and Nepal Himalaya
3. Thus, it can be inferred that the disaster was the result of extra precipitation in a very
short duration of time, which resulted in heavy water discharge in various rivers and
streams.
4. As per the eye witnesses and technical inputs received from various agencies, the possible
causes of the disaster could be summarized as:-
•Collision of western disturbances with monsoon easterlies.
•Excessive precipitation in very short span of time.
•Heavy erosion and the accumulation of large volume of water and sediment
accumulation in major river beds due to excessive rainfall. 37
•Run - off of loose debris, moraine and boulders with excessive force washing
•off all that came in its way.
5. The worst impact of the disaster on human settlements was in the Kedarnath shrine area
(Gaurikund to Kedarnath), the Mandakini valley, the Alaknanda valley (at Gobindghat
and upstream), the Pindar valley, and along the banks of the river Kali in Dharchula area.
6. The Kedarnath area in particular was impacted the most as it suffered unprecedented
devastation with very heavy loss of life and property.
Figure 7: Kedarnath Before and After the Flood
7. The world’s greatest war footing rescue operation was done by all the three wings of
army- Army, Air Force and Navy.
8. All the essential supplies like food, drinking water, medicines, kerosene oil, solar lamps,
etc. were continuously provided by air dropping as well as by surface means. A total of
69 relief camps were run, where 1,51,629 pilgrims/ local residents were looked after.
Some camps continued operating beyond the emergency phase for the local residents.
Approximately 900 trucks of relief material were received from other states and dispatched
to the affected districts from a nodal/ relief centre, set up at Dehradun.
9. Forty-three medical teams comprising of 313 doctors and 4977 para-medical staff, were
deployed and essential medicines, bleaching powder and chlorine were regularly supplied.
Key Takeaways
1. The Uttarakhand flash floods of 16 - 17 June 2013, were one of the worst disasters to
strike Uttarakhand. Though the disaster essentially occurred due to natural hazards, the
vulnerability to the disaster was enhanced manifold by anthropogenic activities. The
disaster revealed several infirmities in our preparedness, which need to be rectified at
the earliest. Some of the important lessons learnt and key takeaways are listed below: - 38
2. Flood Plain Zoning Act regulating construction within the flood plain of a river should
be implemented strictly.
3. For clearance of all hydro-power and other mega projects in ecologically sensitive
regions like Uttarakhand, the Disaster Impact Assessment (DIA) should also be made
compulsory besides Environmental Impact Assessment (EIA).
4. Landslide risk zonation mapping be completed on priority. Development and enforcement
of guidelines, regulations and codes for landslides is critical.
5. Effective stabilization of slopes in shear and weak zones be undertaken using scientific
techniques available at national/international levels.
6. Blasting for developmental activities be avoided as it may destabilize the weak rocks in
mountainous regions.
7. Disaster management plans be regularly reviewed and updated to ensure a functional
structure and accountability for all actions initiated by the State Government to enhance
preparedness.
8. The existing emergency communication system is reviewed regularly to ensure last mile
connectivity during disasters.
9. Investments in infrastructure development related to weather, glacial lakes, river flow
monitoring, etc. are fundamental for improving the accuracy of risk mapping, thereby
allowing more lead-time for warnings provided by IMD, CWC, GSI, NRSC, etc.
10. Tourism related development should not be allowed along the river banks.
11. An effective pilgrim control and regulatory body should be constituted for control and
management of pilgrims/tourists.
12. Stockpiling of essential items like food grains, blankets, medicines, etc. must be ensured
at block/panchayat levels in designated areas for an emergency.
13. Supply of essential commodities by animal transport in remote disaster-prone areas
should be examined on regular basis and included in relevant disaster management plans.
14. The community-based disaster management system at the local level must be given utmost
importance and strengthened through appropriate training and awareness programmes.
15. The mechanism of Incident Response System be established at relevant levels and be
dovetailed into the disaster management plans. State and district agencies should
build their command and coordination structures to support the local command and
coordination structures during an emergency.
16. Need to integrate the contributions of volunteers and non-governmental organizations in
disaster response at the State level. This integration would be best achieved at the district
and local levels. NGOs should be engaged in the planning process for their involvement
in a joint response. 39
Tamil Nadu Flood 2015
Tamil Nadu recorded an exceptionally heavy rainfall during November - December 2015 due to
the North East Monsoons. This unprecedented rainfall took place in four spells:
i. November 8-10, 2015 causing extensive damages, mainly in Cuddalore district;
ii. November 12-13, 2015 severely affecting Kancheepuram town;
iii. November 15-17, 2015 bringing heavy rain to Chennai and the adjoining districts of
Kancheepuram and Thiruvallur; and
iv. November 30 to December 07, 2015 which again hit Chennai and the two adjoining
districts with such great intensity that it marooned large parts of the metropolis causing
severe damage and destruction, and marooning large parts of the metropolis with people
stranded on rooftops for days together, especially in the low-lying areas.
While the first three spells of rains caused flooding in many districts of Tamil Nadu, causing damages
to infrastructure and property and distress to people, the final spell on 2nd December, 2015, flooded
densely populated areas of Chennai Metropolis and adjoining districts of Kancheepuram and
Thiruvallur. This unprecedented rainfall in a short duration led to devastating flash floods causing
major damages to irrigation infrastructure, roads and public amenities as well as loss of human lives
and livestock.
Effects of Flood
It is estimated that around 500 people lost their lives and over 18 lakh (1.8 million) people were
displaced. With approximations of damages and losses ranging from ₹50000 crore (US$7 billion)
to ₹100000 crore (US$15 billion), the floods were the costliest to have occurred in 2015, and were
among the costliest natural disasters of the year.
Figure 8: Chennai Flood
Major Findings
1. The outcome of this unprecedented level of downpour was immediate and disastrous
with major water bodies getting filled and flowing into major rivers, Adyar, Cooum
and Kosathalai, which in turn overflowed into densely populated areas of Chennai City, 40
transforming Chennai into islands of houses in a vast expanse of water many feet high.
This flood put a large number of urban populaces of these areas in great difficulty and
caused severe damages to public and private property. Water entered buildings, even
in first floors in some areas, stranding residents on building rooftops without essential
provisions - food, water and electricity, besides completely damaging all their household
durable assets and motor vehicles, and rendering their homes uninhabitable for long
period to come. People were shifted to temporary shelters set up by the State Government.
2. The rapid urbanization has attributed a lot in the 2015 floods. As a consequence of
urbanization there is reduction in infiltration component of the hydrological cycle, which
will increase the peak run off discharge. It has also led to encroachment of waterways
which reduces their vent away. For example, construction of new runway of Chennai
airport which was flooded during the 2015 rain is built on Adyar River.
3. Chennai during the flood has experienced the “compound wall effect”. Compound walls
are built around almost all institutions to save them from encroachment. This resulted
in alteration of local overland flow paths and some even blocked the local channels.
This turn changed the local flooding patterns, protecting some and endangering some
areas. In some cases, by blocking the natural flow and cross drainage they contributed
in localized flooding.
4. The Chennai city used to have large marsh lands, wetlands and vast tract of pasture land
in the south which used to act as the flood sink of the city. But during 2010-11, along
with marshlands, all other wetlands of Chennai became sites of waste disposal, housing,
commercial and industrial purposes. As city sprawled towards south these marshlands
became fragmented which destroyed flood sink of the city and resulted in citywide
floods
26
.
Key takeaways
1. The Government directed officials to conduct special camps for two weeks to receive
applications from the affected public and issue necessary copies of documents within a
week without collecting any fee. This order was applicable for the flood-affected people
of Chennai, Kancheepuram, Thiruvallur and Cuddalore districts only and was to stay in
force till the completion of the special camps for issue of the above said copies/duplicate
documents. Subsequently, the issue of duplicate documents was initiated free of cost.
2. Each disaster presents an opportunity to learn from it. The Tamil Nadu Government
used the opportunity presented to it after the December 2015 deluge to strengthen
disaster preparedness in the State. A year later, in December 2016, the city was face-to-
face with another extreme weather event, the tropical Cyclone Vardah. This time around,
the government had put in place preparedness measures to deal with any freak rainfall,
26 https://www.slideshare.net/SaranyaNarayanaMoort/chennai-floods-2015-report 41
flood, cloudburst, drought or cyclonic storm incident well in advance. The actions taken
by Government were:
•Special drive to clean channels leading to water tanks is undertaken before the
monsoon season.
•Gaps between Government and Private Sector efforts were bridged. Private
companies came forward, post-disaster, for repairing vehicles, re-phasing loans and
personnel management.
•The State Government had convened a meeting with all Stakeholders to discuss
their
•contingency plans which ensured pre-emptive deployment of response forces.
Additional
•Teams of NDRF, SDRF and Columns from Army, Navy and Coast Guard were
mobilized and pre-positioned in vulnerable areas.
•Similar meetings were held at the district and state level to sensitize hospitals,
educational and industrial organizations, communication service providers and Oil
Companies etc. sensitizing them to be equipped with institutional strategies for
immediate response during disasters. They were also sensitized to make back-up
arrangements to ensure continuity of life saving services, especially in the hospitals.
•A coordinated approach covered timely evacuation and minimum casualties.
•Power supplies were turned off during floods/cyclonic storms.
•Diesel Generators (DG) were shifted to elevated level/upper floors. DG sets of
mobile service operators were damaged during 2015 floods as they were installed
in the basements.
•Sufficient diesel/oil stock with power/oil/telecom companies with proper storage
facilities at safe locations. While only BSNL had enough stock during 2015, each
of these service providers had enough stock during the 2016 North East Monsoon.
•During the 2016 North East Monsoons, at least 5,000 culverts were cleaned
beforehand.
•Similarly, bridges and culvert outlets were also cleaned – 500 metres upstream and
an equal distance downstream.
•When schools were re-opened after floods, water storage tanks were cleaned and
fi lled with fresh water.
•Power supply to government hospital buildings were restored first. Later, step-by-
step restoration of power for other important establishments was done.
•Chlorination of water tanks were done before North East Monsoon season. 42
•Massive exercises for desilting 22,899 tanks and 11,446 kms of water bodies were
taken up. In addition, clearing of blockages on either side of at least 15,870 bridges
and more than 1.4 lac culverts for up to 500 upstream and downstream were also
undertaken and encroachments were removed.
•A total of 6,960 recharge pits were created and 8,657 defunct bore-wells were also
converted as recharge-pits.
•Formation of green corridors in vulnerable areas to facilitate rapid movement of
rescue teams to undertake necessary operations.
Kerala Flood 2018
Kerala State has an average annual precipitation of about 3000 mm. The rainfall in the State is
controlled by the South-west and North-east monsoons. About 90% of the rainfall occurs during
six monsoon months. Kerala experienced an abnormally high rainfall from 1 June 2018 to 19
August 2018. This resulted in severe flooding in 13 out of 14 districts in the State. As per IMD
data, Kerala received 2346.6 mm of rainfall from 1 June 2018 to 19 August 2018 in contrast
to an expected 1649.5 mm of rainfall. This rainfall was about 42% above the normal. Further,
the rainfall over Kerala during June, July and 1st to 19th of August was 15%, 18% and 164%
respectively, above normal.
Due to heavy rainfall, the first onset of flooding occurred towards the end of July. A severe spell of
rainfall was experienced at several places on the 8th and 9th of August 2018. Water was released
from several dams due to heavy rainfall in their catchments. The water levels in several reservoirs
were almost near their Full Reservoir Level (FRL) due to continuous rainfall from 1st of June.
Another severe spell of rainfall started from the 14th of August and continued till the 19th of
August, resulting in disastrous flooding in 13 out of 14 districts.
Table 4: District wise rainfall during 1 June 2018 to 22 August 2018
District
Normal Rainfall
(mm)
Actual Rainfall
(mm)
Departure from Natural (%)
Kerala State 1701.4 2394.1 41 Excess
Kasaragode 2609.8 2287.1 12 Normal
Palakkad 1321.7 2285.6 73 Large Excess
Alappuzha1380.6 1784 29 Excess
Kannur2333.2 2573.3 10 Normal
Ernakulam1680.4 2477.8 47 Excess
Idukki1851.7 3555.5 92 Large Excess
Kollam1038.9 1579.3 52 Excess
Kottayam1531.1 2307 51 Excess 43
Kozhikode2250.4 2898 29 Excess
Malappuram1761.9 2637.2 50 Excess
Pathanamthitta1357.5 1968 45 Excess
Thiruvananthapuram 672.1 966.7 44 Excess
Thrissur1824.2 2077.6 14 Normal
Wayanad2281.3 2884.5 26 Excess
Source: CWC report
Figure 9: Rain gauge stations of Kerala used for rainfall analysis 44
Effects of Flood
Kerala was very badly affected by the flood and lost
nearly 33 were destroyed and about 70 thousand
kilometer of road network suffered major damage.
Centre government approved the assistance of Rs.
3048.39 crore for the floods. The estimated losses
of flood from different agencies is US$ 4.25 billion
displacing over 8,00,000 people in the region.
Major Findings
1. From the analysis it has been found that the dams in Kerala neither added to the flood
nor helped in reduction of flood, as most of the dams were already at FRL or very close
to FRL on 14 August 2018, due to more than normal rainfall in the months of June to
July 2018. It may be noted that, had the reservoir been a few feet below FRL, the flooding
conditions would have not changed much, as the severe storm continued for 3 days and
even for 4 days at majority of the places, and in any case, it would have been necessary
to release from the reservoirs after 1st day of the extreme rainfall.
2. Nevertheless, it is essential to review the rule curves of all the reservoirs in Kerala. The
rule curves need to be meticulously drawn particularly for the reservoirs having the live
storage capacity, of more than 200 MCM in order to create some dynamic flood cushion
for moderating the floods of lower return periods particularly in the early period of
monsoon.
3. The runoff generated from Pamba, Manimala Achenkovil and Meenachil rivers during
15-17, August 2018 rainfall was about 1.63 BCM against the 0.6 BCM carrying capacity of
Vembanad lake. Further, the discharging capacity of 630 cumec of Thottappally spillway
was the other major constraint for the disposal of runoff. Considering the lake carrying
capacity of about 600 MCM and discharging capacity of 630 cumec of Thottappally
spillway and about 1706 cumec present discharging capacity of Thaneermukkom
barrage, it can be concluded that out of 1.63 BCM the runoff generated during the 15-
17, August 2018 rainfall, only about 0.605 BCM runoff was possible to drain out of the
Vembanad lake. The remaining runoff volume of about 1 BCM created the rise of the
water level in the lake and nearby areas. This continuous rising of lake water may be
one of the reasons of overall change in the river hydrodynamics of Pamba, Manimala,
Meenachil and Achenkovil river systems resulting higher water level for a particular
discharge in these rivers. Considering the high rainfall during 15-17, August 2018, the
absence of appreciable storage reservoirs in the upstream in the above rivers along with
the shrinkage of carrying capacity of Vembanad Lake and reduction of the capacity of
Thottappally spillway worsened the flooding in the Kuttanad region and the backwaters
flows to the low lying areas in the upper reaches of the lake. 45
4. The worst affected districts noticed were Wayanad (Kabini sub-basin), Idukki (Periyar
sub-basin), Ernakulam (Periyar and Chalakudi) sub-basins, Alleppey and Pathanamthitta
(both in Pamba sub-basin).
5. In a nutshell, it can be concluded that August 2018 flood in Kerala was due to severe
storm occurrences during 8-9, August 2018 and 15-17, August 2018. The storm of 15- 17,
August 2018 resulted in heavy flooding in Periyar, Pamba, Chalakudi and Bharatpuzha
sub-basins of Kerala. The rainfall during 15-17, August 2018 was almost comparable to
the historical 16-18, July 1924 rainfall of Kerala, particularly in Periyar, Pamba, Chalakudi
and Bharatpuzha sub-basins.
6. The release from reservoirs had only minor role in flood augmentation as released
volume from the reservoirs were almost similar to inflow volumes. In fact, Idukki
reservoir absorbed a flood volume of about 60 MCM during 15-17, August 2018. Even,
with the 75 percent-filled reservoir conditions, the current flood could have not been
mitigated as 1-day rainfall in majority of the area was more than 200 mm and severe
rainfall continued for 3 to 4 days.
Key takeaways
1. It is essential to review the rule curves of all the reservoirs in Kerala. The rule curves need
to be formulated for both conservations as well operations during the flood, particularly
for the reservoirs having the live storage capacity of more than 200 MCM in order to
create some dynamic flood cushion for moderating the floods of lower return periods
particularly in the early period of monsoon.
2. For efficient discharge of flood runoff from Vembanad lake, the approach channels to
Thottappally spillway and the passage of the Thaneermukkom barrage should be widened
taking into consideration the lake hydrology, ecology, saline water intrusion, etc based on
scientific and engineering inputs.
3. In basins like Periyar, Pamba and Achenkovil basins, Kerala should explore the possibilities
of creating suitable storage reservoirs, wherever feasible, for flood moderation and other
multipurpose uses.
4. Loans for recovery of essential household articles lost and damaged during the floods
from our Co-operative Banks and commercial banks were channelized through the
widely networked Women’s self-help group Kudumbashree. The interest payment on
these loans was borne by the Government of Kerala.
5. Camps were held to speedily reissue lost certificates.
6. The Government of Kerala has also entrusted the Kerala State IT Mission (KSITM)
to set up an ICT Platform comprising of Web based backend and a mobile app-based
field survey application to document the flood related damage caused to houses and
commercial establishments in affected districts. 46
Figure 10: Kerala Flood snapshots
Bihar Flood 2019
Many areas of Bihar experienced heavy rains on 21st September. Water entered 80% of the houses
in the capital Patna. The four rivers near Patna, Son, Ganga, Gandak and Punpun, had risen
above the danger mark. The release of 2.75 lakhs cusecs of water from Indrapuri barrage across
the Sone river worsened the situation in river Ganga which caused panic among people living in
Patna. During the flood, some of worst impacted areas were slums in Patna. The slum areas of
Rajendra Nagar area, Ramakrishna Nagar, Kankarbagh, boring road, Nala Road, Gandhi Maidan
were among the worst-affected localities in Patna. The Pataliputra Colony and Kurji were also
severely water logged. These slums faced severe flooding; causing damages to the houses and
remained inhabitable for many days afterwards. The unhygienic living conditions in slums and
water accumulation during and after rain, which made the situation worse and slum areas flood
almost each year now.
Effects of the Flood
28 districts including the capital city Patna is affected. The names of affected districts are Araria,
Kishanganj, Madhubani, East Champaran, Sitamarhi, Sheohar, Supaul, Darbhanga, Muzaffarpur,
Saharsa, Katihar, Purnea, West Champaran, Buxar, Bhojpur, Samastipur, Lakhisarai, Begusarai,
Khagaria, Bhagalpur, Munger, Patna, Saran, Vaishali, Arwal, Jehanabad, Nalanda and Nawada.
Table 5: Damage due to Flood
S.No ItemsNumber
1. Number of Villages affected1846
2. Population affected119 lakh
3. Number of People Evacuated 1.25 lakh
4. People dead116 47
Figure 11: Patna in 2019 Flood
Major Findings
1. Flooding in the city appeared to have been caused by a choked, damaged and dysfunctional
drainage system, and delayed activation of pumps at the sump houses.
2. As per assessment, there are 40 slums are fully affected by the flood and 16825 families
were the victims of flood. In most of the slums water level was 3 feet and 4 slums are not
in accessible condition. The water resources are fully contaminated due to the situation,
66.52 % families were denied by safe drinking water too.
3. Flood in Patna impacted the shelter in slums in various ways. The impact ranges from
complete collapse of houses to partial damages and minor damages. The slum dwellers
need support to help them recover from the impact of flood. In many places, people who
lost their homes were unable to return to their home and getting back to normalcy. 3.3%
of the houses were completely collapsed and these houses will require reconstruction and
major repair work. Shelter support should include options from provision of material
and technical support to labour and cash. It is also observed that the families lost their
homes were staying at relief camps.
4. As per the analysis the livelihood of both male and female were affected badly by the
devastating floods. For female -Domestic works, wage labour, Households chores as
domestic maids, Rag pickers, Tailoring labours were affected. For male’s construction
workers, self-employee, daily wages workers, rickshaw puller, street vendor’s labours were
affected. It indicates the incapacity of the community members to have proper nutritious
food availability in their households.
Key Takeways
1. In order to reduce flood damage in future the effective way is to prevent development
in flood prone lands. So the best approach is zoning of such land, however the land use
planning as discussed should be adopted so the land contains an outlined use. Zoning
can be used to scale back damages from flooding and must be so flexible to acknowledge
that different types of land use are compatible. 48
2. The storm water drainage system is unknown to Patna; what exists in some parts is a
sewage network that is meant to double as drainage. At the best of times, this network
lies overburdened with unrelieved human effluence. Therefore, there is need for regulated
development of the city. Funds to develop the proper sewerage and storm water drainage
system in the city can be taken under Smart City Mission, National Mission for clean
Ganga and AMRUT.
3. Special drive to clean channels leading to water tanks is undertaken before the monsoon
season.
4. All urban water bodies will be protected. Efforts will also be made to restore water bodies
by de-silting and taking other measures. Efforts will also be made to revive water bodies
that have been put to other uses. Water bodies will be an integral part of the stormwater
system.
5. Low-lying areas should be reservedfor parks and other low-impact human activities,
Wherever unavoidable, buildings in low lying areas should be constructed on stilts above
the High Flood Level (HFL)/ Full Tank Level (FTL),
6. For chronic flooding spots, alternate locations may be explored for accommodating
people staying there, Buildings should be constructed on stilts after taking into account
the stability of slopes.
7. The nallahs/ drains/ watercourses/ flood plains should be clearly delineated and
boundaries fixed in new developments. There will be strict enforcement of the relevant
byelaws/regulations in the new layouts.
Hyderabad Flood 2020
On October 14, 2020, after night long rain, the daily rainfall recorded at the weather monitoring
station of the India Meteorological Department was 19.2 cm. The water drowned the roads and
inundated homes worth crores of rupees in upmarket localities such as Manikonda, Gachibowli,
Rajendranagar and Madhapur on the western part of the city.
Effects of Flood
As per the Greater Hyderabad Municipal Corporation data, parts of the Nadeem Colony
abutting Shah Hatim Talab had water rise to 12 feet after the downpour on October 13. Devi
Nagar and Chudi Bazaar colonies in Goshamahal saw the water rise to 10 feet. Similar were the
scenes in several other colonies like Hafiz Baba Nagar, Al Jubail Colony, Ghazi-e-millat colony,
Chandrayangutta, Ghouse Nagar, Moin Bagh, Edi Bazaar, Talab Katta and Riyasat Nagar in the
old city area. All these localities witnessed water rise to 4 feet. Close to two dozen colonies around
LB Nagar too faced a similar fate. 49
33 lives were lost to heavy rains and floods in the city, with the Greater Hyderabad Municipal
Corporation estimating that at least 37,409 families were affected. The Municipal Administration
minister pegged the city’s losses at Rs 670 crore.
Figure 12: Hyderabad Flood 2020 Snapshots
Major Findings
1. Much of the damage was due to the overflowing of lakes — in particular, the Hussain
Sagar Lake in the middle of the city and the breaching of storm water drains. Construction
over lake beds and encroachments of drainage channels have been identified as problems
that have exacerbated flooding and inundation in the city.
2. According to estimates, since last few decades water bodies have drastically come down
from 1 lakh to 185 within the greater Hyderabad Capital Region. Out of 185 lakes for 75,
the surplus weirs and courses are completely closed. These lakes used to work as flood
sink of the city. In absence of these, city is more vulnerable to any natural disaster.
3. Hyderabad and even Telangana state do not have a disaster management plans. They are
not fully utilising the doppler radar, which can give advance and precise warnings. The
focus is on disaster response, even while allowing unplanned growth.
Key Takeaways
1. Hyderabad urgently needs to expand and remodel its drainage system. Besides lakes
and canals, wetlands and watersheds play a vital role in absorbing excess rainfall, but
regrettably, rapid urbanization in the twin cities has resulted in the loss of a large portion
of the wetlands.
2. An analysis by the Centre for Science and Environment in 2016 revealed that 3,245
hectares of water bodies were lost in Hyderabad between 1989 and 2001. In the long
term, the effects of flooding due to deluges can only be mitigated if urban planners take
into account the hydro-geology of cities and ensure that construction, development and
land occupation do not take place in a way that reduces the area of wetlands.
3. Engineering solutions like linking all the 185 tanks in and around Hyderabad with
modern technology to divert flow of water during deluge coupled with measures to 50
control flood (rainwater) flow by restoring ‘nalas’ and removing encroachments would
help prevent flooding and inundation.
4. The nallahs/ drains/ watercourses/ flood plains should be clearly delineated and
boundaries fixed in new developments. There will be strict enforcement of the relevant
byelaws/regulations in the new layouts.
5. An underground drainage system should be constructed to flush rainwater from any
place, whether it is at a high or low elevation, till the final place of discharge, like the
Musi river in Hyderabad’s case 51
© psmag.com
Section 5
Flood Management and
Border Areas Programme
(FMBAP) 52
Introduction
The projects for flood management and control are formulated and implemented by respective
state governments/Union Territories from their own resources and as per their priority. Central
Government provides financial assistance to states/UTs for implementing some projects in critical
areas. Central Govt. has been providing financial assistance through a scheme called Flood
Management Programme (FMP) since XI Plan. The scheme since its inception has undergone
several changes as per demands of states/UTs and also on account of various directions and
policies of Govt. of India.
Flood Management Programme (FMP)
During X Plan, following four schemes were sanctioned to provide central assistance to the flood
prone states to take up flood control and river management works in critical areas:
a. Critical Anti-erosion works in Ganga Basin States (Centrally Sponsored Scheme);
b. Critical Flood Control and Anti Erosion Schemes in Brahmaputra and Barak Valley
States (State Sector Scheme);
c. Improvement of Drainage in critical areas in the country (State Sector Scheme); and
d. Critical Anti-erosion Works in Coastal and other than Ganga Basin States (State
Sector Scheme).
The Flood Management Programme (FMP) was implemented during XI Plan with an outlay of
Rs. 8000 crore after subsuming above four schemes. Under the Programme, central assistance was
provided to State Governments for taking up works related to river management, flood control,
anti-erosion, drainage development, flood proofing, restoration of damaged flood management
works and anti-sea erosion. The pattern of funding was 90 % (Centre):10 % (State) for Special
Category States and 75 % (Centre): 25 % (State) for General/ Non-Special Category States. During
XI Plan, 420 works with a total estimated cost of Rs.7857.08 crore were approved under FMP.
Central assistance to the States/UTs to the tune of Rs. 3566.00 crore was released during this plan
period. During XII Plan, the Government of India approved continuation of “Flood Management
Programme” with an outlay of Rs.10000 crore. The funding pattern under the Scheme for the
special Category States covering the North Eastern States, Sikkim, Himachal Pradesh, Jammu &
Kashmir and Uttarakhand was 70% (Centre) : 30% (State) and for General States – 50% (Centre)
: 50% (State). The project eligibility criteria for inclusion under the Scheme for special Category
States was projects with estimated cost Rs 10 crore and above with Benefit Cost ratio more than
1.0 and for General States it was Rs 40 crore and above with Benefit Cost ratio more than 1.0. The
inclusion of projects, inter-se priority of the works etc. was decided through an Inter-Ministerial
Committee headed by Secretary (Water Resources), Government of India. During XII Plan (up
to 31-03-2017), 102 works with a total estimated cost of Rs.5381.28 crore were approved under
FMP. Central assistance to the States/UTs to the tune of Rs. 1307.07 crore was released during
this plan period. 53
River Management Activities And Works Related To Border Areas
During XII Plan, Government of India had approved implementation of the Central Sector
Scheme “River Management Activities and Works related to Border Areas” with a total outlay of
Rs 740.0 crore to cover the following continuing and new activities.
a. Hydrological observations and flood forecasting on common border rivers with
neighbouring countries,
b. Investigations & Pre-construction activities for WR projects on common border
rivers,
c. Pancheshwar Development Authority (PDA),
d. Grant in Aid to States/UTs for flood management/anti –sea erosion works,
e. Maintenance of flood protection works of Kosi & Gandak projects (in Nepal),
f. Flood Protection/anti-erosion works in the border areas with Bangladesh and
Pakistan by States and Flood Management/anti-erosion works/anti- sea erosion
works in UTs,
g. Activities of Ganga Flood Control Commission (GFCC).
The RMBA being specific to activities in border areas with neighboring countries viz. Bangladesh,
Nepal, China, Pakistan and Bhutan and for taking up Anti Erosion/Flood Management schemes
on rivers on international borders and Union Territories, the projects/ works are funded with
100% central assistance. A Grant-in-Aid of Rs 563.61 (Rs 3401.41-XI Plan & Rs 223.2 Cr XII
Plan) were released to various states under this Scheme.
Flood Management and Border Areas Programme (FMBAP)
The Outcome review/Third party evaluation of the two Plan Schemes ‘Flood Management
Programme (FMP)’ and ‘River Management Activities & Works related to Border Areas
(RMBA)’ implemented during XII Plan was carried out by a Committee constituted under the
chairmanship of Director, National Institute of Hydrology, Roorkee. The Outcome Review/Third
Party Evaluation Committee recommended that only those schemes which are very critical for
long-term protection against floods, costing above Rs. 40 crores, may be considered for funding
by Union Government under Flood Management Programme. Other schemes / works may be
taken up by the concerned State Governments through State Plan allocation. Since the FMP and
RMBA schemes have common nature to some extent, the modalities for merging the two schemes
in a hybrid/umbrella scheme may be explored and both the schemes may be merged into a single
scheme. For the period 2017-18 to 2019-20, a comprehensive scheme titled “Flood Management
and Border Areas Programme (FMBAP)” with an outlay of Rs 3342.00 Cr (FMP-Rs 2642 Cr &
RMBA-Rs 700 Cr) with merged components from the XII Plan Schemes viz. Flood Management
Programme (FMP) and River Management Activities & Works related to Border Areas (RMBA)
schemes was approved by the Union Cabinet. The funding pattern for works in general category 54
states under FMP component remained as 50 % (Centre): 50 % (State) and for projects of 8 North
Eastern States, J&K, Himachal Pradesh and Uttarakhand, the funding pattern continued to be
70 % (Centre):30 % (State). Whereas, RMBA component being specific to activities in border
areas with neighboring countries viz. Bangladesh, Nepal, China, Pakistan and Bhutan the funding
pattern continued as 100% central assistance. During the period 2017-18 to 2019-20 Rs. 1536.95
Crore has been released as Grant-in Aid to the States under FMP component and Rs. 554.16
Crore has been spent under RMBA component of FMBAP thereby making a total of Rs. 2011.91
Crores.
Salient Features Of FMBAP
Some of the salient features of FMBAP Scheme as approved by Union Cabinet for the period
2017-18 to 2019-20 are-
i. FMBAP Scheme is for completion of the spill over works in respect of 83 ongoing
projects, already approved under FMP during Xl & Xll Plan as assessed/required and
dropping 16 ongoing projects in which the current work progress is less than 50 percent.
ii. The Scheme has a provision only for clearing the committed liabilities of ongoing and
completed projects as per extant Xl/ Xll Plan guidelines and that no new project to be
included under FM component of FMBAP Scheme till then.
iii. In this Scheme, Administrative Ministry has been authorized to decide inter sub-
component and inter-item redistribution of provisions within the overall cost of the
respective components of FM (Rs. 2642 crore) and RMBA (Rs. 700 crore) under the
Scheme.
iv. The techno-economic Appraisal and Investment Clearance of flood management works
under FMBAP continued to be done as per the procedures laid down by Department of
Water Resources, River Development & Ganga Rejuvenation.
v. The Inter-Ministerial Committee (IMC) headed by Secretary (WR, RD & GR) with
members drawn from Ministry of Finance (Department of Expenditure), Planning
Commission (Now NITI Aayog) and other line Ministries / Departments/Organisations
constituted during XII Plan to be continued under the scheme for FMP component. For
the works under RMBA component, the procedure is proposed to be in accordance with
the bilateral mechanism with neighboring countries.
vi. For release of Central assistance to State Government for Projects included under FMP,
detailed guidelines of DoWR, RD & GR of October, 2013 describing procedures about
submission of documents, budget provisions, Utilisation Certificates, monitoring reports,
Concurrent Report, instalments for release of central share to States, etc is followed.
FMBAP Scheme For The Period 2021-26
There has been consistent demand from all the flood prone states that Government of India 55
should continue to provide financial assistance to flood management projects in the States and
new projects should be included for central funding. It is, accordingly, recommended that FMBAP
scheme may be continued for the period 2021-26, i.e., co-terminus with the period of 15th Finance
Commission with the provision of inclusion of new projects for funding under the scheme.
Keeping in view the persistent demand from States to include new schemes under central funding
as no new projects have been included for central funding since the year 2015, the proposed
outlay of the FMBAP Scheme for period 2021-26 shall be around Rs. 15,000 Crores. Based on
suggestions received from the States and issues encountered during course of implementation of
existing scheme, following suggestions/modifications are proposed in the new scheme.
a. Threshold Limit for Inclusion:
The current threshold limit for inclusion of new schemes for funding under FMBAP
needs to be relooked into. It is proposed that flood schemes which are very critical
for long-term protection against floods, costing above Rs. 40 crore with BC ratio more
than 1.0, may be considered for funding under Flood Management Programme works
in general category States. Whereas, for 8 North Eastern States, J&K, Himachal Pradesh
and Uttarakhand, flood schemes which are very critical for long-term protection against
floods, costing above Rs. 20 crore with BC ratio more than 1.0, may be considered for
funding under FMBAP.
b. Funding Pattern:
There has been demand from Special category states that funding pattern under the
Scheme should be 90 % (Centre): 10 % (State) instead of current 70 % (Centre): 30 %
(State). It is pertinent to mention that funding pattern of Centrally Sponsored Schemes
is guided by the directions of Ministry of Finance. As per the OM of Governing Council
Secretariat, NITI Aayog dated 17th August, 2016 the funding pattern for new flood
management schemes could be considered as follows (however, it will depend on the
provisions applicable at the time of approval of new Scheme)
FMP Component: The funding pattern for works in general category States to be 60 %
(Centre): 40 % (State) and for projects of 8 North Eastern States, J&K, Himachal Pradesh
and Uttarakhand, to be 90 % (Centre): 10 % (State)
RMBA Component: The RMBA component is specific to activities in border areas
with neighboring countries viz. Bangladesh, Nepal, China, Pakistan and Bhutan. The
projects/ works continue to be funded as 100% central assistance.
c. Techno-Economic Appraisal of Flood Management Schemes/Projects:
For inclusion of flood management scheme in FMBAP, project reports are required to
secure all mandatory clearances from the specified Committees including State Technical
Advisory Committee, State Flood Control Board, Forest Clearance, technoeconomic
viability acceptance of CWC/GFCC/Advisory Committee of DoWR, RD&GR (as
applicable) and investment clearance by the Investment Clearance Committee of DoWR, 56
RD&GR . The general procedure(s) of techno-economic appraisal has been described
in the erstwhile Planning Commission communication No. 16(12)/12003-WR dated
29.06.2012. There have been demands from States for considering enhancement of
the existing powers of the State Government for clearance of flood control schemes. A
Committee with the approval of Secretary (WR, RD & GR) under the chairmanship of
Chairman, CWC was constituted for to review the above existing instructions of Planning
Commission, stipulating the procedures and existing powers of the State/UT Government
for the sanction of flood control, drainage and anti-water logging schemes. The revision
of monetary limits for appraisal of flood control schemes as per the recommendation of
Committee as well as the existing powers are mentioned in table below.
Table 6: Revision of monetary limits for appraisal of flood control scheme
S. No. Appraising Authority Existing
As proposed by Committee
headed by Chairman, CWC
1. State TAC < Rs. 12.50 Crores<Rs. 25 Crores
2.
GFCC (for Ganga Basin) /Regional
Offices of CWC
(other than Ganga Basin)
> Rs. 12.5 Crore
and < Rs. 25 Crores
>Rs. 25 Crores
< Rs. 40 Crores
3.
Advisory Committee of DoWR based
upon appraisal by
GFCC/CWC
>Rs. 25 Crores > Rs.40 Crores
It is proposed to revise the limits as recommended by the said Committee
d. Monitoring Mechanism of FMBAP Projects:
Extensive and regular Monitoring of the schemes with latest technology using remote
sensing tools to be carried out by the Central Water Commission (CWC), Ganga
Flood Control Commission (GFCC) and Brahmaputra Board (BB) in their respective
jurisdiction. The above central organizations to play an active role at formulation stage
of the DPRs for flood management works by the State Governments in their respective
jurisdiction and provide necessary guidance in preparation/ submission of the funding
proposals in time for appraisal and release of central assistance. The possible use of
UAV along with satellite technology to be explored for monitoring of the projects and
a comprehensive dashboard to be created for mapping of flood management projects
under FMBAP.
e. Utilization Certificate:
As per extant guidelines, for release of installment in any year, the Utilization Certificate
(UC) for the full amount of central assistance releases made in previous year is mandatory. 57
Since second installment is normally released at the far end of previous Financial Year,
the proposals for central assistance for a fresh year gets delayed on account of arranging
UC of the previous year. In order to streamline this, release of an installment of Central
share not to be predicated on producing Utilization Certificates (UCs) of the last
instalment and that release to be based on the furnished UC of the penultimate (last to
last) release of Central share as per NITI Aayog OM dated 17th August, 2016.
f. Reimbursement of Central Assistance:
In respect of projects included under FMBAP Scheme for central funding, if any,
expenditure is made by the State Government towards the Central share from its own
resources, the same shall be reimbursable. This is in line with NITI Aayog OM dated
17th August, 2016. However, any expenditure made by the States prior to inclusion of
project in FMBAP Scheme shall not be eligible for reimbursement.
g. Installments for release of Central Assistance:
The release of central assistance is done in two installments. In view limited working
season for flood management schemes/ anti erosion works which is broadly between 15th
November to 31st May, the States Governments particularly from the special category
states are demanding that the first installment of eligible central assistance needs to be
raised from current level of 50%. Accordingly, it is proposed that the first installment in
respect of all States may be kept as 90% of eligible central Share. However, it would be
governed by extant guidelines of Ministry of Finance
h. Scope of RMBA Component:
The present scope of RMBA component allows maintenance of flood protection works
of Kosi & Gandak projects in Nepal territory only and 100 % Reimbursement is given to
the State Governments based upon the recommendation of India-Nepal Kosi High Level
Committee (KHLC) and Gandak High Level Standing Committee (GHLSC). Considering
the importance and significance of the inundation issues along India-Nepal Border, the
current scope of RMBA Scheme may be extended for flood protection works in India
on all cross border/border rivers for all neighbouring countries in addition to Kosi and
Gandak in Nepal territory as per bilateral agreement. Ministry of External affairs has
strongly expressed to include the 100% central funding of river training works on cross
border rivers with Nepal due to its international importance. Accordingly, it is proposed
that while the existing works/activities shall continue to be part of RMBA component of
FMBAP Scheme additional provisions shall be kept for taking up of river training works
on all cross border/border Rivers. A comparison of existing and new provisions under
RMBA component is at Annexure II. 59
© psmag.com
Section 6
National Water Model for
India and preparation Flood
Management Plans 60
Use of Technology
When it comes to disaster mitigation and planning, technology holds a very important role. The
latest space technology which includes the use of remote sensing can prove to be an ace for flood
control and mitigation. Moreover, use of GIS and Unmanned Arial Vehicles can turn around the
whole planning system.
1. Space Technology: In order to plan, execute, monitor and maintain the flood management
works, it is necessary to acquire timely and reliable information about the flooded areas,
watershed areas, river behavior and configurations, etc. prior to floods, during floods,
and after floods. Such information is difficult to acquire in time for decision making
from conventional ground survey methods, which are strenuous, time consuming
and full of limitations, especially while studying floods of large river basins. Satellites
due to their remote sensing and data transmission capabilities are the ideal methods
to study floods not only in smaller basins but also the large basins. The distinctive
ability to provide comprehensive, synoptic and multi-temporal coverage of very large
areas at regular interval and at high frequent time periods make them very valuable
in mapping, studying monitoring and managing flood dynamics. They can efficiently
provide information on i) flooded and congested areas ii) extent of destruction from
the flood iii) river configuration iv) status of dams and watershed structures v) collect
data from various sources and synthesize them to give a holistic picture of the calamity.
They are also useful in delineating the boundaries of flood prone zones and suggesting
the appropriate places where structural measures can be adopted to manage flood. Some
of the applications of Space Technology are development of early warning systems,
monitoring & assessment, preparation of developmental plans for relief, rehabilitation and
post-flood assessment. Space technology through Geostationary satellites, meteorological
satellites and communication satellites can play an important role in providing valuable
information particularly useful in the flood assessment, mitigation and preparedness
phases of floods besides weather monitoring and effective communication for early
warning and management of the floods.
2. GIS application in flood management: A Geographic Information System is a tool
that can assist in identifying flood prone areas. The geographical information is stored
in a database that can be analyzed by overlaying or intersecting different geographical
layers and thus flood prone areas can be identified and targeted for mitigation or stricter
floodplain management practices.
3. Unmanned Aircraft System (UAS): United States of America for a very longer time is
using UAS for flood forecasting, observing dams, detecting levee failures and watershed
structures and assessing the damage brought down by flood. Such technology can help
to provide timely and secure data. 61
Development of National Water Model for India
The National Water Model (NWM) is a hydrologic modelling framework developed in USA that
simulates observed and forecast streamflow over the entire continental United States (CONUS).
The NWM simulates the water cycle with mathematical representations of the different processes
and how they fit together. This complex representation of physical processes such as snowmelt
and infiltration and movement of water through the soil layers varies significantly with changing
elevations, soils, vegetation types and a host of other variables. Additionally, extreme variability
in precipitation over short distances and times can cause the response on rivers and streams to
change very quickly. Overall, the process is so complex that to simulate it with a mathematical
model means that it needs a very high powered computer or super computer in order to run in
the time frame needed to support decision makers when flooding is threatened
27.
The NWM runs in four configurations
28
:
•Analysis and assimilation provides a snapshot of current hydrologic conditions
•Short-Range produces hourly forecasts of streamflow and hydrologic states out to 15
hours
•Medium-Range produces 3-hourly forecasts out to 10 days
•Long-Range generates 30-day ensemble forecasts.
The NWM improves the National Weather Service’s ability to deliver impact-based decision
support services nationwide by providing “street level” water information and guidance (e.g.,
flood maps), as well as serve as the foundation for additional private sector water services.
NWM in India: A similar kind of National Water Model may be attempted in India with the help
of some scalable models details of which are given in the graphical format. These models can be
used together to feed the information into a decision support system which can provide support
services to Nation by predicting and forecasting flood and other water related events
1. Using Internet of Things (IoT) sensors
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27 https://water.noaa.gov/about/nwm
28 https://toolkit.climate.gov/tool/national-water-model 62
Advantages of the model:
i. Brings near real-time visibility on data;
ii. Records rainfall, Temperature, Levels, Flow ;
iii. Cloud based storage means can be accessed anywhere and safe;
iv. Cloud Computations.
2. Hydrological Model Based Flood Forecasting
The transformation of precipitation into channel flow is a highly complex physical process.
A common practice is to use a hydrological model to represent watershed processes. Many
different hydrological models have been produced by government agencies, universities,
and private companies. They offer a wide range of process simulation options, differing
levels of complexity and data requirements, and various degrees of technical support
and training. Their application also depends on the forecasting objective, geographical
and environmental factors, as well as institutional capabilities. Therefore, the selection
of a “best choice” flood forecasting model needs to be based on a systematic approach
29.
Advantages of the model:
i. Leverages historical data and near real-time data for computation
ii. Uses plethora on advanced techniques including GIS
iii. Model requires minimal installation of sensors
3. AI Based Flood Forecasting:
The need for reliable, easy to set up and operate, hydrological forecasting systems is
an appealing challenge to researchers working in the area of flood risk management.
Currently, advancements in computing technology have provided water engineering
with powerful tools in modelling hydrological processes, among them, Artificial Neural
Networks (ANN) and genetic algorithms (GA). These have been applied in many case
studies with different level of success. These AI and ML based models feed data like
rainfall or temporal flow and predict the flow flows at point of Interest.
Figure 14: AI Based Flood Forecasting
29 http://www.wmo.int/pages/prog/hwrp/documents/FFI/Intercomparison_of_flood_forecasting_models_for_review.pdf 63
Advantages of the Model
i. Leverages historical data for computation
ii. Model uses the recent Rainfall and corresponding flow to depict reality
iii. Model gives more accurate results over time
Based on the above models, National Water Model can be prepared for the country. The NWM
India will be able to do the short term, medium term and long-term flood forecasting. In the
event of floods, the alert can be disseminated through SMS or mobile applications. The post flood
assessments can be made through satellite imagery or other applications like Drones, UAS etc.
₹
Figure 15: National Water Model for India
Flood Management Plans
The most effective way of reducing the risk to people and property is through the production
of flood management plans. The flood management plans include all the activities and related
preparation in the eventuality of flood. Therefore, it is very important for at-risk communities to
develop a comprehensive Floodplain Management plans. A comprehensive plan should include
the following activities:
•Identification of flood prone areas: village/block/tehsil or taluka/district wise and
delineation thereof on maps.
•Preparation of flood vulnerability/flood risk/ flood hazard maps.
•Putting in place Decision Support System (DSS) for FM including preparedness, rescue,
relief, rehabilitation and recovery.
•Developing reliable and country-wide Flood Forecasting and Warning systems in the
public domain for all the flood prone areas with sufficient lea time and giving information 64
on prevailing water levels, area inundated, expected water levels and area likely to be
inundated with depth and duration of flooding in a manner easily understood by all.
•Implementation of adequately designed, maintained and sustained structural measures
for prevention of flooding and improvement of drainage, leading to feeling of security
against floods and overall development in the flood prone areas.
•Operation of reservoirs optimising benefits of flood moderation, irrigation, hydropower,
drinking and industrial water supply. Enactment and enforcement of laws for regulating
developmental activities in flood plains and prevention of encroachments into flood
plains and waterways, thereby reducing flood vulnerability/risk.
•Making the existing and new buildings and infrastructure such as roads, railway lines,
bridges, canals, etc. capable of withstanding the fury of the floods and not enhancing
flood vulnerability/risk.
•Preparation of states and districts FMPs.
•Training of trainers in professional and technical institutions on FM issues.
•Training of professionals like engineers and architects for incorporating measures that
can sustain the structures and provide shelter to people during floods in flood prone
areas.
•Implementing demonstration projects on flood-proofing in flood prone areas.
•Launching public awareness campaigns on flood safety and risk reduction and sensitizing
all stakeholders to flood problems and mitigation in flood prone areas.
•Undertaking regular inspections of structural works such as embankments, drainage
channels, protection works, etc. and implementation of required restoration/strengthening
measures prior to and emergency measures during floods in the flood prone areas by
the respective agencies/departments.
•Developing an inventory of the existing built environment.
•Assessing the flood risk and vulnerability thereof.
•Developing guidelines for flood-proofing measures and for all existing critical lifeline
structures and major public buildings in flood prone areas in a phased manner.
•Preparation of FMPs plans by schools, hospitals, industries, entertainment houses, major
shopping complexes etc. in flood prone areas and carrying out mock drills for enhancing
preparedness.
•Strengthening the Emergency Operation Centers network.
•Streamlining the mobilization of communities, NGOs, civil society partners, police force,
Civil Defence, the corporate sector and other stakeholders on occurrence of floods. 65
•Preparing community and village level Flood Management Plans ( FMPs).
•Creating an inventory of resources for effective response to floods in flood prone areas.
•Strengthening research capability of various academic and research institutions for
takingup development of cost-effective Flood Management measures.
•Preparing documentation on lessons from previous floods and their wide dissemination.
•Preparing an action plan for the upgradation and integration/interlinking of the FM
capabilities of the CWC, IMD and the state governments in flood forecasting with clear
roadmaps and milestones.
•Developing appropriate scheme for insurance of lives, crops and private and public
properties in flood prone areas by collaborating with insurance companies and financial
institutions.
•Operationalising the NDRF battalions.
•Operationalising the SDRF battalions in the states.
•Allotment for land for the Regional Response Centres.
•Strengthening the medical preparedness for effective response to prevent spread of
epidemics especially water-borne diseases after floods. 67
©Peter Gillespie
Section 7
Recommendations 68
Non-Structural Measures
•Ministry of Jal Shakti to continuously impress upon the States about the need to take
action to implement the flood plain zoning approach.
•(Action: Ministry of Jal Shakti and NITI Aayog - The ministry along with NITI Aayog
within next 6 months should conduct a workshop with states regarding the problems
and situations faced by them while adopting Flood Plain Zoning. Ministry of Jal Shakti
may also propose some financial or other incentives for the states implementing the
flood plain zoning)
•Continuous efforts to be made towards modernization in collection of hydrometeorological
data, flood forecast formulation and forecast dissemination. Further simplified data
dissemination policy for use of data by the States particularly regarding trans-boundary
rivers to be developed.
(Action: CWC and NITI Aayog- CWC within next 1 year should frame a simplified
data dissemination policy for use of data by the States particularly regarding trans-
boundary rivers and make a presentation to Vice Chairman, NITI Aayog)
•Focus on scientific research in development of Model based system to forecast flash
flood with sufficient lead time will provide a much-needed relief from menace of flash
floods.
(Action: CWC- within next 3 years, monitoring agency will be NITI Aayog, time to time
presentations on the research will be done to Vice Chairman, NITI Aayog)
•Rule curve/ level for all reservoirs should be prepared & updated accounting change in
rainfall trend and changing demand over the years due to rapid increase of population,
urbanisation and industrialisation. Rule curves of major reservoirs, where flood cushion
is not in-built, need to be reviewed to have some dynamic flood cushion for major part
of the flood season.
(Action: State Government, CWC and NITI Aayog: State Governments/ Dam owners
should prepare the rule curve for all reservoirs within next 1 year and submit it to CWC.
Rule curves of major reservoirs, where flood cushion is not in-built, will be reviewed and
updated by CWC within next 1 years. The progress regarding to it should be intimated to
NITI Aayog on quarterly basis.)
•Inflow forecasting to be made mandatory for all reservoirs and Emergency Action
Plan (EAP) for dam break/extreme flood situations should be ready including flood
inundation maps and flood waves & time analysis. Further, SoP for water releases
to be made mandatory for all reservoirs. Water release information for downstream
areas should be provided with sufficient response time and channel encroachment in
downstream stretches of dams to be removed. 69
(Action: CWC and State governments- Within next 3 years, progress made in these
directions will be intimated to NITI Aayog on quarterly basis.)
•Passing of Dam Safety Bill to be taken up on priority and Integrated Reservoir Operation
(IRO) for flood management to be promoted by giving Central Government a proactive
role and mandate.
(Action: Ministry of Jal Shakti: Next session of Parliament)
•Emphasis to be laid on application of space technology and use of State –of the- art
technology in spatial flood early warning and near real-time monitoring and mapping
of floods. The National Water Model as proposed in the last sections may be taken up
on pilot basis in Koshi and Gandak River Basins.
(Action: CWC - Within next 3 years, monitoring will be done by NITI Aayog)
•In order to check the threat of urban flooding, each city should have their flood
mitigation plans (floodplain, river basin, surface water, etc.) amalgamated within the
overall land use policy and master planning of the city.
(Action: Urban Local Bodies, State Governments Ministry of Housing and Urban
Affairs, NDMA, Ministry of Jal Shakti and NITI Aayog- Urban Local bodies within
next 1 year should prepare the Flood Management Plans amalgamating them with overall
land use policy and master planning of the cities. MoHUA , NDMA, Ministry of Jal Shakti
and state governments should provide hand holding services to ULBs. A workshop may
be conducted within 6 months by these agencies along with NITI Aayog to encourage the
ULBs to make such plans. The funds for implementation of plans can be sourced from
Smart City Mission and AMRUT as major drainage works and city rehabilitation can be
covered under these two programmes.)
•The state governments should strengthen FM education by facilitating the incorporation
of the best available technical and non-technical inputs on FM in educational curricula.
This effort will address the multi-faceted aspects of FM covering the pre- and post-
flood situations that include the inculcation of a culture of prevention, mitigation and
preparedness as well as effective and prompt response, relief, rehabilitation and recovery.
Case histories of major flood events will be used as valuable inputs in the process.
(Action: State Government- within next 3 years, monitoring agency will be MHRD which
will quarterly send report on the steps taken to NITI Aayog)
•Specially designed public awareness programmes should be developed by the state
governments/SDMAs/DDMAs for addressing the needs of citizens. The people should
be made aware of the need to keep special kits containing medicines, torch, identity
cards, ration card and non- perishable eatables such as dry fruits, roasted chana etc.
ready before commencement of monsoon so that, they can carry the same with them,
in case, they have to be evacuated .The community will also be trained for preparation
and utilization of improvised flood rescue devices with household articles. 70
(Action: State Government, SDMAs, DDMAs- Within next 3 years, monitoring agency
will be NDMA which will quarterly send report on the steps taken to NITI Aayog)
•The state governments should proactively support application-oriented research and
developmental activities to address contemporary challenges, generate solutions, and
develop new techniques to improve their sustainability in floods.
(Action: State Governments- Within next 3 years; MoJS should conduct a biannual
conference to review these researches)
Structural Measures
•The long-term structural solution to floods lies in construction of large storage reservoirs
which moderate flood peaks by adopting appropriate reservoir operation schedule.
Government of India has to expedite implementation of storage projects in Nepal as per
bilateral agreements. In order to mitigate Brahmaputra flood, flood storage is essential
in Subansiri, Siang, Dibang and Lohit sub basins and projects that have been identified
in these sub-basins to be taken up for expeditiously. Likewise, to mitigate Barak floods,
storage projects in the basin to be taken up.
(Action: Ministry of Jal Shakti- Identify the storage projects In Nepal; Prepare their
feasibility studies; Prepare the DPRs of the identified projects in Next 3 years; Expedite
the constructions of identified projects like Upper Siang, Lower Subansiri and fix a non-
extendable timeline for the initiation of their proper functioning; Identify the storage
projects in Barak Basin and prepare their feasibility studies in next 3 years. Ministry of Jal
Shakti will present the quarterly progress regarding these matters to Vice Chairman, NITI
Aayog)
•To get benefit of flood control, it is essential that tendencies like encroachment of
natural detention basins are curbed and these basins are restored to their natural state
as a measure for flood control.
(Action: State Governments, Ministry of Jal Shakti and NITI Aayog - State Governments
in next 1 year should prepare a district wise list of natural detention basis, a status note on
the level of encroachment and submit the action plan for the restoration of natural state of
these detention basins to Ministry of Jal Shakti and NITI Aayog. Ministry of Jal Shakti and
NITI Aayog will be the monitoring agencies for the implementation of state- wise action
plans. The funds for these works can be sourced from Watershed Component of PMKSY,
MGNREGA and proposed FMBAP scheme. The action plan should be implemented by the
states in next 3 years)
•The raising and strengthening of existing embankments, new embankments,
channelisation, drainage & channel improvement, anti-erosion works, to be taken up
as a flood control and erosion management measures as per requirement of the flood
prone States 71
(Action: State Governments and CWC- State Governments should provide the list of
proposed projects along with their techno-feasibility studies to CWC in next 1 year. The
funds for these projects can be sourced from the proposed FMBAP scheme. The appraisal of
the project will be according to the revised guidelines suggested in the report. Monitoring of
the projects will be on the lines of guidelines provides for the monitoring of FMBAP projects
in the report)
•The projects for interlinking of rivers for diversion of flood water to water scarce areas
may be taken up in a time bound manner.
(Action: NWDA and NITI Aayog- The DPR of Ken-Betwa, Damanganga-Pinjal and
Par-Tapi-Narmada link projects have been completed and these projects are in an advanced
stage of implementation. NWDA should expedite the implementation of these projects and
push forward the DPR formation of rest of identified links. The quarterly presentations on
the progress can be made to Vice Chairman, NITI Aayog.)
•Watershed management works in the hilly catchments of the rivers originating in Nepal,
Bhutan as well as in hilly areas of India should be selectively chosen and implemented
with central assistance. Effort may be made to treat the hilly catchments to reduce/
minimize the sediment yield from such areas. The steep sloped rivulets/streams in hilly
region may be re-graded/ longitudinal slopes reduced to control the velocities of flow
by adopting various river training measures. Such measures will arrest the sediment
at source or near the source. This will further stabilize the hill slopes adjacent to the
rivers. Adopting such methods will further improve the ground water recharge and
release such water over extended period of time back to the river system. This will
in a way attenuate the peak of the hydrograph, reduce the flooding and ill effects of
sedimentation in downstream areas. Nodal Ministry viz. Ministry of Rural Development
– Department of Land Resources for the watershed management works may work out
a detailed programme in consultation with Ministry of Jal Shakti, NITI Aayog other
stake holders of State Government.
(Action: Department of Land Resources- A detailed programme in consultation with
Ministry of Jal Shakti, NITI Aayog, other stake holders of State Government should be
prepared within next 1 year)
•The reclamation of the existing wetlands/ natural depressions should be prohibited by
state governments and they should formulate an action plan for using them for flood
moderation.
(Action: State Governments and Department of Land Resources, NITI Aayog- A
district wise action plan for conservation of wetlands, lakes and natural depressions should
be prepared by states and submitted to Department of Land Resources, Ministry of Jal
Shakti and NITI Aayog within next 1 year. Department of Land Resources and NITI
Aayog will be the monitoring agencies for the implementation of the action plans which
should be get over by next 3 years) 72
•Conventional anti erosion works along with cost effective methods like riparian
vegetation which interacts with a range of geomorphological, geotechnical, hydrological
and hydraulic factors to affect the type and extent of riverbank erosion to be taken.
(Action: Ministry of Jal Shakti, MoEFCC, Ministry of Agriculture, DoLR, and State
Governments- Ministry of Jal Shakti along with MoEFCC, Ministry of Agriculture, DoLR
within next 1 year should issue an detailed advisory about the anti-erosion works and cost
effective methods like riparian vegetation to the states considering all the geomorphological,
geotechnical, hydrological and hydraulic factors. The presentation on the advisory should
be made to Vice Chairman, NITI Aayog at the end of 1 year. State governments should
move forward to adopt the advisory in the pace suitable to their natural circumstances.
Minsitry of Jal Shakti will hand hold and monitor the states in the adoption of advisory)
•The activities related to control of coastal erosion in an integrated manner to provide
environmentally and economically acceptable coastal protection system need to be
promoted.
(Action: Coastal Protection and Development Advisory Committee (CPDAC),
Ministry of Jal Shakti and NITI Aayog- CPDAC will form and submit the action plan
within next 1 year to control coastal erosion in different ranges of coastal areas to Ministry of
Jal Shakti and NITI Aayog. Ministry of Jal Shakti will further facilitate the implementation
of action plan within 3 years)
•Emphasis to be laid on Integrated flood management which calls for a paradigm shift
from the traditional, fragmented and localized approach and encourages the use of the
resources of a river basin as a whole and setting up of River Basin Organization for its
effective implementation.
(Action: Ministry of Jal Shakti- Facilitate the passing the River Basin Organization Bill
in Parliament in next session)
•Emergency Action Plan for all big dams should be prepared and implemented when
needed.
(Action: Dam owners & CWC- The dam owners within next 1 year should prepare the
Emergency Action Plan and submit it to CWC. CWC as the monitoring agency should
ensure the preparation of EAPs)
Flood Management and Border Areas Programme (FMBAP)
(Action: Ministry of Jal Shakti: Prepare the cabinet note of the proposed FMBAP scheme
within next 3 months including all the changes in the FMP and RMBA guidelines and all
the other proposed suggestions)
•FMBAP scheme to be continued for the period 2021-26, i.e., co-terminus with the period
of 15
th
Finance Commission with the provision of inclusion of new projects for funding
under the scheme. The selection of the schemes will be undertaken in consultation with
NITI Aayog and State Government. 73
•The proposed outlay of the FMBAP Scheme for period 2021-26 to be kept around
Rs.15,000 Crores, with Rs.13,000 Crores for FMP component and Rs. 2,000 Crores for
RMBA component.
•The funding pattern recommended for schemes in FMBAP is
FMP Component: The funding pattern for works in general category States to be 60 %
(Centre): 40 % (State) and for projects of 8 North Eastern States, J&K, Himachal Pradesh
and Uttarakhand, to be 90 % (Centre): 10 % (State)
RMBA Component: The RMBA component is specific to activities in border areas with
neighboring countries viz. Bangladesh, Nepal, China, Pakistan, Myanmar and Bhutan.
The projects/ works continue to be funded as 100% central assistance.
•Threshold Limit for Inclusion to be kept as Rs. 40 crore for projects with BC ratio more
than 1.0 for funding under Flood Management Programme works in general category
States. Whereas, for projects in 8 North Eastern States, J&K, Himachal Pradesh and
Uttarakhand, costing above Rs. 20 crore with BC ratio more than 1.0.
• For techno-economic appraisal, the monetary limits of projects of flood control may
be modified as recommended by Committee headed by Chairman, CWC, and Adviser
(WR), NITI Aayog, Commissioner Flood Management, Ministry of Jal Shakti, Chairman
Brahmaputra Board and Chairman, GFCC as members.
Table 7: Revision of monetary limits for appraisal of flood control scheme
S.
No.
Appraising Authority Existing
As proposed by Committee
headed by Chairman, CWC
1.State TAC < Rs. 12.50 Crores <Rs. 25 Crores
2.
GFCC (for Ganga Basin) /Regional
Offices of CWC (other than Ganga
Basin)
> Rs. 12.5 Crore
and < Rs. 25 Crores
>Rs. 25 Crores
< Rs. 40 Crores
3.
Advisory Committee of DoWR based
upon appraisal by
GFCC/CWC
>Rs. 25 Crores > Rs.40 Crores
•Monitoring of FMBAP projects with latest technology using remote sensing tools
to be carried out by the Central Water Commission (CWC), Ganga Flood Control
Commission (GFCC) and Brahmaputra Board (BB) in their respective jurisdiction.
•The provision of concurrent evaluation by third party is proposed to be dispensed
with and performance evaluation of projects after completion may be undertaken by
independent agencies like recognized/reputed engineering colleges, research institutions,
technical universities, etc. after the works implemented in the scheme withstood at least
one flood season after their completion. 74
•Release of an installment of Central share not to be predicated on producing Utilisation
Certificates (UCs) of the last installment and that release to be based on the furnished
UC of the penultimate (last to last) release of Central share as per NITI Aayog OM
dated 17th August, 2016.
• In respect of projects included under FMBAP Scheme for central funding, if any,
expenditure is made by the State Government towards the Central share from its own
resources, the same shall be reimbursable. This is in line with NITI Aayog OM dated
17th August, 2016. However, any expenditure made by the States prior to inclusion of
project in FMBAP Scheme shall not be eligible for reimbursement.
•The first installment for release of central assistance in respect of all States may be kept
as 90% of eligible central Share. However, it would be governed by extant guidelines
of Ministry of Finance
• Scope of RMBA Component to be modified for taking up of river training works on all
cross border/border Rivers. A comparison of existing and new provisions under RMBA
component is at Annexure III.
•Research & Development and Capacity Building on areas of flood management is
proposed to be kept as an integral part of the FMBAP Scheme. The research studies
for morphological behavior of rivers, sediment carrying capacity of streams, impact
of structural interventions and its impact on overall flood management of river basin
to be carried out in association with esteemed institutes of the country like IITs, IISc,
NITs, etc. Thrust on developing basin flood management plan using State-of-the-art
technology and adopting holistic approach at basin level for flood management may
be taken as foremost consideration in capacity building under FMBAP.
•The States to be incentivized for adopting Integrated Flood Management approach and
taking measures like Decision Support System for integrated operation of reservoirs,
flood plain zoning and developing flood management infrastructure in consonance
with master plan. 75
ANNEXURES 76
Annexures 1
Official Order for Committee Formation
77 78
Annexure II
Official order for Sub Committee for Formulation of Strategy for Flood Management Works
in entire country and River Management Activities and Works related to Border Areas
(2020-23) 79
Annexure III
Comparison of the existing guidelines with the revised guidelines and reasons for the change
in guidelines under the River Management Activities in Border Area Programme (RMBA)
S. No Existing Guidelines Proposed Guidelines Reason for revision
Scope Maintenance of flood
protection works of Kosi &
Gandak projects (in Nepal)
Maintenance of flood
protection works
of Kosi & Gandak
projects (in Nepal) and
river training works on
all cross border/border
rivers within Indian
territory
Maintenance of flood
protection works of Kosi
& Gandak projects (in
Nepal) would continue as
per bilateral agreement
River training works on
all cross border/border
rivers within Indian
territory is an important
as Issue of inundation
along India Nepal Border
is a recurring issue and
is often raised in bilateral
forums.
Procedure for
inclusion in
RMBA
Maintenance of flood
protection works of Kosi &
Gandak projects (in Nepal)
is recommended by KHLC &
GHLSC River training works
on all cross border/border
rivers within Indian territory.
SameRecommended
by JCIFM (for Nepal) /
other existing bilateral
mechanism after
technical appraisal of
river training works
from GFCC/CWC.
Procedure for inclusion
of works in RMBA other
than Kosi and Gandak
project (in Nepal) needs
to be elaborated.
100 % Reimbursement only
for Maintenance of flood
protection works of Kosi &
Gandak projects (in Nepal)
as recommended by KHLC &
GHLSC
100 % Reimbursement
for all works in border
area under RMBA
100 % Reimbursement
for all works in border
areas under RMBA
as these works are of
strategic importance. 80
works to be
carried out in
No Man’s Land
in border area
No mentionAs per
recommendation of
MEA
The embankment
build along the cross
border rivers on both
sides by neighboring
countries needs tying of
embankment in No Man’s
land area.
Procedure
for release
of Central
Assistance,
documentation
for flood
management
works
Not explicitly mentioned As per detail guidelines
of FMBAP
There were different set
of guidelines for FMP
and RMBA component
of FMBAP even after
the merger of Scheme
as FMBAP. A modified
comprehensive guideline
on FMBAP would
describe procedure and
documentation for release
of Central Assistance 81
Annexure IV
Important Government Initiatives and Policies on Floods
S.
no.
Year InitiativeMajor Recommendations
1.1954Policy Statement
Following the unprecedented floods of 1954, the Union Minister for
Planning, Irrigation and Power, placed before the Parliament on 3rd
September, 1954, two statements namely “Floods in India - Problems
and remedies” and “The Floods in the country”. The objective
unequivocally set, in the policy statements, was to rid the country
from the menace of floods by containing and managing floods and
thus solving the problem.
2. 1957
High Level Committee
On Floods
i) Absolute or permanent immunity from flood damage is not
physically attainable by known methods of flood control. Flood
plain zoning, flood forecasting and warning, and like measures
should, therefore, be given due importance, particularly as these
do not require large capital investment.
(ii) Flood control schemes should fit in with other water related
plans to the extent feasible.
(iii) Future multi-purpose project should consider flood control
aspects simultaneously.
3.1980
National Flood
Commission
(Rashtriya Barh Ayog)
- Data collection for providing information on their long term
performance and their impact on various socio-economic
factors.
- Legislation and enforcement by States to prevent unauthorized
river bed cultivation and encroachments into drains etc.
- Separate reporting of flood damage for (i) Unprotected areas
(ii) Protected areas and (iii) Areas situated between the
embankments.
- Legislation for management of flood plains.
- Intensifying studies on sedimentation of reservoirs.
- Forming a national council for mitigating disaster.
- Priority for measures to modify the susceptibility of life and
property to flood damage. 82
4.2003
Expert Committee
to Review the
Implementation of the
Recommenda-tions
of National Flood
Commission
- Flood damage assessment, from year to year, is not done
realistically or on scientific basis as per RBA recommendations,
due to collateral reasons, which are surmised but not expressed.
This needs corrective steps.
- Lack of representative, scientific and credible post-project
performance evaluations of past flood management works is a
serious handicap.
- Unabated and unplanned intrusion into the flood plains and
river beds, sometimes with the approval or acquiescence of
Government has now reached alarming dimensions. If this is
not managed, flood losses will continue to mount.
- The international dimensions of flood management as an
integral part of Water resource development and management
must be pro actively addressed.
5.
1987/
2002/
2012
National Water Policy
(i) There should be a master plan for flood control and
management for each flood prone basin.
(ii) Adequate flood cushion should be provided in water
storage projects, wherever feasible, to facilitate better flood
management. In highly flood prone areas, flood control should
be given overriding consideration in reservoir regulations policy
even at the cost of sacrificing some irrigation or power benefits.
(iii) While physical flood protection works like embankments and
dykes will continue to be necessary, increased emphasis should
be laid on non-structural measures such as flood forecasting
and warning, flood plain zoning and flood proofing for the
minimization of losses and to reduce the recurring expenditure
on flood relief.
(iv) There should be strict regulation of settlements and economic
activity in the flood plain zones along with flood proofing, to
minimize the loss of life and property on account of floods.
(v) The flood forecasting activities should be modernized, value
added and extended to other uncovered areas. Inflow forecasting
to reservoirs should be instituted for their effective regulation. 83
Annexure V
List of Large Dams having the Emergency Action Plans
S. No.AgencyName of Dam
1
Madhya Pradesh Water Resources
Deaprtment (MPWRD)
Ari Dam
2MPWRDArniya Bahadurpur
3MPWRDBarna
4MPWRDBundala
5MPWRDChandpatha
6MPWRDChandrakeshar
7MPWRDDholawad Tank (Ratlam)
8MPWRDDudhi (Kunwar Chain Sagar)
9MPWRDJirbhar
10MPWRDKanhargaon Tank (Chhindwara)
11MPWRDKankerkheda
12MPWRDKharadi
13MPWRDKolar
14MPWRDMakroda
15MPWRDMarhi
16MPWRDMoorum Nalla
17MPWRDNahlesara
18MPWRDRuthai (Gopi Krishna Sagar)
19MPWRDSampna
20MPWRDSanjay Sagar
21MPWRDSarathi
22MPWRDThanwer (Rajivsagar)
23MPWRDUmrar
24MPWRDUpper Wain Ganga (Sanjay Sarover)
25
Odisha Water Resources
Department (OWRD)
Ashok Nalla
26OWRDBanksal
27OWRDBhaskel
28OWRDDaha
29OWRDDamsal 84
30OWRDDerjang
31OWRDDhanei
32OWRDHirakud
33OWRDJhumuka
34OWRDKalo
35OWRDNesa
36OWRDPillasalki
37OWRDPitamahal
38OWRDSalia
39OWRDSapua
40OWRDSarafgarh
41OWRDSatiguda (Malkangiri)
42OWRDSatiguda (Ukp)
43OWRDSundar
44OWRDTalsara
45
Tamil Nadu Water Resources Department
(TNWRD)
Aliyar
46TNWRDAmaravathi
47TNWRDBhavanisagar
48TNWRDKelavarapalli
49TNWRDKrishnagiri
50TNWRDPonnaniyar
51TNWRDSholayar
52TNWRDShoolagirichinnar
53TNWRDThirumurthi Dam
54TNWRDUpper (Tirpur)
55TNWRDChinnar Dam
56TNWRDPalar Porundar Dam
57
Tamil Nadu Generation and Distribution
Corporation (TANGEDCO)
Avalanche
58TANGEDCOBunghihallabund
59TANGEDCOEmerald
60TANGEDCOKadambarai
61TANGEDCOKodayar I
62TANGEDCOKundahpalam
63TANGEDCOKuttiyar 85
64TANGEDCOManalar
65TANGEDCOPegumbahallah Forebay
66TANGEDCOPorthimund
67TANGEDCOUpper Aliyar
68TANGEDCOUpper Bhavani
69TANGEDCOVandal Weir
70
Kerala Water Resources Department
(KWRD)
Chimoni
71KWRDChulliar (Gayathri Stage Ii)
72KWRDKanjira Puzha
73KWRDKuttiyadi (Irrign. Proj.)
74KWRDMalampuzha
75KWRDMalankara / Muvattupuzha
76KWRDMeenkara (Gayathri Stage I)
77KWRDNeyyar
78KWRDPazhassi Irrigation Project
79KWRDPeechi
80KWRDPothundy
81KWRDVazhany
82KWRDWalayar
83 Kerala State Electricity Board (KSEB)Idamalayar (Eb)
84KSEBCheruthoni (Eb)
85KSEBErrattayar (Eb)
86KSEBIdukki (Eb)
87KSEBKallar
88KSEBKulamavu (Eb)
89KSEBChulliyar
90KSEBKallada
91KSEBMoozhiyar (Kakkad) (Eb)
92KSEBVeluthodu (Kakkad) (Eb)
93KSEBKakkayam Dam (Hep)
94KSEBKosani Saddle Dam
95KSEBKottagiri Saddle Dam
96KSEBKuttiyad Saddle Dam
97KSEBKuttiyadi Augmentation Main Dam
98KSEBKuttiyadi Augmentation Spillway Dam 86
99KSEBManjoora Saddle Dam
100KSEBNayammoola Saddle Dam
101KSEBNear Kottagiri Saddle Dam
102KSEBPambla Dam
103KSEBKallarkutty (Eb)
104KSEBKundala (Eb)
105KSEBMadupetty (Eb)
106KSEB
R A Head Works (Ramaswami Aiyar
Headworks)
107KSEBAnayirankal (Eb)
108KSEBPonmudi (Anayirankal) (Eb)
109KSEBPoringalkuthu (Eb)
110KSEBAnathodu Flanking (Eb)
111KSEBGavi (Sa Diversion) (Eb)
112KSEBKakki (Eb)
113KSEBKullar (Sabarigiri Aug.) (Eb)
114KSEBMeenar I (Sabarigiri Aug.) (Eb)
115KSEBMeenar Ii (Sabarigiri Aug.) (Eb)
116KSEBPamba (Eb)
117KSEBUpper Moozhiyar (Sa) (Eb)
118KSEBSengulam (Eb)
119KSEBSholayar (Flanaking) (Eb)
120KSEBSholayar (Main ) (Eb)
121KSEBSholayar (Saddle ) (Eb)
122KSEBVazhani
123
Karnataka Water Resources
Department (KAWRD)
Almatti Dam
124KAWRDBhadra Dam
125KAWRDChickkahole
126KAWRDDevarabillikere Tank
126KAWRDH.B.Halli Pickup
127KAWRDHarangi Dam
128KAWRDHemavathy Dam
129KAWRDHidkal Dam
130KAWRDMalaprabha Dam
131KAWRDMallaghatta Tank 87
132KAWRDMaskinala
133KAWRDNarayanapur Dam
134KAWRDLakya
135KAWRDHagari Bommanaha1li
136KAWRDVotehole Dam
137DVCKonar Dam
138BBMBBhakra Dam
139BBMBBeas Dam
140BBMBPandoh Dam
141
Bihar Water Resources Department
(BWRD)
Kharagpur Lake
142BWRDNagi
143BWRDKohira
144BWRDAmrity
145BWRDBadua
146BWRDSrikhandi
147BWRDKalmahadeo
148BWRDChandan
149BWRDJalkund
150BWRDMorway
151BWRDJob
152BWRDKailashghati
153BWRDNakti
154BWRDBaskund
155BWRDBelharna
156BWRDAnjan
157BWRDPhulwaria
158BWRDOrhani
159BWRDUpperkuil
160BWRDBilasi
161THDCTehri Dam
162THDCKoteshwar Dam
163
National Hydroelectric Power Corporation
(NHPC)
Parbati III Dam
164NHPCBaira Dam
165NHPCChamera I Dam 88
166NHPCChamera II Dam
167NHPCChamera III Dam
168NHPCSalal & Salal Dam
169NHPCUri I
170NHPCDul Dam
171NHPCSewa II Dam
172NHPCChutak Dam
173NHPCNimo Bazgo Dam
174NHPCUri II Dam
175NHPCRangit Dam
176NHPCTeesta V Dam
177NHPCTanakpura Dam
178NHPCDhauliganga Dam
179NHPCTeesta Low III Barrage
180NHPCTeesta Low IV
181 Himachal Pradesh (IPH) Sanj Dam
182 Himachal Pradesh (IPH) Pong Dam
183 Himachal Pradesh (IPH) Neogal
184 Himachal Pradesh (IPH) Nathka Japri
185 Himachal Pradesh (IPH) Malana I
186 Himachal Pradesh (IPH) Malana II
187 Himachal Pradesh (IPH) Larji
188 Himachal Pradesh (IPH) Kol
189 Himachal Pradesh (IPH) Karchham Wangtoo
190 Himachal Pradesh (IPH) Chanju I
191 Himachal Pradesh (IPH) Budil
192 Himachal Pradesh (IPH) Baspa II
193 Himachal Pradesh (IPH) Allain Duhanganj 89
Annexure VI
Minutes of the Meeting held on 27th February, 2020
NITI Aayog
(WR&LR Vertical)
Subject: First meeting of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities and works related
to Border Areas (2020 – 23).
The first meeting of the Committee constituted for formulation of strategy for Flood Management
Works in entire country and River Management Activities and works related to Border Areas
(2020 – 23) was held on 27th February, 2020, at 1200 hrs in Room No. 228, NITI Aayog. The
meeting was attended by CEO, NITI Aayog, Secretary, Department of Water Resources, RD
& GR (D/o WR, RD & GR) , Ministry of Jal Shakti, Member Secretary, National Disaster
Management Authority (NDMA), Member, Central water Commission (CWC), Joint Secretary,
Ministry of Home Affairs, Director (North), Ministry of External Affairs, Experts from IIT-
Roorkee and Central Water and Power Research Station (CWPRS), representatives from state of
Jammu & Kashmir, Uttar Pradesh, Bihar, West Bengal, Punjab, Assam, , Tripura, and Kerala and
other senior officers of D/o WR, RD &GR, CWC and NITI Aayog. The list of the participants is
enclosed as Annexure.
At the outset, Adviser (WR), NITI Aayog welcomed all the participants and mentioned that
consequent upon examination of the draft Cabinet Note on ‘Flood Management and Border Areas
Programme (FMBAP)’ for flood management works in entire country and river management
activities and works in the border areas during 2017-18 to 2019-20, the PMO had conveyed that
the strategy for flood management for the next three years should be firmed up by a group led
by NITI Aayog. The strategy should have clear priorities, costs and deliverables for the next three
years (2020-23). In order to formulate the ‘Strategy for Flood Management Works in entire country
and River Management Activities and works in the Border Areas for 2020-2023’ a Committee
is constituted under the chairmanship of Vice Chairman, NITI Aayog. The committee is duly
represented by central ministries, states and external experts. He further requested Secretary, D/o
WR, RD & GR to set the context of the meeting for the participants.
Secretary, D/o WR, RD & GR introduced the subject to the participants and mentioned that flood
is one of the most frequent and important natural calamity to the country. There is no year when we
as a Nation have not faced the destruction of flood. Due to climate change not only the frequency
but also the magnitude of flood has increased over the years. Floods are natural phenomenon so
they cannot be prevented but can be managed. We have to understand the new concept of living
with the floods. He further indicated that there are number of measures to manage funds which 90
include both structural and non-structural measures. In structural measures, perhaps the best
cushion for floods are dams but now we have to understand that due to environmental constraints,
it is not easy to build new dams in India. Other structural measures like embankments can be
adopted but they should not be taken up indiscriminately. Although department is now focusing
on non-structural measures like flood plain zoning, catchment area treatment plans etc. which
are very important but are not getting enough attention and importance. He also asserted that
department has come long way in the case of flood forecasting and early warning system. Now
the flood warnings are issued 72 hrs before the event which was earlier 24 hrs. Also, department
has started to use and provide inundation maps for better identification of submerged areas. He
further requested Joint Commissioner (FM) to make a presentation to the committee.
Joint Commissioner (FM), DoWR, RD & GR made a presentation and briefed the committee
about the general facts of flood, types of floods, structural & nonstructural measures of flood
management which includes dams, embankments, flood forecasting, flood plain zoning, etc.,
components of flood management & border areas programme (FMBAP) and performance of the
scheme. He in detailed discussed the annual damages caused by the floods and extent of problem
of flood in India. He further moved on to the FMBAP scheme, its coverage, funding mechanism
and progress.
After the presentation, chairman of the committee Vice Chairman, NITI Aayog invited the
committee members, representatives of the states and external experts to express their views.
Member Secretary, NDMA taking the lead expressed that there are number of laws and
guidelines to define and mitigate the risk of floods. But these laws can be effective only if they
are implemented with high level administrative will and skill. In order to encourage states to take
up flood management measures like flood plain zoning (only Jammu & Kashmir, Uttarakhand
and Jharkhand have Flood Plain Zoning), they should be provided with incentives which may
include financial incentives.
Deputy Secretary, Water Resources department, Government of Kerala highlighted as per the
FMB guidelines, Projects amounting to Rs.40 Crore or above would be considered as per the
guidelines laid down under FMP. Due to typical topography of the states, the construction
of storage structures amounting to Rs.40 Crore or above is mostly inconceivable. In case of
coastal protection works, the guidelines mandate that prior to sanction of works under FMP
and necessary clearances shall be obtained from the State Coastal Zone Management Authority
(CZMA). Though the state had approached its authority for clearance, it was informed that the
clearance could not be issued unless EIA is done (Environmental Impact Assessment) which gets
carried out for one year. If the guidelines of FMP can be modified by relaxing the minimum total
amount for a project to be funded in case of river training works, works on embankments, State
of Kerala would be able to derive funds under FMP. ln the case of coastal erosion works also,
the state would enjoy benefits of the central funds much more than from its own plan schemes
if necessary relaxation can be made by the (CZMA)for those works which are only reformation 91
in nature. Answering the query, Secretary, DoWR, RD & GR mentioned that projects should be
taken up for the entire stretch of the rivers for proper management of floods. The comprehensive
projects can go up to the prescribed amount of Rs 40 cr. Further, Vice Chairman, NITI Aayog
instructed to call a representative of Coastal Regulatory Zone Authority in the next meeting of
committee.
Chief Engineer, Irrigation, Government of Uttar Pradesh highlighted that in Uttar Pradesh projects
of flood management are delaying due to delayed and phase wise funding from the DoWR, RD &
GR. Another main reason for the delay is the cumbersome procedure of getting approvals from
number of departments of central government. Responding to the comment, Vice Chairman,
NITI Aayog calls for the rationalization of funding and approval process of the ministry.
Joint Secretary, I&W Department, Government of West Bengal stressed on the two issues faced
by the state in flood management. Firstly, the high density of population in flood plain zone
doesn’t allow the state government to undertake flood plain zoning. Secondly, in last four years,
state is able to save human and livestock lives by shifting them to safer places in the event of flood
but they are not able to find out the panacea for the flood related damages. Responding to issues,
Secretary, DoWR, RD & GR asserted that in order to minimize the flood related damages, it is
necessary to leave the room of the river and state should enact the law on flood plain zoning on
priority.
Chief Engineer, Water Resources department, Government of Punjab raised the issue that due
to lack of central assistance some heavily invested projects in Punjab are stalled. He requested
the Committee to consider these projects for continuation. The Vice Chairman, NITI Aayog
indicated that it should be considered.
Joint Secretary, Ministry of Home Affairs informed that post flood relief measures are now entirely
under the perview of Ministry of Home Affairs. Therefore, it is necessary to have a synchronized
database for the damages caused by the floods. The Vice Chairman, NITI Aayog also calls for the
collection of proper data of the damages caused by the flood. The Chief Engineer (CWC) informed
that in 2012, an expert committee was established under the chairmanship of Chairman (CWC)
to provide better estimates of the damages occurred due to floods in India and that committee
is due to submit its report in next two months. Vice Chairman NITI Aayog instructed CWC to
submit a copy of report to this committee and may however provide the Terms of Reference of the
committee established to assess estimates of damages occurred due to floods to Water Resources
Vertical, NITI Aayog.
Scientist (SG and DGM), ISRO informed the committee that ISRO has collected the flood foot
prints all over the country and also undertaking the basin wise studies to study the patterns
of flood in the basins. ISRO is also assisting DoWR, RD & GR through National Institute of
Hydrology in collecting data on floods.
Professor, Deepak Khare from IIT, Roorkee indicated that there is need to focus on the Research
and Development in order to find out the new technologically advanced measures to control 92
flood. He also asserted that DoWR, RD & GR should conduct a study on the flood events of last
10 years to find out the commonalities among them and focus on those to solve the problem. He
further requested to study the changing climate and land use patterns to predict floods in near
future.
Summing up the discussion, Vice Chairman, NITI Aayog emphasized that problem of flood is a
much vast and deep rooted then it is represented in general terms. In the changing climatic and
environmental scenario flood management is not limited to some flood control measures but it
needs to be taken up in holistic manner which includes redefining of roles of various stakeholders
and changes in institutional set ups. This committee should provide the comprehensive and
holistic solution to the problem of flood management in India.
After detailed discussions, the following decisions were taken:
1. The CWC will submit a copy of the report of the expert committee established to provide
estimates of damages occurred due to floods to this committee and for present it may
provide the Terms of Reference of the committee to Water Resources Vertical, NITI
Aayog.
(Action: CWC, Ministry of Jal Shakti)
2. CWC has recently done a presentation on flood forecasting and other non- structural
measures to Parliamentary Advisory Committee. CWC should provide this presentation
to Water Resources Vertical, NITI Aayog. CWC should also provide a brief note on the
procedure of flood forecasting and estimates about the hydrological observation stations
needed for accurate forecasting in India.
(Action: CWC, Ministry of Jal Shakti)
3. D/o WR, RD & GR may conduct a study and find out that how flood plain zoning is
defined and implemented in other countries like Egypt, United States of America, Brazil
and China.
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
4. CWC and NITI Aayog should examine the process of granting the clearance to the states
for flood management projects and find out the ways to rationalize the whole process.
CWC should make a presentation on the above findings in next meeting.
(Action: CWC, Ministry of Jal Shakti & NITI Aayog)
5. The 8 state namely West Bengal, Bihar, Assam, Jammu & Kashmir, Himachal Pradesh,
Uttar Pradesh, Kerala and Tamil Nadu (having highest fund allocation in FMP Component
of FMBAP scheme) should make a presentation in the next meeting on the measures
taken by them and the protection from flood achieved out of this investment. D/o WR,
RD & GR should coordinate with these states for the presentation, so the strategy may
be formed or 2020 to 2023. 93
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
6. CWC and Ganga Flood Control Commission should make a presentation to the committee
and recommend that how the departments working in silos at centre and state level
should come together to form long term strategy to control and mitigate floods in India.
(Action: CWC and Ganga Flood Control Commission)
7. D/o WR, RD & GR in consultation with WR Vertical NITI Aayog should identify some
important projects for continuation which are foreclosed by State under FMBAP scheme.
D/o WR, RD & GR should also look into the guidelines/constraints which force the
states to foreclose the projects and try to simplify these guidelines.
(Action: D/o WR, RD & GR, Ministry of Jal Shakti, NITI Aayog)
8. NDMA has prepared the guidelines on Floods and urban floods in 2008. NDMA should
make a presentation to the committee on these guidelines, so the guidelines’ suitability
for adoption by the committee may be considered.
(Action: NDMA)
9. A representative of Coastal Regulatory Zone Authority (CRZA) should be invited to the
next meeting of the committee who should provide details on the clearance procedures
of Flood Management Projects.
(Action: Water Resources Vertical, NITI Aayog)
The meeting ended with vote of thanks to the chair.
List of Participants in the 4th Meeting of Pmksy Council Held Under the Chairmanship of
Ceo, Niti Aayog on 14.12.2018 in Niti Aayog, New Delhi
S.No.NameDesignation and Organization
1
Dr. Rajiv Kumar, Vice Chairman, NITI
Aayog
In Chair
2 Shri. Amitabh Kant CEO, NITI Aayog
3 Shri. U.P. Singh Secretary, DoWR, RD & GR, Ministry of Jal Shakti
4 Shri. G.V.V. Sarma Member Secretary, NDMA
5 Shri R.K. GuptaMember, CWC
6 Shri Avinash Mishra Adviser, WR & LR, NITI Aayog
7 Shri Sanjeev Kumar Jindal Joint Secretary, MHA
8 Shri Amit A. ShuklaDirector (North), MEA 94
9 Shri D. Sengupta
Joint Secretary, I&W Department, Government of
West Bengal
10 Shri Padma Kant Jha S.E. Water Resources department, Bihar
11 Ms. Mrunmai Joshi
Deputy Secretary, Water Resources department,
Kerala
12 Shri G. Srinivasa RaoAssociate Director (DRR), ISRO
13 Dr. V.M. ChowdaryScientist (SG and DGM), ISRO
14 Shri B.K.KanjerChief Engineer, CWC
15 Shri. A.K. Singh Chief Engineer Irrigation, U.P.
16 Shri. Sanjiv GuptaChief Engineer, Water Resources, Punjab
17 Shri. Ashok Sharma
Chief Engineer I&W Department, Jammu &
Kashmir
18 Shri Bishu Kumar. Debbarma Chief Engineer, Water Resources, Tripura
19 Shri Abani HazarikaChief Engineer, Water Resources, Assam
20 Shri Charu Chandra Mishra E. E. Water Resources department, Bihar
21 Shri Khanindra BarmanAEE, WRD, Assam
22 Shri Rakesh Toteja
Joint Commissioner, DoWR, RD & GR, Ministry of
Jal Shakti
23 Shri Sharad Kumar Kaushal
Deputy Commissioner, DoWR, RD & GR, Ministry
of Jal Shakti
24 Shri Piyush KumarDirector, CWC, Ministry of Jal Shakti
25 Shri Sharad ChandraDirector, CWC, Ministry of Jal Shakti
26 Shri Upananda Rath
Deputy Director, DoWR, RD & GR, Ministry of Jal
Shakti
27 Shri Harish Kumar Chauhan Liaison Officer, WRD, Arunachal Pradesh
28 Shri N.K. VelScientist- D, NITI Aayog
29 Shri Gopal SaranScientist- C, NITI Aayog
30 Shri Venkat AnginaRA, NITI Aayog
31 Ms. Arunima ChandraYP, NITI Aayog
32 Ms. Aakanksha SharmaYP, NITI Aayog
33 Dr. Namrata Singh PanwarYP, WR & LR, NITI Aayog 95
Annexure VII
Minutes of the Meeting held on 27th May, 2020
NITI Aayog
(WR&LR Vertical)
Subject: Second meeting of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities and works related
to Border Areas (2020 – 23).
The second meeting of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities related to Border Areas
(2020 – 23) was held under the chairmanship of V.C. NITI AAYOG through video conferencing
on 27th May, 2020, at 1500 hrs in Room No. 126, NITI Aayog. The meeting was attended by
Member (Agri & Water Resources), NITI Aayog, Secretary, Department of Water Resources, RD
& GR (D/o WR, RD & GR), Ministry of Jal Shakti in person and senior officers from National
Disaster Management Authority (NDMA), Central water Commission (CWC), Experts from IIT-
Roorkee and Delft Institute Netherland, representatives from state of Uttar Pradesh, Bihar, Assam,
Himachal Pradesh and Kerala connected through Video Conferencing. The list of the participants
is enclosed as Annexure.
At the outset, Adviser (WR), NITI Aayog welcomed all the participants and briefed them on the
progress of work of the committee. He mentioned that the basic objective of the committee is to
frame a strategy for flood management in India for next three years (1
st
April 2020 to 31st March
2023). The first meeting of the committee was held on 27th February 2020 wherein it was
deliberated that it is very important to organise the unstructured flood management guidelines
in the country. Non-structural measures should be given due focus and benchmarking should
be done with other developed countries. Flood cushioning should be provided in the new dams
and if possible, in existing dams too. Thereafter he requested Ministry of Jal Shakti to make a
presentation on River Management activities in Border Area.
Commissioner (FM), DoWR, RD & GR made a presentation on the river management activities
in the Border area. India shares its border with 5 countries where trans-boundary rivers flow.
These nations are China, Pakistan, Nepal, Bhutan and Bangladesh. In respect of China, Nepal and
Bhutan we are lower riparian states and in case of Pakistan and Bangladesh, we are upper riparian
states. He explained that here we need to undertake the works which are strategically important
at times may not be priority to the states. Subsequently, Commissioner (FM) briefed committee
on various components of the programme, on-going projects, funding mechanisms for states
and UTs, working and functions of lateral organizations like Ganga Flood Control Commission
which provide long term plans for managing flood in Ganga Basin. He further indicated that 96
due to some restrictions in the current guidelines, Ministry is not able to fund the projects which
are on the river originating from the Nepal other than Kosi and Gandak. Elaborating the whole
issue Secretary (D/o WR, RD & GR) indicated that these trans- boundary river projects do not
give large benefits to the states, therefore there is always uncertainty that which agency is going
to fund them. But these projects are important to develop the atmosphere of trust and belief with
Nepal and other neighbouring countries. Therefore, the new guidelines need to be formulated
to accommodate logically vulnerable stretches on international rivers. The Vice Chairman, NITI
Aayog and the Chairman of the committee instructed to constitute a committee under Secretary
Water Resources where in Commissioner (FM) will provide a tabular comparison of the existing
guidelines and the revised guidelines and reasons for the change in guidelines. The committee
will submit its report in next 15 days.
Secretary (D/o WR, RD & GR) emphasized on the issue that meager money is spent in the
country on the flood mitigation. We as a country spend more money on relief measure than the
mitigation. In the response of this, Member (RC), Water Resources, NITI Aayog stated that this
time 15th Finance Commission under Disaster Management head has made recommendation in
two parts- 20 percent (5797 Crore) of the total fund is allocated under Disaster Mitigation and
80 percent (23186 Crore) is allocated under disaster response for states. He further suggested
that Ministry should evaluate the existing schemes, point out that whether these schemes should
continue and suggest new schemes/guidelines.
The Vice Chairman, NITI Aayog instructed to constitute a sub- committee under Secretary
(D/o WR, RD & GR), Ministry of Jal Shakti, wherein Adviser (WR&LR) will be a member
other member including the States representatives may be decided by the Secretary WR as per
requirement. The group will evaluate the ongoing schemes and suggest prioritized schemes, new
guidelines for RMBAP, structural measures (FMP and FMBAP) and non-structural measure for
flood management in country. The committee will submit its report in next 15 days.
The next presentation was made by Joint Secretary, NDMA on the guidelines prepared by NDMA
for the flood management in urban areas and whole country. Vice Chairman, NITI Aayog
instructed the officials from NDMA to submit the guidelines, any suggestive changes and new
areas of work to the committee for consideration.
Next presentation was made by Central Water Commission on non-structural measures for flood
mitigation and management. In the presentation CWC emphasized the efficacy of non-structural
measures like Flood plain zoning, flood forecasting in mitigation of flood. Flood Plain Zoning
reduces the flood risk by 30-40 percent. There have been Global examples like Japan and US
which have used flood plain zoning and other non- structural measures to manage floods. CWC
is also collaborating with M/s Google Inc., to provide inundation maps and alerts based on the
Flood Forecast available in CAP platform using high quality Digital Terrain Models available
with Google using Artificial Intelligence and Machine Learning. The system started functioning
from 2018 when inundation alerts were provided for Patna Gandhighat forecast stations. This 97
has expanded to around 11,000 sq.km. covering 7 FF stations (Patna Gandhighat & Kahalgaon
in Bihar, Neamatighat, Tezpur, Guwahati & Goalpara in Assam and Ayodhya in Uttar Pradesh)
during 2019. This is likely to be covered to all level forecast stations during the next few years.
CWC further indicated that there is 90 percent accuracy in the flood forecast and duration of
forecast has increased from 24 hrs to 72 hrs. Also, now we have 325 flood forecasting stations and
1600 hydrological stations in India.
Secretary (D/o WR, RD & GR), Ministry of Jal Shakti indicated that India has multipurpose dams
which are not categorized into the flood control dams or irrigation dams as per the practice in
developed nations. Therefore, it is very difficult for the states to prepare emergency action plans
for these dams. On this point Vice Chairman NITI Aayog instructed CWC to categorize the all
5500 large dams in India according their use in flood control, irrigation and other purposes so
that emergency action plans can be prepared by the states accordingly.
State of Assam in its presentation to the committee stated that Assam is the worst flood affected
state in the Nation and even then, since 2014 no new scheme has been sanctioned. Structural
measures are very much necessary for Assam to save it from the destruction of floods; therefore,
central assistance to Assam should increase significantly.
State of Himachal Pradesh in its presentation requested to the committee to clear some very
important projects of the state under FMBAP.
Dr. Biswa Bhattacharya, Professor, Delft Institute Netherland indicated globally countries provide
flood forecasting 3-4 days prior to the event. CWC has increased its duration from 24 hrs to 72
hrs but still we need to move ahead to 14 days flood forecasting to mitigate maximum losses
from the flood also Digital Elevation Models can be developed and he will happy to assist CWC
in this regard.
Member (RC), Water Resources NITI Aayog indicated that inputs should be taken from states and
other experts to form an inclusive strategy for flood management in India. He further suggested
that tree horticulture should also be adopted in flood plains to minimize the loss due to floods.
Suggestions in this regard may be taken from Agriculture Ministry. He also emphasized on the
importance of lake and wetlands in both rural and urban areas for flood management and water
security. He further suggested the proposed sub - committee may consider, National Bureau
of Soil Survey and Land Use planning (NBSS&LUP) maps and explore the possibility of using
their work in flood zone identification and creation of inundation maps.
After detailed discussions, the following decisions were taken:
1. Commissioner (FM) Mo Jal Shakti will provide a tabular comparison of the existing
guidelines and the revised guidelines and reasons for the change in guidelines under the
River Management Activities in Border Area Programme to the committee headed by
secretary DoWR,RD&GR.(Timeline: 10th June 2020)
(Action: D/o WR, RD & GR, Ministry of Jal Shakti) 98
2. Constitute a Sub- committee under Secretary (D/o WR, RD & GR), Ministry of Jal Shakti
with Adviser (WR&LR) NITI as member and other Members as per the requirements
from the States, CWC, other Central organisations etc. Sub-committee will evaluate the
ongoing schemes and suggest (1) Prioritised schemes both FMP and FMBAP for funding
during 2020-2023. Also, sub-committee will suggest new guidelines for RMBAP,
structural measures and non-structural measure for flood management in country.
(Timeline: 20th June 2020)
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
3. CWC is to categorize the all 5500 large dams in India according to their use in flood
control, irrigation and other purposes so that emergency action plans can be prepared
by the states accordingly. (Timeline: 15th June 2020)
(Action: CWC, Ministry of Jal Shakti)
4. Expert Consultation will be held under the chairmanship of Secretary (D/o WR, RD
& GR), Ministry of Jal Shakti and inputs to be submitted to the committee. (Timeline:
15th June 2020)
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
5. Inputs (explicit suggestions and lessons from the past) will be collected from the states
to form the strategy (Timeline: 15th June 2020)
(Action: D/o WR, RD & GR, & WR&LR, NITI Aayog)
6. National Bureau of Soil Survey and Land Use planning’s (NBSS&LUP) should be contacted
and possibility should be explored of using their work in flood zone identification and
creation of inundation maps. (Timeline: 15th June 2020)
(Action: CWC and Commissioner FM Mo Jal Shakti)
7. NDMA will submit its guidelines related to flood management, any suggestive changes
in the guidelines and new areas of work to the committee for consideration. (Timeline:
15th June 2020)
(Action: NDMA)
The meeting ended with vote of thanks to the chair. 99
List of participants in the second meeting of the committee constituted for formulation of
strategy for flood management works in entire country and river management activities and
works related to border areas (2020 – 23)
S.No.NameDesignation and Organization
1.
Dr. Rajiv Kumar, Vice Chairman,
NITI Aayog
In Chair
2. Dr. Ramesh ChandMember, NITI Aayog
3. Shri. U.P. Singh
Secretary, DoWR, RD & GR, Ministry of Jal
Shakti
4. Shri. Sandip KumarJoint Secretary, NDMA
5. Shri Avinash MishraAdviser, WR & LR, NITI Aayog
6. Shri Atul Jain
Commissioner (FM), DoWR, RD & GR, Ministry of
Jal Shakti
7. Shri HazarikaAdditional Chief Secretary Assam
8. Shri Rakesh Toteja
Joint Commissioner, DoWR, RD & GR, Ministry of
Jal Shakti
9. Shri G. Srinivasa RaoAssociate Director (DRR), ISRO
10. N kumar VelScientist D NITI AAYOG
11. Sh Padma Kant JhaSE Bihar WRD
12. Ms. Arunima ChandraYP, NITI Aayog
Report of the Committee
Constituted for Formulation of
Strategy for Flood Management
Works in Entire Country and
River Management Activities
and Works Related to
Border Areas (2021– 26) Title: Report of the Committee Constituted for Formulation of
Strategy for Flood Management Works in Entire Country and
River Management Activities and Works Related to
Border Areas (2021– 26)
Publisher
NATIONAL INSTITUTION FOR TRANSFORMING INDIA, NEW DELHI
Date of Publication: January 2021
Copyright © NITI Aayog (2021)
Year of Publishing: 2021
Disclaimer
NITI Aayog does not claim copyright for any images produced in the
Report. No part of this report may be reproduced in any form (electronic or
mechanical) without prior permission from or intimation to NITI Aayog.
The full Report should be referenced as follows:
NITI Aayog (2021) “Report of the Committee constituted for formulation
of strategy for Flood Management Works in entire country and River
Management Activities and works related to Border Areas (2021– 26)”
Text from this Report can be quoted provided the source is acknowledged. Water is one of the greatest assets under the possession of mankind. It is a source of life but
when challenged, it also has ability to destroy the whole life structures. Throughout the history
of mankind, floods have brought untold wealth and prosperity to civilizations. Some of our most
prosperous civilizations flourished on the flood plains and the fertile great northern plain of India
which produces nearly 60 percent of our food grains is result of sediments brought by the floods
of Indus-Ganga-Brahmaputra and their tributaries. Yet at the same time, floods have caused
tremendous losses and resulted in untold suffering for millions of people. Even today, floods lead
all natural disasters in the number of people affected and in resultant economic losses, with these
numbers rising at alarming rates.
In response to such disaster, we have to move from the current paradigm of post-disaster response.
Plans and efforts must be undertaken to break the current event-disaster cycle. More than ever,
there is the need for decision makers to adopt holistic approaches for flood disaster management.
In this current report, NITI Aayog has tried to focus on the main causes of the floods which
in turn give us the sustainable solutions for this disaster. The report has clearly endorsed that
the effective and long lasting strategy involves combination of - structural and non-structural
measures along with the use of modern technology which can alleviate the problem of floods to
a great degree.
Our last experiences have clearly demonstrated that we need a paradigm shift from our
conventional approach of dam building to more non-structural measures like flood plain zoning,
flood forecasting, reservoir operations and state of art space technology. Along with this, we
have to focus on building a National Water Model for India which with the help of some scalable
models can be used to feed the information into a decision support system which can provide
support services to Nation by predicting and forecasting flood and other water related events.
This technology and their predictions will further assist us in making flawless Flood Management
plans.
One thing which every decision maker has to understand is that floods are not something which
we have to prevent. It is the destruction of livelihood which has to be minimized by leaving the
room of the river. Like any other natural entity, rivers have their own course and methods of
operation and in order to minimize the loss and destruction we have to develop a sustainable
ecology wherein both mankind and nature can benefit from each other.
Preface Flood is the most prevalent and costliest natural disaster in the world which devastates
both life and economy on large extent. Extreme flooding events are not relegated to
the least developed nations, but can also devastate and ravage the most economically
advanced and industrialized nations. The effective and long lasting strategy not only
involves structural and non-structural measures but also some important measures
like river rejuvenation, watershed development, land use planning, tree horticulture
along the banks of the rivers, creation of lakes and wet lands in both rural and urban
areas for flood management and water security. Through this report, NITI Aayog
has tried to explore all these options and present a comprehensive strategy for flood
management in entire country.
Message Foreword
The Kerala flood of 2018 was less intense than that of 1924 one, the biggest in Kerala’s history till
then. Yet it caused the unprecedented loss of lives, property and infrastructure. The mighty rivers
ruptured their banks and floodwaters gushed through the structures constructed on the floodplains.
Major reasons for the flood of such magnitude are unplanned construction and encroachment on
riverbeds that have reduced the capacity of rivers to carry flood waters. Unfortunately, this is not
just the picture from one disaster but in India the soaring rise in the damage from the flood is
result of the heedless construction and increasing activities in flood plains.
Flood plain zoning which is neglected in almost every effort of flood control and management
has to be one of the most important focal point of our strategy to manage floods. The lack of
protection of river floodplains from reprehensible acts like encroachment affects both the river as
well as those who encroach it adversely. Therefore NITI Aayog through “Report of the Committee
constituted for formulation of strategy for Flood Management Works in entire country and
River Management Activities and works related to Border Areas (2020 – 23)” has focused on
encouraging the States to adopt flood plain zoning.
Technology can also play an important role in tackling floods and it is very heartening to see that
we as a Nation have deciphered the way to it. The Central Water Commission is collaborating
with M/s Google Inc., to provide inundation alerts based on the Flood Forecast available in
Common Alerting Protocol (CAP) platform using high quality Digital Terrain Models available
with Google using Artificial Intelligence and Machine Learning. The system started functioning
from 2018 when inundation alerts were provided for Patna Gandhighat forecast stations. In
similar manner, Odisha is the first State in the country that has implemented an Early Warning
Dissemination System (EWDS) which aims at establishing a foolproof communication system
to address the existing gap of disseminating disaster warning from the State, District and Block
levels to communities. The Government of Kerala has also entrusted the Kerala State IT Mission
(KSITM) to set up an ICT Platform comprising of Web based backend and a mobile app-based
field survey application to document the flood related damage caused to houses and commercial
establishments in affected districts. Recently, students from IIT Madras have developed an AI-
enabled drone that can help authorities provide vital information on people trapped in disaster-
hit areas. All these examples show that innovations in flood forecasting and management can lead
the way for timely evictions and minimize the losses from the flood.
The report covers the constitutional position of the flood, approach and methodology for
mitigation of flood which focuses on non-structural and structural measures, efficacy of past flood
management programmes and way forward in terms of early warning system, flood inundation
level and decision support system. The present report is the result of incessant efforts of many people. I would like to acknowledge
the efforts of all the committee members which have come together under the able and excellent
leadership of Dr. Rajiv Kumar, Vice Chairman, NITI Aayog to produce this report. My special
thanks to Member, NITI Aayog, Dr. Ramesh Chand and Secretary, Department of Water
Resources, River Development and Ganga Rejuvenation, Ministry of Jal Shakti, Shri U.P Singh
for the continuous support and guidance in making of Report.
I would also acknowledge the efforts of Adviser (Water Resources) and Member Secretary of the
Committee, Shri Avinash Mishra and his team for convening the meetings, collating the inputs
and report writing.
With each disaster, there are numerous lessons to be learnt. India needs to observe, document
and ensure that these lessons are captured in the form of knowledge, which coupled with modern
technology can help the states in handling the disasters of the future. Table of Contents Preface v
Message vii
Foreword ix
Section 1
Floods: As the Nationwide Problem 1
Introduction 2
Flood prone states 3
Constitutional Position 4
Approach to Flood Management in The Country 5
Section 2
Structural and Non-Structural Measures for Flood Mitigation 9
Structural Approach 10
Non-Structural Approach 16
Section 3
Critical Review of Flood Management Works in India and some
solutions from International Best Practices 25
Important Government Initiatives 26
Critical Review of the various Flood Management Works in India 27
Solutions: International Case studies for better flood management 29
Section 4
Major Flood Events of the Country: Case Studies and Lessons Learnt 34
Uttarakhand Flood 2013 35
Tamil Nadu Flood 2015 39
Kerala Flood 2018 42
Bihar Flood 2019 46
Hyderabad Flood 2020 48
Section 5
Flood Management and Border Areas Programme (FMBAP) 51
Introduction 52
Flood Management Programme (FMP) 52 River Management Activities And Works Related To Border Areas 53
Flood Management and Border Areas Programme (FMBAP) 53
Salient Features Of FMBAP 54
FMBAP Scheme For The Period 2021-26 54
Section 6
National Water Model for India and preparation Flood Management Plans 59
Use of Technology 60
Development of National Water Model for India 61
Flood Management Plans 63
Section 7
Recommendations 67
Non-Structural Measures 68
Structural Measures 70
Flood Management and Border Areas Programme (FMBAP) 72
Official Order for Committee Formation 76
Official order for Sub Committee for “Formulation of Strategy for
Flood Management Works in entire country and River Management
Activities and Works related to Border Areas (2020-23) 78
Comparison of the existing guidelines with the revised guidelines
and reasons for the change in guidelines under the River
Management Activities in Border Area Programme (RMBA) 79
Important Government Initiatives and Policies on Floods 81
List of Large Dams having the Emergency Action Plans 83
Minutes of the Meeting held on 27th February, 2020 89
Minutes of the Meeting held on 27th May, 2020 95
NDMA Guidelines for Management of Urban Flooding
(Enclosed as separate Annexure with the report) Annexures List of Tables List of Figures Table 1: Flood Prone Area in India 2
Table 2: Major Flood Evens of Last few Years 34
Table 3: Damage of Uttarakhand Flood 36
Table 4: District wise rainfall during 1 June 2018 to 22 August 2018 42
Table 5: Damage due to Flood 46
Table 6: Revision of monetary limits for appraisal of flood control scheme 56
Table 7: Revision of monetary limits for appraisal of flood control scheme 73
Figure 1: Average Annual Damage due to flood (1953-2018) 3
Figure 2: Flood Prone Areas in India 4
Figure 3: Various Structural Methods for Flood Control 13
Figure 4: Two Tier System of Flood Management in India 26
Figure 5. Various approaches to Flood Management 31
Figure 6: The Indian Meteorological Department image (17th June 2013) suggested
heavy rainfall on the higher reaches of Uttarakhand, Himachal and Nepal Himalaya 36
Figure 7: Kedarnath Before and After the Flood 37
Figure 8: Chennai Flood 39
Figure 9: Rain gauge stations of Kerala used for rainfall analysis 43
Figure 10: Kerala Flood snapshots 46
Figure 11: Patna in 2019 Flood 47
Figure 12: Hyderabad Flood 2020 Snapshots 49
Figure 13: IoT Sensors 61
Figure 14: AI Based Flood Forecasting 62
Figure 15: National Water Model for India 63 AIArtificial Intelligence
ALTMAirborne Laser Terrain Mapping
ANNArtificial Neural Network
ARGAutomatic Rain Gauge
AWSAutomatic Weather Station
BBBrahmaputra Board
BCMBillion Cubic Meter
BEBBeach Erosion Board
CAGComptroller and Auditor General
CAPCommon Alerting Patrol
C-DoTCentre for Development of Telematics
CMISCoastal Management Information System
CMPCrises Management Plan
CONUSContinental United States
CPDACCoastal Protection and Development Advisory Committee
CWCCentral Water Commission
DMDam Management
DMSPDisaster Management Support Programme
DoWR, RD, GR
Department of Water Resources, River Development & Ganga
Rejuvenation
DPRDetailed Project Report
DRIPDam Rehabilitation and Improvement Project
DTMDigital Terrain Model
DoLRDepartment of Land Resources
DSSDecision Support System
DVCDamodar Valley Corporation
EoCsEmergency Operations Centers
EAPEmergency Action Plan
FCIFlood Control InfrastructureList of Abbreviations FCMTFlood Crises Management Team
FFFlood Forecast
FMBAPFlood Management and Border Area Programme
FMPFlood Management Programme
FMPsFlood Management Plans
FRLFull Reservoir Level
FYPFive Year Plan
GAGenetic Algorithms
GFCCGanga Flood Control Commission
GHLSCGandak High Level Standing Committee
GISGeographic Information System
IIScIndian Institute of Science
IITIndian Institute of Technology
IMCInter- Ministerial Committee
IMDIndia Meteorological Department
IoTInternet of Things
IROIntegrated Reservoir Operation
KHLCKosi High Level Committee
MEAMinistry of External Affairs
MhaMillion Hectare
MHAMinistry of Home Affairs
MLMachine Learning
MoCITMinistry of Communication and Information Technology
MoEFCCMinistry of Environment, Forest and Climate Change
NDMANational Disaster Management Authority
NGONon-Governmental Organization
NHPNational Hydrology Project
NITNational Institute of Technology
NDRFNational Disaster Relief Fund
NRSCNational Remote Sensing Centre
NWDANational Water Development Authority
NWICNational Water Information Center NWMNational Water Mission
NWMNational Water Model
NWPNumerical Weather Prediction
PDAPancheshwar Development Authority
QPFQuantitative Precipitation Forecast
RBARashtriya Barh Aayog
RBORiver Basin Organization
RCCReinforced Cement Concrete
RMBARiver Management Activities and Works related to Border Areas
RTURemote Terminal Unit
SDMAState Disaster Management Authority
SDRFState Disaster Relief Fund
STACState Technical Advisory Committee
UASUnmanned Aircraft System
UAVUnmanned Aerial Vehicle
UCUtilization Certificates
WIMSWater Information Management System Details of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities
and works related to Border Areas (2020 – 23)
On the instruction of the Prime Minister’s Office (PMO), a Committee was constituted to develop
the strategy for flood management for next three years. It was instructed that the strategy should
have clear priorities, costs and deliverables for next three years.
Members of the Committee
1. Vice-Chairman, NITI AayogChairman
2. Member, Water and Agriculture, NITI AayogMember
3. CEO, NITI AayogMember
4. Secretary, Department of Water Resources, RD & GR, Ministry of Jal
Shakti
Member
5 Secretary, Department of SpaceMember
6. Additional Secretary (Border Area Management), Ministry of Home
Affairs
Member
7. Joint Secretary, Ministry of External AffairsMember
8. Member Secretary, National Disaster Management Authority Member
9. Commissioner, Flood Management Programme, Department of Water
Resources, RD & GR, Ministry of Jal Shakti
Member
10.Member (River Management), Central Water Commission,Sewa
Bhavan, Sector 1, RK Puram, New Delhi
Members
11.Principal Secretaries (Irrigation) of Governments of Jammu & Kashmir,
Uttar Pradesh, Bihar, West Bengal, Punjab, Assam, Arunachal
Pradesh, Tripura, Madhya Pradesh and Kerala
Members
12.Director, Central Water and Power Research Station, Pune Member
13.Prof. Deepak Khare, Department of Water Resources Planning and
Management, IIT-Roorkee
Member
14.Dr. Sharad K. Jain, Director, National Institute of Hydrology, RoorkeeMember
15.Dr. (Prof.) Biswa Bhattacharya, Hydro-informatics, IHE Delft Institute
for Water Education, Delft, The Netherlands
Member
16.Adviser, Water Resources, NITI AayogMember Secretary Terms of Reference
of the Committee 1. Chalking out Strategy with clear priorities, costs and deliverables for flood management in
the country and river management activities and works in border areas, for the years 2020-
2023.
2. Devise strategy for urban flood and flash flood mitigation, preparedness and management.
3. Undertake the assessment of impact of climate change on probability of floods in the country.
4. To enlist the priorities, which are deconstructed clearly into medium term and short term
measures over the next three financial years along with funding requirements and its
mechanics, timelines and deliverables.
5. Suggest policy interventions required for optimally addressing the problem of flood
management and river management activities and works in border areas.
6. Identification of various mechanisms / technological interventions / institutional arrangements
for flood management and river management including state-of-the-art space technology for
designing mechanisms for early warning for floods and other river management works.
7. To make a framework to identify inter-sectoral and inter-ministerial issues and arrive at an
action-plan for solving the same.
8. Study the best practices followed globally for flood defense, prevention, protection,
preparedness and mitigation, and appraise their replicability and scalability in the Indian
context.
9. Spell out the strategy for the catchment area treatment works to prevent sediment load into
the rivers along with the extent of fund requirement.
10. To work out fund requirements scheme-wise and state-wise as per the priority. Executive Summary Flood is the most recurrent natural calamity and its high time that we should formulate and
implement sustainable mitigation measures. The effective and long-lasting strategy involves
combination of - structural and non-structural measures along with the use of modern technology
which can alleviate the problem of floods to a great degree. The previous plans/strategies of the
government to tackle flood emphasized predominantly on the usage of medium-term measures
such as embankments, spurs and channelization of rivers. The long-term structural measures
like Dams, Reservoirs, detention basins etc have been used in few cases. The long-term measures
should be taken up in the cases where there is compulsion for protection of larger area, population
or assets. In majority of the places, less expensive non-structural measures like flood forecasting,
flood plain zoning, flood proofing etc should be adopted to accommodate high spat of water.
The room of the river should be provided by taking up the measures like creating wetlands, lakes
and check dams. The construction of embankments/levees should be taken up as the medium-
term measures to provide protection to the railway lines, national highways, valuable assets or
international boundary. The medium-term measures should be used after the detailed study of
river morphology for the entire length of river stretch so as to avoid erosion at one bank and
aggradation at another bank or subsequent erosion on upstream and aggradation on downstream
and vice versa. Therefore, construction of embankments should be taken up only after the detailed
study of the basin.
The committee is of the view to provide priority to non-structural measures to mitigate the
floods and shall go for long term and medium-term structural measures when and where those
are unavoidable. Aayog also like to emphasize the use of advanced technology like artificial
intelligence, satellites, remote sensing and GIS for flood forecasting and warning systems. The
committee proposes National Water Model for India which can be built with the help of some
scalable models. These models can be used together to feed the information into a decision
support system which can provide support services to Nation by predicting precipitation and
forecasting flood and other water related events.
The committee has also proposed to extend the Flood Management and Border Area Programme
(FMBAP) for the period of 2021-26, co-terminus with the period of 15th Finance Commission
with the provision of inclusion of new projects for funding under the scheme. Keeping in view the
persistent demand from States to include new schemes under central funding, as no new projects
have been included for central funding since the year 2015, the proposed outlay of the FMBAP
Scheme for the period 2021-26 shall be around Rs. 15,000 Crores. Some changes like revisions in monetary limits for appraisal of flood control schemes etc have been suggested in the scheme for
its successful implementation.
The committee has also advocated the formation of Flood Management Plans which can also
help in rescue and relief works during and after the floods. Aayog also proposes for the policy to
provide flood cushion in the existing dams to accommodate peak time flood so that the tragedy
like Kerala floods doesn’t repeat itself. 1
When we talk of flood control, we usually think of dams and
deeper river channels, to impound the waters or hurry their
run-off. Yet neither is the ultimate solution, simply because
floods are caused by the flow of water downhill. If the hills are
wooded, that flow is checked. If there is a swamp at the foot
of the hills, the swamp sponges up most of the excess water,
restores some of it to the underground water supply and feeds
the remainder slowly into the streams. Strip the hills, drain
the boglands, and you create flood conditions inevitably. Yet
that is what we have been doing for years.
Hal Borland
Section 1
Floods:
As the Nationwide Problem 2
Introduction
Flood is the most prevalent and costliest natural disaster in the world which devastates both
life and economy on large extent. It is defined as, “High-water stages in which water over flows
its natural or artificial banks onto normally dry land, such as a river inundating its floodplain.”
India receives major rainfall in four months spanning from June to September. Distribution
of rain across India is dissimilar as some areas receive heavy rainfall while some are at deficit.
The variation also varies time to time; the areas which are not traditionally prone to floods also
experience severe inundation due to downpour and cloud bursting. Urban flood has become one
of the major problems now a days, the recent floods in Kerala, Uttarakhand and in metropolitan
cities like Delhi, Mumbai, Kolkata point towards the need for proper management of floods and
the drainage system.
The Rashtriya Barh Ayog (RBA) estimated the total area liable to floods in the country as 40
Million Hectare (Mha). The extent of maximum area affected by floods in any year during 1953-
2010 as per the Report of Working Group on Flood Management and Region-Specific Issues
for XII Plan is 49.815 Mha
1
. Out of it, nearly 21 Mha can be provided with reasonable degree of
protection. Based on the statistical details available so far, it has been estimated that annually 7.17
mha. of area is affected with floods of which 3.94 mha. is cropped area. On an average, floods
claim 1654 human and 618248 cattle life annually. Around 1.2 million houses are damaged by
floods and the average annual losses in monetary terms came to the tune of Rs 5649 crores
2
.
India faces floods almost every year, in varying degrees of magnitude. The frequent occurrence
of floods can be attributed to factors like wide variations in rainfall both in time and space with
frequent departures from the normal pattern, inadequate carrying capacities of rivers, river bank
erosion, degradation of hilly catchment and silting of river beds, landslides, poor natural drainage
in flood prone areas, glacial lake outbursts, cloud burst, etc. The country suffers huge economic loss
annually besides the loss of precious human lives due to floods. There are evidences of increasing
number of high intensity rainfall event in the recent years varying non-uniformly in space and
time. Such events lead to flash floods. Urban flooding due to storm water drainage congestion
(pluvial in nature) has also become common in towns/cities due to such extreme meteorological
events. The devastation caused due to floods in the past has drawn attention of the planners of the
country towards comprehensive flood management plans, policies and implementation thereof.
Table 1: Flood Prone Areas in India
S.no.ParticularsArea
1.Flood Prone Area by Rashtriya Barh Ayog (RBA, 1980) 40 Mha
2.
The extent of maximum area affected by floods in any year
during 1953-2010 as per the Report of Working Group on
Flood Management and Region-Specific Issues for XII Plan
49.815 Mha
1 Report of Working Group on Flood Management and Region-Specific Issues for XII Plan 2011.
2 CWC Database. 3
3.Annually affected Area7.17 Mha
4.Annually affected Cropped Area3.94 Mha
5.Area provided reasonable degree of protection 21 Mha
6.
Target area to provide reasonable degree of protection
by 2035
35 Mha (additional 14 Mha
phased in 15 years: 4+5+5)
Monetary
Damages
5694 cr
Loss of
cattle life
618248
Loss of life
1654
Flood
Damages
Houses
Damaged
1.2 m
Monetary
Damages
5694 cr
Loss of
cattle life
618248
Loss of life
1654
FLOOD
DAMAGES
Houses
Damaged
1.2 m
Figure 1: Average Annual Damage due to flood (1953-2018)
Flood prone states
The Ganga-Yamuna basin states of Haryana, Himachal Pradesh, Uttar Pradesh, Bihar, West Bengal
are prone to floods. Also, Assam gets affected due to floods in Brahmaputra river. The delta
parts of river basins of Mahanadi (in Odisha), Godavari, Krishna, Pennar (In Andhra Pradesh),
Narmada, Sabarmati and Tapti basin areas in Gujarat are identified as prone to floods. However,
of late, the upper reaches of river basins of Krishna, Godavari caused severe floods in the states
of Karnataka and Maharashtra. Even states like Kerala received significant rainfall in 2018 causing
widespread floods and damage to life and property in almost entire state. The peninsular India
faces flood situation during the retreating NE monsoon cyclones during October-November.
4
Figure 2: Flood Prone Areas in India
Source: WRIS- The state of J&K is now divided into UTs of J&K and Ladakh. The state of Andhra Pradesh is divided into Telangana and
Andhra Pradesh.
Constitutional Position
As per constitutional provisions, the subject of flood management including erosion control falls
within the purview of the States. The flood management and anti-erosion schemes are planned,
investigated and implemented by the State Governments with own resources as per priority within
the State. The Union Government only renders assistance to States which is technical, advisory,
catalytic and promotional in nature.
The subject of flood control, unlike irrigation, does not figure as such in any of the three legislative
lists included in the Constitution of India. However, drainage and embankments are two of the
measures specifically mentioned in Entry 17 of List II (State List), reproduced below:
“Water, that is to say, water supplies, irrigation and canals, drainage and embankments, water
storage and water power subject to the provision of entry 56 of List I (Union List).”
Entry 56 of List I (Union List) read as follows: 5
“Regulation and development of inter-State rivers and river valleys to the extent to which such
regulation and development under the control of the Union is declared by Parliament by law to
be expedient in the public interest.”
It may be seen that the primary responsibility for flood control lies with the States. A number
of States have already enacted laws with provisions to deal with matters connected with flood
control works. However, there exists a significant provision that the powers to be exercised are
subject to Entry 56 of Union List. It may be pointed out that Entry 17 of List II (State List) quoted
above does not cover land use involved in the administrative measures of dealing with reduction
of flood losses viz. flood plain zoning.
Approach to Flood Management in The Country
The flood management practices have largely focused on reducing flooding and reducing the
susceptibility to flood damage through variety of interventions. Different measures have been
adopted to reduce the flood losses and protect the flood plains. Depending upon the nature
of work, flood protection and flood management measures are broadly classified as under: (a)
Structural Measures (b) Non-Structural Measures
Structural Measures for Flood Management: The structural measures for flood control which
bring relief to the flood prone areas by reducing flood flows and attenuating the flood levels are:
a. A reservoir created behind a dam across a river
b. A natural depression suitably improved and regulated, if necessary
c. By diversion of a part of the peak flow to another river or basin, where such diversion
would not cause appreciable damage.
d. By constructing a parallel channel by-passing a particular town/reach of the river prone
to flooding.
The structural methods of flood protection/anti erosion, which do not reduce the flood flow but
reduce spilling are:
a. Embankments which artificially raise the effective river bank and thereby prevent spilling.
b. Channel and drainage improvement work, which artificially reduce the flood water level
so as to keep the same, confined within the river banks and thus prevent spilling.
c. Anti-erosion measures which prevent further loss of valuable land.
d. River channelization works to train the braided rivers to flow in a desired course to
prevent further loss of land and to induce siltation.
Non-Structural Measures for Flood Management: The non-structural measures to mitigate
adverse impact of floods involve the following:
a. Disseminating advance warning of incoming flood through a flood forecasting system
and facilitating timely evacuation of the people to safer grounds. 6
b. Discouraging creation of valuable assets/settlement of the people in the areas subject to
frequent flooding i.e. enforcing flood plain zoning regulation.
Urban Floods
Increasing trend of urban flooding is a universal phenomenon and poses a great challenge to
city administration and urban planners the world over. Problems associated with urban floods
range from relatively localized incidents to major ones, resulting in cities being inundated from
a few hours to several days. Therefore, the impact can also be widespread, including temporary
relocation of people, damage to civic amenities, deterioration of water quality and risk of
epidemics. The problems posed by urban flooding are quite challenging and aggravate with
continuous climate change, with its adverse impact affecting variation in rainfall and intra-city /
intra-region disparities in the distribution of rainfall. Unplanned development and encroachments
by sprawling habitations alongside rivers and watercourses have meddled with the natural streams
and watercourses. As a result of this, the runoff has increased in proportion to urbanization
of the watersheds causing urban floods. In recent years, the challenges posed by Urban Floods
coupled with rapid urbanization and climate change requires altogether different approach in
comparison to riverine floods. National Disaster Management Authority (NDMA) has brought
out detailed guidelines for management of urban floods to boost the efforts for urban flood
disaster management and strengthen the national vision of moving towards a more proactive pre-
disaster preparedness and mitigation centric approach. These guidelines contain all the details
that are required by planners and implementers and help Central Ministries/ Departments and
the States/ UTs in preparing the plans. The guidelines are attached as Annexure VIII of the report.
In order to check the threat of urban flooding, each city should have their Flood mitigation plans
(floodplain, river basin, surface water, etc.) amalgamated with the overall land use policy and
master planning of the city.
Impact of Climate Change on probability of flood
Impact of climate change can be witnessed largely in every sector of the economy leading to huge
social, environmental and economic losses. Besides, scientists and environmentalists, local people
have also started experiencing wrath of climate change. Frequent and unexpected flooding is one
of the worst tangible outcomes of climate change. Climate change has intensified the occurrence
of natural events by modifying the amount, the distribution and the timing of precipitation,
aggravating the incidences of floods in both coastal and land locked regions.
Broadly, climate change can exacerbate the flood situation in two-fold manner:
1. Sea level rise due to melting of glaciers can submerge coastal areas of country degrading
fresh water resources due to sea water intrusion, destroying coastal communities and
impairing economy while affecting agriculture, industry and tourism sector. 7
2. Variation in intensity of rainfall: The climate change has caused to increase the frequency
of short duration heavy rainfall leading to higher water run-off. It has been observed that
due to global warming, increasing temperatures can result into increase in total rainfall
coupled with simultaneous decrease in rainy days. Moreover, the steady rainfall with
distributed rainy days may get replaced by flashy and momentous rainfall adding large
amount of water in a short span of time leading to a disaster.
Natural Disasters always have a huge economic cost attached to it wherein it has also been seen
that floods are the most economically damaging climate impact. As per the report published by
Asian Development Bank, floods account for more than half of climate-related disasters in India
and cause damages of $54.63 billion during 1990–2017. Furthermore, the worst flood of Kerala in
2018 led to the estimated losses of US$ 4.25 billion displacing over 8,00,000 people in the region.
Besides this, it has also been estimated that one percent increase in floods can reduce economic
growth by 2.7%. Hence, the rising intensity of floods due to climate change calls for urgent need
for government functionaries to be well prepared to handle the aggravated situation of flood in
the country.
The structural and non-structural measures should be considered meticulously to get prepared
for flood like situation in the country. Maintaining the flood plain zones, reviving the urban
wetlands, effective storm water management are few of these measures to be considered.
Pragmatic Approach for Flood Management in Country
Providing absolute protection to all flood prone areas against all magnitude of floods is neither
practically possible nor economically viable. Such an attempt would involve stupendously high cost
for construction and operation & maintenance. Hence a pragmatic approach in flood management
is to provide a reasonable degree of protection against flood damages at economic cost through a
combination of structural and non-structural measures. The State/UT Governments have largely
focused on the structural measures through their investments on flood management works, anti-
erosion, anti-sea erosion, drainage development and maintenance works commensurate to the
problems faced by them. Such works are implemented through the State WR/Irrigation/Flood
Control/Public Health Departments. Govt. of India under Flood Management Programme (FMP)
has been providing promotional financial assistance to States for such works in critical areas
subject to budgetary allocations. Govt. of India has also been contributing through the non-
structural measure of flood forecasting and warning on inter-State rivers which is less capital-
intensive and has enabled the State Governments to take advance action/ measures to save
valuable life and property. The Flood Management Programme (FMP) with an outlay of Rs. 8,000
crores were implemented by the Government of India in XI Five Year Plan to provide financial
assistance to States/UTs in implementing flood management projects. The Scheme was continued
with outlay of Rs. 10,000 crores during XII Plan. Another scheme “River Management Activities
and Works related to Border Areas (RMBA)” was started in XI Plan with an outlay of Rs 820 8
@prakhar photography
Cr and was continued in XII Plan also with an outlay of Rs 740 Cr for taking up of different
works in Border areas. Both the schemes were merged as Flood Management and Border Areas
Programme (FMBAP) and continued for the year 2017-20 with merged components.
Inter-sectoral Contribution
Aftermaths of flood are struck across different sectors. By means of the flood protection
measures transportation network, power-transmission lines, amenities of civic
communities and the bio-diversity in forest and non-forest land are saved from the peril.
The custodian agencies of such sectors may be encouraged to earmark some budgetary
allocations towards the flood management initiatives, which will be instrumental in
ensuring cross-sectoral involvement. 9
Section 2
Structural and Non
Structural Measures for
Flood Mitigation 10
Structural Approach
The traditional approach to flood management is to decrease the intensity of flood peak by
holding or diverting a part of inflows or increasing the capacity of stream to enable passage of
flood peak without spilling. The structural measures of flood management are aimed to keep
the floods away from the people and several structural approaches for flood management are
discussed in succeeding paragraphs.
1. Reservoirs: Reservoirs can moderate the intensity and timing of the incoming floods.
They store water during periods of high discharges in the river and release it after
the critical high flow condition is over, so as to be ready to receive the next wave of
floods. Their effectiveness in moderating floods would depend on the reservoir capacity
available at that time for absorbing the flood runoff and their proximity to the likely
damage centre. They are operated with a carefully planned regulation schedule which
takes into account both the safety of the dam and related structures and the safe carrying
capacity of the lower reaches of the river in their present condition. Reservoirs are more
effective for flood management if, apart from the incidental moderation available for
any type of storage on a river, specific flood cushion is earmarked, as in the case of DVC
dams across the Damodar and its tributaries. A solution to floods lies in construction of
large storage reservoirs which moderate flood peaks by adopting appropriate reservoir
operation schedule. However, the construction of large reservoir have many challenges
and constraints like topographic, geological, geographical, environmental, submergence,
interstate & international issues, long gestation period, water sharing etc.
Government of India has been regularly interacting with the Government of Nepal for
construction of dams on the cross border rivers flowing from Nepal to India for mutual
benefit of the two countries which includes flood control. Survey and investigation
including preparation of DPRs of Sapta Kosi High Dam Project and Sun Kosi Storage
cum Diversion scheme proposed in the Sapta Kosi basin in Nepal along with Kamla
(tributary of Kosi) and Bagmati (tributary of Kosi) has been undertaken jointly by India
and Nepal. Pancheshwar Development Authority (PDA) has been set up jointly by India
and Nepal for execution, operation and maintenance of the Pancheshwar Multipurpose
Project on river Sharda. The projects will provide significant flood control benefits to the
states of Uttar Pradesh and Bihar and their implementation need to be fast tracked. In
order to mitigate Brahmaputra flood, flood storage is essential in Subansiri, Siang, Dibang
and Lohit sub basins. Several projects have been identified in these sub-basins. However,
except for Lower Subansiri Project, not much progress has been achieved on ground in
respect of identified projects. As per a study by CWC, in order to mitigate Brahmaputra
flood at Pandu, Guwahati, from 22 lakh cusec to 14-15.5 lakh cusec (reduction in level
by 1.25 to 1.6 m) aggregate flood storage of the order of 13.30 BCM would be required
in various sub-basins. In order to mitigate Barak flood, flood storage is also essential
in Barak basin. There is an urgent need to expedite implementation of these identified 11
projects. The National Water Policy (2012) emphasize that all water resources projects,
including hydro power projects, should be planned to the extent feasible as multipurpose
projects with provision of storage to derive maximum benefit from available topology
and water resources.
2. Detention Basins/ Wet Lands: Detention basins are usually formed by utilizing natural
depressions/ swamps and lakes by improving their capacity by constructing encircling
embankments and providing suitable devices for regulating the release of stored
waters. Since, the land under the marshes or low depression may hardly require much
compensation and rehabilitation measures, this method is relatively inexpensive. The
Ghaggar detention basin in Rajasthan is a good example. Depressions available upstream
of Srinagar City, on the left bank of river Jhelum, the Mokama Tal area in Bihar and
Ottu, Bhindawas, Kotla lakes in Haryana and various beels/ haors of Barak basin are
some examples of natural basins. It has been observed that in view of growing pressure
on land resources, particularly in and around urban areas, there are cases where naturally
occurring detention have been encroached upon or their path obstructed. To get benefit
of flood control, it is essential that such tendencies are curbed and the basins are restored
to their natural state. Integration of such Detention basins/Wetlands with other structural
measures in form of embankments, cross drainage works in form of sluices etc. may be
beneficial for managing floods in an efficient manner.
3. Embankments: Embankments (including ring bunds and town protection works)
confine the flood flows and prevent spilling, thereby reducing the damage. These are
generally cheap, quick and most popular method of flood protection and have been
constructed extensively in the past. These are reported to have given considerable
protection at comparatively low costs, particularly in the lower reaches of large rivers.
The raising and strengthening of existing embankments have also been taken up in many
of the flood prone States. In order that this work is done adequately it is necessary to
adopt the flood frequency approach in their redesign, taking into account the data of
historical floods, which is now available. Efforts of the State Governments have so far
been concentrated mostly on undertaking these measures like raising & strengthening of
the existing embankments, and also construction of new embankments. During XI and
XII Plan period with Central assistance under Flood Management Programme (FMP) of
Ministry of Jal Shakti, State Governments have taken up several projects for construction
of embankments. So far State Governments have built 37073 km length of embankments
in the country which includes projects undertaken from their own resources till March,
2017. The efforts in this regard may need to be continued in the times to come, as per
site specific requirement.
4. Channelization of Rivers: Some of the States are proposing channelization of rivers, at
least in certain reaches, in the context of tackling the extensive meandering problems of
the rivers, activating navigational channels and training these rivers into their original
©powertechnology.com©ilovepatna.wordpress.com 12
courses by means of constructing embankments on both banks. As the river Brahmaputra
and some of its tributaries are very much braided in nature, the State of Assam is taking
up river channelization and dredging measures for training the oblique channels for
preventing severe erosion. While venturing to channelize rivers, thought must be given
in allowing the river certain freedom to flow and right of way to pass its flood waters
and silt load within its natural waterway. The dynamic nature of the rivers should be
appreciated and preventive measures planned accordingly instead of pinning down the
river by channelizing.
5. Channel Improvement: The method of improving the channel by improving the
hydraulic conditions of the river channels by desilting, dredging, lining etc., to enable the
river to carry its discharges at lower levels or within its banks has been often advocated
but adopted on a very limited extent because of its high cost and other associated
problems. Dredging operations of the Brahmaputra, which were undertaken in the early
seventies on an experimental basis, were discontinued because of their prohibitive cost
and limited benefits. The issue of dredging/de-silting of rivers has been studied by various
experts/ Committees and it has been opined that de-silting/dredging in general is not
feasible technically, due to several reasons like non-sustainability, cost effectiveness, non-
availability of vast land required for the disposal of dredged material, etc. Dredging in
selected locations may perhaps be considered as a component of a package of measures
for channel improvement to check the river bank erosion subject to techno-economic
justification. It may be economically justifiable as a method for channel improvement
where navigation is involved. Dredging is sometimes advocated for clearing river mouth
or narrow constrictions.
6. Drainage Improvement: Surface water drainage congestion due to inadequacy of natural
or artificial drainage channels to carry the storm water discharge within a reasonable
period causes inundation and damages. It is often difficult to distinguish between flood
and drainage congestion situations. This problem is rather acute in Andhra Pradesh,
Bihar, Haryana, Punjab, Orissa, Uttar Pradesh, Assam and West Bengal. Therefore,
improvement of drainage by construction of new channels or improvement in the
discharge capacity of the existing drainage system is recommended as an integral part of
the flood management programme in the country. The adequacy of existing sluices and
drainage channels should be reviewed in areas suffering from drainage congestion. If the
capacities of existing sluices in embankments and drainage channels are inadequate, this
should be improved by increasing the vents and improving outfall conditions. Drainage
improvement and embankment together have resulted in protecting area of about 20.54
Mha from floods. 13
Lower Subansiri ProjectMokama Tal area in Bihar
Before ChannelizationAfter Channelization
Green Method for Flood ControlGroynes
Figure 3: Various Structural Methods for Flood Control
7. Diversion of Flood Waters/ Interlinking of Rivers: Diversion of flood waters as a
flood control measure involves transfer of a part of the flood discharge to another basin
or to the same basin downstream of the problem area or to a depression where it could 14
be stored for subsequent release. This measure can be used to manage unusual floods
around cities as in the case of flood spill channel near Srinagar and also in the lower
reaches of a river near the sea as in the case of Krishna Godavari drainage scheme. The
projects for interlinking of rivers for diversion of flood water to water scarce areas may
be taken up in a time bound manner. Large dams and canal systems are proposed to
be constructed for storage and transfer flood waters of the surplus river in inter basin
water transfer proposals. NWDA has identified 30 inter-basin transfer links (16 under
Peninsular component and 14 under Himalayan components).
8. Watershed Management: The watershed management measures include developing
and conserving the vegetative and soil covers (Catchment Area Treatment) and also to
undertake structural works like check-dams, detention basins, diversion channels, etc.
In the watershed management of upper catchment, land treatment through afforestation
and grass land development practices should be supplemented by structural works for
retarding the water velocity and arresting silt. By proper management of watershed, silt
carried and deposited in the lower reaches of rivers can be reduced, leading to better
carrying capacity of the channel and thus serves as an effective flood control measure.
Catchment Area Treatment measure may be termed as Green Measures for flood
management. The treatment involves understanding of the erosion characteristics of
the terrain and identifying/ suggesting remedial measures to reduce the erosion rate. It
is also considered as soft engineering measures for reducing the silt load in river thereby
increasing the discharge carrying capacity of the river and hence protection against
flood. Generally, it deals with vegetation growth in catchment area to hold soil from
erosion. Watershed management works in the hilly catchments of the rivers originating
in Nepal, Bhutan as well as in hilly areas of India should be selectively chosen and
funded through central assistance. Nodal Ministry viz Ministry of Rural Development,
Department of Land Resources for the watershed management works may work out a
detailed programme in consultation with Ministry of Jal Shakti, other stake holders and
State Governments.
9. Anti-Erosion Works: Alluvial rivers are characterized by meandering from one bank
to another. It erodes constantly materials from concave bends and deposits between
two successive bends or deposits along the convex banks of successive bends. The flow
pattern along its path changes considerably from flood to flood. River bank erosion
leads to loss of valuable land and related socioeconomic problem. Rivers in flood plain
can be aggrading, degrading or stable depending upon silt deposition or erosion. A
variety of factors play a major role in causing bank erosion. These parameters among
others include river curvature, reverse / cross flows, composition of bed / bed material
etc. Anti-erosion works in the form of bank revetment, spurs, porcupines (RCC or
bamboo porcupines) etc. are provided to manage/control the floods, to check the bank
erosion. Measures in form of bamboo porcupines may be termed as green structural 15
measures. Now–a-days, new innovative materials like Geo-textile in the form of Geo-
textile bags, Geo-textile tubes, Sand filled Geo-mattress, Neo-web, submerged vanes
and RCC porcupines are being increasingly used in construction of revetments, spurs,
groynes, embankments etc. These materials are used due to their unique characteristics
like durability, resistance to chemical waste, environment friendly nature, easiness in
installation etc. Recent developments have found that riparian vegetation interacts with a
range of geomorphological, geotechnical, hydrological and hydraulic factors to affect the
type and extent of riverbank erosion. In this regard, special vegetation like vetiver grass
on river banks have been found to be helpful in checking erosion. These measures may
be termed as Green Measures for bank protection. The vetiver is a special type of grass
having longer roots length with high tensile strength and is thus resistant to the high
velocity streams and checks the erosion. However, such type of grass needs replacement
after flood season, in case of silt deposition over the grass. The enhanced lateral channel
stability offered by well-vegetated riparian zones can also reduce the need for engineered
stabilization and heavy maintenance.
10. Coastal Erosion: The coastline of country extending from West Bengal to Tamil Nadu
in the Bay of Bengal and Kerala to Gujarat in the Arabian Sea is perpetually exposed
to erosion of Sea. Indian Coastline has been experiencing erosion problem and around
45.5% percent of coastline is affected by it in varying magnitude. There have been several
measures adopted in India to counter the problem of erosion in the form of structural
measures such as Sea Wall, revetments, Groynes etc. Their suitability and adverse effects
are debatable however it is now increasingly felt world over that soft measures and non-
structural measures such as beach nourishment etc, should be employed in conjunction
with traditional structural measures while dealing with coastal erosion problem. Coastal
Erosion problem is complex effect of various natural processes working in coastal zone
and sometimes beyond it. Any intervention to combat erosion requires adequate data
in terms of quality and quantity on various processes such as wave, tide, current, wind
etc. along with other factors such as bathymetry, beach profile/material etc. Places where
rivers are joining sea, poses further challenges in terms of data requirements to account for
discharge, silt load etc. In India, data on above aspects are collected by different agencies
as per their mandate and requirement and hence coordinated approach is lacking. The
issue of Coastal Erosion has been in the focus of Government of India and Beach Erosion
Board (BEB) was constituted as early as in 1966 to study the problem along the Kerala
Coast which was having severe problem. Later on, it was realized that same program and
attention is required for the entire coastline of India and scope of BEB was extended to
cover the entire coast. With the objective of the development in the protected coastal
zone and the pressure of population in the densely populated areas in the coastal zone,
the Beach Erosion Board was reconstituted and rechristened as Coastal Protection and
Development Advisory Committee (CPDAC) in April, 1995 with the major objective to 16
identify and develop the various resource potential available behind the protected areas.
Since then, various initiatives have been taken at national level as well as state level to
address the problem in a more scientific manner. Coastal Protection and Development
Advisory Committee provides a common platform to all concerned maritime States/UTs
to discuss issues related to coastal protection and development. The Committee has given
its recommendations in the past on various coastal related issues. Government of India
has initiated setting up of Coastal Management Information System (CMIS) with an
objective to create an integrated data bank to tackle coastal erosion in a scientific manner
keeping in view the long-term perspective and collection of data on coastal processes
relevant for evolving long term plans and coastal protection measures. The activities
related to control of coastal erosion in an integrated manner to provide environmentally
and economically acceptable coastal protection system need to be promoted.
Integrated River Basin Management Approach
Integrated flood management calls for a paradigm shift from the traditional, fragmented and
localized approach, and encourages the use of the resources of a river basin as a whole. Therefore,
there is a need for an approach backed by latest technologies and implemented in a most effective
manner. In order to have integrated basin development including flood management in a holistic
manner, setting up of River Basin Organisations (RBO) may be expedited by the Central/ State
Governments. The River Basin Organizations shall have the mandate to implement flood control
measures encompassing immediate, short-term and long-term solutions in an effective manner
apart from overall water resources development of the basin
Non-Structural Approach
Integrated flood approach aims at adopting well judicious mix of structural and nonstructural
measures. Another dimension to this approach is that flood management works should not be
limited to critical reaches only. Rather, the planning should be done at hydrological unit (basin)
level. Also, a coordinated effort among different central ministries/ department, state Governments
and public is needed as part of integrated flood management.
i. Flood Plain Zoning: Flood-plain zoning is a concept central to flood plain management.
This concept recognizes the basic fact that the flood plain of a river is essentially its
domain and any intrusion into or developmental activity therein must recognize the
river’s ‘right of way’. Flood-plain zoning measures aim at demarcating zones or areas
likely to be affected by floods of different magnitudes or frequencies and probability
levels, and specify the types of permissible developments in these zones, so that whenever
floods actually occur, the damage can be minimized, if not avoided. Although, this
approach is generally endorsed by all in principle, scant attention is given to it in actual
practice, leading to increased flood damages. Ministry of Jal Shakti has continuously
impressed upon the states about the need to take action to implement the flood plain 17
zoning approach. A model draft bill for flood plain zoning legislation was also circulated
by the union government in 1975 to all the states. The state of Manipur had enacted
the flood plain zoning legislation way back in 1978 but the demarcation of flood zones
is yet to be done. The state of Rajasthan has also enacted legislation for flood plain
management in the State but enforcement thereof is yet to be done. The Government of
Uttarakhand has enacted the Flood Plain Zoning Bill in December 2012 and has notified
limit of Flood Plain Area in two reaches viz. Haridwar (Chandi ghat to Laskar) and
Uttarkashi (Gangori to badethi Chungi). Other States are yet to take action for enactment
of legislation. Enactment and enforcement of Flood Plain Zoning regulations should be
one of the priority areas for which provisions of Disaster Management Act, 2005 can
also be relied upon. The States/UTs are to be encouraged to complete the hydrologic and
hydraulic modeling for flood mapping in time bound manner.
ii. Flood Forecasting: Flood forecasting is considered as one of the most cost effective
non-structural measure for flood management. The work of flood forecasting and
warning in India is entrusted to the Central Water Commission (CWC). Flood
Forecasting and flood warning in India commenced in a small way in the year 1958 with
the establishment of a unit in the Central Water Commission (CWC), New Delhi, for
flood forecasting for the river Yamuna at Delhi. Presently, there are around 1600 Hydro-
meteorological sites being operated by CWC across the country covering 20 river basins
for gauge, discharge, sediment & water quality observations. Many of these stations are
used as flood monitoring stations for formulating flood forecasts. The activity of flood
forecasting comprises of Level Forecasting and Inflow Forecasting. The level forecasts
help the user agencies in deciding mitigating measures like evacuation of people and
shifting people and their movable property to safer locations. The Inflow Forecasting
is used by various dam authorities in optimum operation of reservoirs for safe passage
of flood downstream as well as to ensure adequate storage in the reservoirs for meeting
demand during non-monsoon period. Presently, Flood forecasts are issued by CWC at
325 stations (128 Inflow Forecast Stations + 197 Level Forecast Stations) as per Standard
Operating Procedure. Annually, about 7000 flood forecasts are issued by CWC during
floods.
a. Modernisation of Data Collection and Transmission System: CWC had planned
for installation of real-time data acquisition system for 968 stations in various river
basins. There is a proposal to increase the coverage by another 125 stations under
14th Finance Commission period for which work is in progress. Another 100
stations are also planned to be added by 2025 taking the total automatic sensor-
based data acquisition and satellite-based data transmission to around 1193 stations.
In addition to 1193 stations to be established by CWC by 2025, IMD is also planning
to expand its Automatic Weather Station (AWS)/ Automatic Rain Gauge (ARG)
Network which can also be utilised by mutual sharing for use in Mathematical 18
models for flood forecast. In addition, under National Hydrology Project (NHP)
many of the State Governments are also installing automatic telemetry-based water
level/reservoir level and rain gauge sensors in various river basins within their State.
These data are also likely to be available through Water Information Management
System (WIMS)/National Water Information Centre (NWIC) portal. All these
stations can be utilised on real-time basis for use in mathematical modelling for
flood forecasting. This will increase the coverage of Hydro-meteorological data
network significantly in the country during the coming years for real-time use in
flood forecasting. Further, simplified data dissemination policy for use of data by
the States particularly regarding trans-boundary rivers needs to be developed.
b. Advancements in Flood Forecast Formulation: During the early period of flood
forecasting activity upto 1958 to 1990s, conventional flood forecasting models using
Statistical correlation and regression equations were used to formulate flood forecast.
During 1990s, the data entry systems were modernized using data processing
software such as spreadsheets and Tables. Spreadsheets were also used to generate
correlation and regression equations. During the X Plan period, tools like Mike-11
software were adopted for telemetry modelling centres established. During XII Plan,
all the new flood forecasting stations which were operationalised were also brought
under mathematical modelling. New Mike-2016 software was utilised during XII
Plan. Three-days advance advisories for flood were started from 2017 onwards and
are now available for all the 325 flood forecasting stations. In this regard CWC has
entered into an understanding with IMD for getting their data seamlessly. IMD
has started sharing Numerical Weather Prediction (NWP) model outputs and is
also providing map based sub-basin-wise Quantitative Precipitation Forecasts
(QPFs) from 2017 onwards. In view of several instance of flash floods being faced
in recent times in the country, there is a need to develop flash flood forecasting
and early warning system. Flash floods are attributed to favourable combination of
meteorological and hydrologic conditions along with characteristics of catchment
area. Focus on scientific research in development of Model based system to forecast
flash flood with sufficient lead time will provide a much-needed relief from menace
of flash floods.
c. Modernisation of Forecast Dissemination: CWC is maintaining a web-based flood
forecasting web site since 2006 which was upgraded and made more user friendly
from 2014 and is being used till date. This is further being upgraded using Water
Information Management System (WIMS) through which better data entry system,
report generation and user-friendly web functions are envisaged. CWC is also
working in collaboration with M/s Google for generating Common Alerting Protocol
(CAP) for sending CWC’s Flood Forecasting information to general populace in the
affected areas through Google enabled android smart phones or through various 19
Google platforms from 2015 onwards. National Disaster Management Authority
through Centre for Development of Telematics (C-DoT) under MoCIT is also
developing its own CAP alert systems through which priority call routing will be
given from the concerned mobile towers. Radio and TV broadcast of alerts are
also being envisaged. The system is being tested on pilot basis in Tamil Nadu since
March 2020 onwards. CWC is also collaborating with M/s Google Inc., to provide
inundation alerts based on the Flood Forecast available in CAP platform using high
quality Digital Terrain Models available with Google using Artificial Intelligence
and Machine Learning. The system started functioning from 2018 when inundation
alerts were provided for Patna Gandhighat forecast stations. This has been expanded
to around 11,000 sq.km. covering 7 FF stations (Patna Gandhighat & Kahalgaon in
Bihar, Neamatighat, Tezpur, Guwahati & Goalpara in Assam and Ayodhya in Uttar
Pradesh) during 2019. This is likely to be covered to all level forecast stations during
the next few years.
iii. Reservoir Operation: Dams in our country are not dedicated for single purpose of flood
moderation whose requirement is conflicting in nature to conservational purposes. Most
of the large dams in the country are multipurpose with competing demands. Even in the
reservoirs having no dedicated flood cushion, incidental benefits of flood moderation
can be derived by providing dynamic flood cushion. To meet the objective set forth
in planning a reservoir or a group of reservoirs and to achieve maximum benefits out
of the storage created, it is imperative to evolve guidelines for operation of reservoirs.
Without proper regulation schedules, the reservoir may not meet the full objective for
which it was planned and may also pose danger to the structure itself and to the people.
Filling of reservoir should generally be slow during initial period of flood season and
aggressive filling should be done near the end of flood season. Inflow forecast should also
be utilized for real time operation of reservoirs. It helps in pre-emptying the reservoir to
avoid flooding like situation downstream. In last few years, dam releases has become an
issue as far as flooding in downstream reaches is concerned such as, the Chennai Floods
of 2015, Ganga floods in the State of UP and Bihar during 2016, the Ranganadi floods
of Assam in 2008 and 2017, Doyang floods of Assam in 2018, Kerala Floods in 2018
and the Krishna Floods in the States of Maharashtra and Karnataka, Chambal Floods
in the States of Madhya Pradesh and Rajasthan during 2019. Control of flood is better
achieved if the reservoir level is kept low in the early stages of the monsoon season.
However, at a later stage, if the anticipated inflows do not realize, the reservoir may not
get filled up to Full Reservoir Level (FRL) even upto end of monsoon. On the contrary,
if the reservoir is kept at high levels initially to avoid the risk of reservoir remaining
unfilled at later stage, there may be problem of accommodating high floods occurring at
later stage. Rule curves of major reservoirs, where flood cushion is not in-built, need to 20
be reviewed to have some dynamic flood cushion for major part of the flood season. In
case of extreme meteorological event, the safety of the dams is of paramount importance
and releases become mandatory. For reservoirs in series with intermediate inflows and
storage serving solely for flood control downstream, it is optimal to regulate floods by
filling the upper reservoirs first and emptying the lower reservoirs first. The operation
of reservoirs in parallel requires simulation with optimization approach. Some of the
essential required actions are:
a. Rule curve/ level for all reservoirs should be prepared & updated accounting
change in rainfall trend and changing demand over the years due to rapid increase
of population, urbanisation and industrialisation. Rule curves of major reservoirs,
where flood cushion is not in-built, need to be reviewed to have some dynamic
flood cushion for major part of the flood season.
b. Inflow forecasting and SoP for water release should be made mandatory for all
reservoirs.
c. Emergency Action Plan (EAP) for dam break/extreme flood situations should be
ready. It will include flood inundation maps and flood waves & time analysis. The
list of dams which has prepared the EAPs is attached in Annexure IV of the report.
d. Release information for downstream areas should be provided with adequate
response time.
e. Channel encroachment in downstream stretches of a dam should be removed.
iv. Integrated Reservoir Operation (IRO): The Crisis Management Plan (CMP) of
Department of Water Resources, River Development & Ganga Rejuvenation (DoWR,
RD&GR) includes the provision on Integrated Reservoir Operation (IRO) for flood
management. The plan for implementation of IRO for flood management included
in CMP involves entry of data by reservoir owners in the State in Water Management
Information System (WIMS). The data from reservoirs along with hydro-meteorological
data available with CWC as well as those received from IMD including rainfall forecast
will be used for running mathematical models for formulating inflow forecast at least
72 hours in advance for the various reservoirs identified in various basins in the plan.
Based on the inflow forecast provided and the availability of flood cushion in the
reservoir, release advisories shall be issued by Flood Crisis Management Team (FCMT)
to be formed in various basins. The FCMT may be headed by the Chief Engineer of
the respective Basin Organization of CWC with members from all co-basin States
and the Superintending Engineer of CWC Basin Organization will be the Member –
Secretary. The FCMT may meet frequently during Flood Crisis and advise the Project
authorities within the system of reservoirs regarding the quantum of release so that
flood inundation in the downstream areas shall be minimized. However, there is no 21
mandate to the project authorities to follow the release advisory of FCMT as the release
of water from project is in the purview of State Governments. In order to operationalize
the concept, mandate in the form of an executive order or a parliamentary act may be
needed. This can be brought as an executive order under DM Act 2005 or as a part of
the proposed Dam Safety Bill which has since been passed by Lok Sabha and is to be
passed by the Rajya Sabha. Based on the type of system, there are single and multi-
reservoir systems. Multireservoir systems can be treated as cluster and connected both in
series and as parallel units. Furthermore, reservoirs can be classified according to their
function as the reservoirs may be for single purpose or multi-purpose reservoirs. Multi-
purpose reservoirs serve a combination of functions, including irrigation, hydropower,
flood management, fisheries, recreation and tourism. The operation of multi-purpose
reservoirs also involves various interactions between these different functions that
can lead to conflicting interests. Dam Safety Bill provides for surveillance, inspection,
operation and maintenance of the specified dam for prevention of dam failure related
disasters and to provide for institutional mechanism to ensure their safe functioning and
for matters connected therewith or incidental thereto. The Bill has exclusive provision
regarding coordinated reservoir operations of cascading dams.
v. Dam Safety and Emergency Action Plan (EAP): Under the Dam Rehabilitation and
Improvement Project (DRIP), two relevant and comprehensive Guidelines for dam
operation related aspect viz., Guidelines for Preparing Operation and Maintenance
Manuals for dams and Guidelines for Developing Emergency Action Plan for dams have
been published for guidance of country’s dam owners. The Guidelines for Preparing
Operation and Maintenance Manuals, CWC, 2018 for dams contain various aspects of
project operation including normal operation and emergency operation. These serve as
guidance for dam owners on various protocols and responsibilities for managing water
releases during a year including flood seasons. Details for preparation of operational
rule curve (both for reservoir filling and release) are also part of the guidelines. The
Guidelines for Developing Emergency Action Plan for Dams, CWC, 2016 describes all
elements of an Emergency Action Plan (EAP) and comprehensively covers requirements
for notification flow charts, emergency conditions, inundation maps, emergency
detection, evaluation and classification, emergency preparedness and implementation
methodologies. The EAP is one of the most important documents to mitigate the
associated risks and consequences in case of a dam failure and any other major exigency.
Under the Project, this document is being prepared for all DRIP dams, and at the same
time Stakeholders Consultation Meetings are being conducted to disseminate provision
of this document with all stakeholders and sensitize all concerned agencies as well as
public in order to develop more resilience in handling such disasters. So far under the
ongoing DRIP project, 176 nos of draft EAPs prepared, and 132 EAPs have been published 22
and 42 nos of Stakeholder Consultation Meetings conducted. These two protocols will
ensure safety and operational performance of dams, will mitigate the associated risks
with dam failure through stakeholder’s sensitization about consequences and contribute
in making more disaster resilience society.
vi. Application of Space Technology: Satellite remote sensing has an enormous potential
in providing inputs to disaster management. Remote sensing provides a means of
quickly visualizing the impact of a natural disaster like floods and make an assessment
for prioritizing and taking necessary relief measures in time and space. In addition,
space-based communications play vital role in disaster management. Earth observation
satellites provide comprehensive, synoptic and multi temporal coverage of large areas
in near real-time. The technology can be adopted to provide real-time information on
major disasters like floods and cyclones in the following areas; - Near real-time flood
mapping due to riverine and cyclonic floods - Damage assessment due to floods and
cyclones - Flood progression, recession, and duration studies - River morphometric
studies - Spatial flood early warning studies - Preparation of flood hazard maps -
Embankment breach studies - River bank erosion studies and efficacy of anti-erosion
measures taken up in the river banks. Considering the potential use of space technology
in terms of satellite remote sensing and communication in disaster management, Indian
Space Research Organization has embarked upon the Disaster Management Support
Programme (DMSP) addressing all three disaster phases of preparedness, response and
mitigation for Disaster Risk Reduction in the country by through space-based inputs.
a. Spatial Flood Early Warning Development of spatial flood early warning models
using very high-resolution Digital Terrain Models is gaining momentum for
giving spatial flood alarm prior to the event. Space based inputs provide very vital
information on topography and climate that can be used in developing long range
flood early warning models. Considering the requirements at national level and its
importance, National Remote Sensing Centre has developed spatial flood forecast
models for Godavari and Mahanadi Rivers in association with CWC using space-
based inputs. Web-enabled semi-automated Spatial flood early warning models for
major floodplains of these two rivers have been developed using high resolution
digital terrain models (ALTM DTM) and land use land cover and being run on
experimental mode in real-time with other data support from CWC and IMD, and
the results are being disseminated. The pilot studies led to the development of fully
automated operational spatial flood early warning systems for Godavari and Tapi
river basins under National Hydrology Project (NHP).
b. Near Real-Time Monitoring and Mapping of Floods Space technology has been
providing accurate and near real-time information on riverine and cyclonic flooding
using its large area and frequent temporal coverage. This Report of information is an 23
important input for near real-time relief and rescue operations and flood management
on the ground. Duration of spatial flooding, flood progression and recession are
the other products provided using temporal remote sensing data. Flood damage
can be assessed using very high-resolution optical data acquired immediately after
the flood events. NRSC works in close coordination with the concerned Central
and State Disaster Management authorities including MHA, NDMA, SDMAs, etc
and disseminates the satellite and aerial based disaster products for disaster risk
reduction in the country.
c. State Level Flood Hazard Atlases using Historic Satellite Data Preparing flood
hazard maps is one of the best inputs for non-structural methods of flood damage
risk reduction. These maps are useful in planning developmental activities in
floodplains, construction of relief, rescue, and health centers, planning flood tolerant
crops in floodplains. Satellites provide synoptic observations of the natural disasters
at regular intervals that help in disaster risk reduction in the country. As part of
disaster mitigation phase, NRSC has taken up major responsibility on the behest
of NDMA in preparing State level Flood Hazard Atlases using historic satellite data
coupled with ground validation. Flood Hazard Atlases of Assam, Bihar, and Odisha
were prepared and released by the concerned States. Preparation of Flood Hazard
Atlases of Andhra Pradesh, West Bengal, Uttar Pradesh, and updation of Bihar Atlas
are taken up on top priority
vii. Adherence to Coastal Zone Regulations: The regulations stipulated under Coastal
Regulations Zone notification 2019, though primarily intended to protect ecologically
sensitive coastal stretches, serve the purpose of reducing impact of floods. The prohibition
of activities in mangrove areas and in area between High and Low tide lines conveys
the clear direction to stay from flood prone belts. Certain ecologically sensitive coastal
area of the country is identified as Critically Vulnerable Coastal Area and an Integrated
Management Plan (IMP) have to be prepared for such areas. Specific provision restricting
new construction within 20 meters from High Tide Line in backwater islands and
islands along the main land coast is also included in the notification. Enforcement of the
notification using the powers under Environment (Protection) Act 1986 will definitely
save a larger community from the avoidable wrath of flooding. 25
Section 3
Critical Review of Flood
Management Works in India
and some solutions from
International Best Practices
@UNDP 26
Important Government Initiatives
Since the flood management is primarily in the domain of States, flood control and management
schemes are planned, investigated and implemented by the State Governments with their own
resources, according to the priority within the States. The Union Government renders assistance
to States, which is technical, advisory, catalytic and promotional in nature. The Department of
Water Resources, River Development and Ganga Rejuvenation (DoWR, RD&GR), Ministry of
Jal Shakti is responsible for laying down policy guidelines and programmes for the development
and regulation of the country’s water resources. The Ministry provides technical guidance and
conducts scrutiny, clearance and monitoring of the irrigation, flood control and multi-purpose
projects (major/medium). The Ministry is also responsible for operation of the central network
for flood forecasting and warning on inter-state rivers, the provision of central assistance for
some State Schemes in special cases and preparation of flood control master plans for the Ganga
and the Brahmaputra. The two-tier system for flood management in India is:
Central Government
State Government
•Central Water Commission
•Ganga Flood Control Commission (GFCC)
•Brahmaputra Board (BB)
•National Disaster Management Authority (NDMA)
•Water Resources Departments
•State Technical Advisory Committees (STAC)
•Flood Control Boards,
•Irrigation Departments
•Public Works Departments
Figure 4: Two Tier System of Flood Management in India
Government of India has implemented two major schemes viz. Flood Management Programme
and Flood Forecasting Scheme towards Flood Forcasting, Control and Management
3.
1. Flood Management Programme: The scheme was sanctioned by the Cabinet in November
2007 with Central Assistance of Rs 8,000 crore in XI FYP (2007-2012). Further, a central
assistance of 10,000 crore was approved in October 2013 for XII FYP (2012-2017) for
undertaking works related to (i) river management, (ii) flood control, (iii) anti – erosion,
(iv) drainage development, etc. During the XI and XII plans Rs 4,723.08 crores was
released by MoWR, RD&GR upto March 2016.
2. Flood Forecasting: As of June 2008, CWC was operating 878 Hydrological and Hydro-
meteorological sites across the country covering 20 river basins for gauge, discharge,
3 Report on Schemes for Flood Control and Flood Forecasting by CAG 2017 27
sediment and water quality observations. Besides, CWC also operated 175 Flood
Forecasting Stations in the country. An outlay of Rs 130 crore in respect of Flood
Forecasting Scheme for XI FYP was approved, of which expenditure of ` 103 crore was
incurred upto March 2012. The outlay for XII Plan was Rs 281 crore, of which expenditure
of Rs 114.09 crore was incurred up to March 2016.
After these the Flood Management and Border Area Programme was launched which is described
in detail in next section. The other initiatives of Government of India are given in Annexure IV.
Critical Review of the various Flood Management Works in India
1. In India, we have history of attaching the highest priority to Flood Control Infrastructure
(FCI) which includes dams, channels, embankments etc. The importance can be gauged
with the fact that Dams are referred as the “Temple of Modern India”. However, these big
infrastructural projects have their own limitations like:
a. FCI is designed with a specific capacity and is a centralized solution of large scope.
Such nature makes it too rigid to quickly adjust to changing boundary conditions,
such as local floodplain urbanization and upstream deforestation, which persistently
make the protection level insufficient.
b. The efficacy of FCI depends heavily on unreliable factors. One example is the long-
term commitment of periodic maintenance to counter undesirable river adjustment
that compromises FCI’s capacity and structural integrity. The cost of maintenance
frequently exceeds initial estimate due to unexpected, emergent problems
4
.
Dredging,
particularly, is often too expensive to be implemented as frequently as needed
5
.
c. FCI produces social injustice by forcing its costs onto other communities
6
. The
degradation of local riverine ecosystems attributed to FCI can have little impact on
the associated city, since cities typically exploit biological productivity and freshwater
elsewhere
7
. However, rural communities upstream and downstream can be impacted
if they depend heavily on the river for livelihoods. These communities can also suffer
from increased flood risk transferred by FCI. In many cases, rural communities
are often sacrificed during extreme basin-wide flood events, strategically flooded
to avoid inundation of economically and politically more important cities. It was
seen in 2011 in the floods of Mississippi River in the USA, Chao Phraya River in
Thailand and 2018 in Kerala Flood in India.
d. Even if the levee effect does not exist, FCI can still worsen long-term flood risk
through structural failure when the capacity of FCI is eventually overwhelmed.
4 Smits AJM, Nienhuis PH, Saeijs HLF (2006) Changing estuaries, changing views. Hydrobiologia 565:339–355
5 Mount JF (1995) California rivers and streams: the conflict between fluvial processes and land use. University of California Press,
Berkeley
6 Smith K, Ward R (1998) Floods: physical processes and human impacts. Wiley, New York
7 Folke C, Jansson A, Larsson J, Costanza R (1997) Ecosystem appropriation by cities. Ambio 26:167–172 28
Levee or dam breach would cause water and sediment to plunge onto the urbanized
floodplain at high velocity to leave little or no evacuation time. Once it occurs, other
intact levees would complicate drainage and prolong inundation to exacerbate the
disaster
8
. Structural failure is less predictable and more damaging than naturally
slow-rising floodwater, impacting more people in a single instance
9
e. FCI’s very function—preventing periodic flooding—exerts significant ecological
impacts. The idea that ecological impacts and flood safety are tradeoffs has justified
the management practice that prioritizes flood control over ecological conservation
and restoration. As the socioeconomic value of ecosystem services of urban rivers
are increasingly recognized
10
, it is questionable whether sacrificing river health
for only short-term protection is sensible. In wealthier cities, while the ecological
decline associated FCI do not seem to limit urban development, the long-term
socioeconomic impacts associated with the ecological decline remains to be seen. In
low-income urban communities where the less privileged still depend on the river
for fishery and water supply, the ecological impacts should be a serious concern
11
.
In both cases, society should recognize that flooding is not merely a hazard but also
critical mechanism to maintain socioeconomically valuable ecosystem services
12
2. Inadequate maintenance of flood protection structures like embankments, groynes, spurs
etc. leads to repeated failure of constructed flood protection works.
3. The flood protection works are done more as a fire fighting one instead of based on a
flood control master plans for flood prone basins.
4. Non-involvement of beneficiaries in the maintenance of flood protection works which
benefit them is major lacunae.
5. As per report on ‘Schemes for Flood Control and Flood Forecasting’
13
on July 21, 2017.
The audit covered flood management projects, and river management activities, including
dams in 17 States and Union Territories from 2007-08 to 2015-16. According to the
report, against a target of installing 219 telemetry stations (recording and transmitting
readings of the flood forecasting instrument) between 2012 and 2017, only 56 had been
installed as of August 2016. 59% of the existing telemetry stations were nonfunctional,
resulting in non-availability of real time data for the corresponding periods
14
.
8 Colten CE, Sumpter AR (2009) Social memory and resilience in New Orleans. Nat Hazards 48(3):355–364
9 Burton I, Kates RW, White GF (1993) The environment as hazard, 2nd edn. The Guilford Press, New York
10 Grimm NB, Faeth SH, Golubiewski NE, Redman CL, Wu J, Bai X, Briggs JM (2008) Global change and the ecology of cities. Science
319:756–760
11 Tockner K, Bunn SE, Gordon C, Naiman RJ, Quinn GP, Standford JA (2008) Flood plains: critically threatened ecosystems. In: Polunin
NVC (ed) Aquatic ecosystems. Cambridge University Press, Cambridge, pp 45–61
12 Postel S, Richter B (2003) Rivers for life: managing water for people and nature. Island Press, Washington,DC
13 CAG Report
14 Report on Schemes for Flood Control and Flood Forecasting by CAG 2017 29
6. Flood management was not taken up in an integrated manner, i.e., covering the entire
river or a tributary or a major segment of it and Detailed Project Reports (DPRs) were
not prepared in eight states. Delay in approval of DPRs leads to delays in completion
of projects. This in turn results in technical designs becoming irrelevant at the time of
actual funding of the project. Also, the complete river morphology not studied before the
implementation of the piece-meal approach of the channelization/embankment projects.
7. CAG report also furnished that discrepancies in execution of projects, like irregular award
of work, splitting of tenders, and payment at higher rates were noted in border areas
projects of Assam, North-Bihar and Eastern Uttar Pradesh. Emergency Action plans for
only 7% of states have been prepared. Only two out of the seventeen states have carried
out a pre- and post-monsoon inspection of dams.
Solutions: International Case studies for better flood management
1. Flood Resilience: Coupling with ever-changing local,
basin, and global conditions, rivers will continue to
change by interacting human and natural processes
to make flood control difficult. It is risky for cities to
continue to count on FCI to prevent flood damage.
Resilience—the capacity to cope with whatever the future brings—is the best policy to
survive in a stochastic world. Flood resilience is not about flood prevention but concerns
survival through flooding. Tolerance of flooding is thus important to prevent flood
damage in the first place, and it depends on whether the city is adapted to floods. There
exist communities that live with floods, functioning normally through periodic flooding
and even harnessing the ecological benefits of it. Resilience to a disturbance is cultivated
through learning from and adapting to that very same disturbance over time
15
.
2. Flood Proofing the Buildings: Some
traditional strategies are still kept in the
modern concept of flood proofing
16
. Flood
proofing involves permanent or emergency
techniques to prevent or minimize floodwater
damage to the building
17
. Techniques such
as building on fills and flood barrier shields
simply push floodwater elsewhere. Techniques allowing floodwater to enter the structure
without damaging it are more socially responsible. These include building with pilotis
or on buoyant foundation (present in Yokohama, Japan); using water-resistant building
15 From flood control to flood adaptation: A case study on the Lower Green River Valley and the City of Kent in King County, Washington
by Kuei-Hsien Liao (https://link.springer.com/article/10.1007/s11069-013-0923-4
16 Parker DJ (2000) Introduction. In: Parker DJ (ed) Floods, v2. Routledge, London, pp 3–5
17 NHRAIC: National Hazards Research and Applications Information Center (1992) Floodplain management in the United States: an
assessment report, vol 1. Prepared for Federal Interagency Floodplain Management Task Force
Yokohama, Japan has
used flood control and
flood adaptation to
prevent flood damage.
Buoyant buildings or ‘‘amphibian
houses’’ — which sit on dry land
but can float vertically during
flooding — have been built in
Maasbommel, the Netherlands. 30
materials and water-tight seals to resist moisture and mold; and flexible uses of the lower
floors
18
.
3. Revamping the Modern Infrastructure:
Modern infrastructure is often characterized by
rigid structures and operational schemes that
they cannot respond quickly to disturbances
19
.
One strategy of flood adaptation is to break
entire inflexible system into small, simple and
flexible pieces which can fit together to form
new but advanced system. Take the transportation system for example
20
. Flooding would
not disrupt mobility if the transportation system does not depend solely on roadways
and vehicles. The transportation system could be ‘‘amphibious,’’ incorporating both land-
based and waterborne transportation modes that can be easily switched back and forth.
Within a community, mobility could be maintained simply by putting up temporarily
raised walkways, as is practiced in Venice, Italy. Flood adaptation of infrastructure may
not require advanced technology but requires redesigning it at the system level.
4. Open spaces in Urban Areas: It is increasingly common to direct excess floodwater/
stormwater to green spaces to prevent buildings and infrastructure from flooding. These
sunken grassy areas between buildings also function for temporary stormwater retention.
Designed creatively
21
, urban open spaces can function for floodwater conveyance and
storage while maintaining recreational and esthetic values. These open spaces could be
interconnected through surface and underground trenches to become a network to hold
a significant amount of floodwater to prevent buildings and infrastructure from flooding.
A strategic rearrangement of different types of open spaces could maximize human
access. More intensively used spaces such as sports fields, playgrounds, and parking lots
can be assigned to higher ground that floods less frequent in the network, while passive
recreation can take place at lower ground that floods more often.
12-km Indian Bend Greenbelt in
Scottsdale, Arizona, US, and the
324-ha Erchong Flood Spillway
Park in Taipei, Taiwan have been
set aside to convey floodwater
during emergency conditions.
Yonging River Park in Taizhou,
China, and the Bishan-Ang Mo
Kio Park in Singapore are the
urban parks designed as wetlands
or floodplains to allow periodic
flooding.
18 Zevenbergen C, Cashman A, Evelpidou N, Pasche E, Garvin S, Ashley R (2011) Urban flood management. CRC Press, London
19 Hallegatte S (2009) Strategies to adapt to an uncertain climate change. Glob Environ Chang 19:240–247
20 From flood control to flood adaptation: A case study on the Lower Green River Valley and the City of Kent in King County, Washington
by Kuei-Hsien Liao (https://link.springer.com/article/10.1007/s11069-013-0923-4
21 ibid
In Venice Itlay, along with the
water based transportation,
temporarily raised walkways
are used for mobility and
transportation. 31
5. Flood Plain Restoration: Floodplain restoration refers
to excavating channels and ponds, planting aquatic
and terrestrial native vegetation, and placing cobbles,
boulders, and large woods to resemble the natural
floodplain landscape. Floodplain restoration is carried
out in all existing open spaces except in the flood control zone, such that they are either
larger wetlands parks or smaller wetland gardens
22
. Processes naturally accompanying
flooding, such as spontaneous succession, erosion, sedimentation, and debris deposition,
are allowed to occur to periodically rework the landscape. These processes are known
to contribute to diverse topography, high species diversity, and intensified ecological
processes in natural rivers
23
. The ecologically functioning floodplain and riparian
zone could bring a host of ecosystem services to benefit the city directly, such as water
purification through trapping sediments and processing diffuse nutrient pollutants
brought by floods, storm water runoff, and groundwater from upstream and upland
areas
24
. Floodwater stored in the open spaces could restore the process of floodplain
aquifer recharge to prevent subsidence. It would also ensure base flows during the dry
season to help lessen the climate change impact because summer flows are expected to
reduce and it could make fish passage increasingly difficult
25
.
Flood Resilience
Ex. Yo kohama, Japan
Flood proofing of buildings
Ex. Amphibian Houses,
Netherland
Revamping the Infra.
Ex. Venice, Italy
Flood Plain Restoration
Ex. The River Skerne, U.K
Open Spaces
Ex. Indian Bend Greenbelt in
Scottsdale, Arizona, US
Ex
Flood
Management
Figure 5. Various approaches to Flood Management
22 Floodplain Restoration and Storm Water Management: Guidance and Case Study (2009),
http://crwp.org/files/floodplain_restoration_sw_management_march_2009.pdf
23 Naiman RJ, De´camps H, McClain ME (2005) Riparia: ecology, conservation, and management of streamside communities. Elsevier
Academic Press, New York
24 Pinay G, Clement JC, Naiman RJ (2002) Basic principles and ecological consequences of changing water regimes on nitrogen cycling
in fluvial systems. Environ Manag 30(4):481–491
25 Mantua N, Tohver I, Hamlet A (2010) Climate change impacts on streamflow extremes and summertime stream temperature and their
possible consequences for freshwater salmon habitat in Washington State. Climate Change 102:187–223
Some examples of Flood
Plain Restoration are The
Rhine Delta, Netherlands
and The River Skerne, UK. 33
Section 4
Major Flood Events of the
Country: Case Studies and
Lessons Learnt
@UNDP 34
Major Flood Events of the Country: Case Studies and Lessons Learnt
Floods as already described in pervious chapters are the most common yet most destructive natural
disaster in India. Over the years, the intensity of floods has increased and associated destruction
is also on high surge. But every disaster presents an opportunity to redress the situation. It teaches
us some lessons which can be used to prepare ourselves for the future disasters. This chapter
elucidate the major flood events in India and the key lessons learnt from them. This chapter
will help the policy makers to understand the sequence of flood occurrence and post flood best
practices adopted by the affected state governments. But before that given below is the summary
of some major flood events of last few years.
Table 2: Major Flood Evens of Last few Years
State Year Reason Death
Population
Affected
Property Damage
Assam 2012 Heavy Rainfall20 Over 2 Million-
Uttarakhand 2013 Monsoon flood
Nearly
4100
Nearly 4000
villages
21141 Houses and
estimates of 50000 Cr
loss in infrastructure
Madhya
Pradesh
2013 Heavy Rainfall30 40000 people 24000 houses
Jammu 2013 Heavy Rainfall29 2600 villages
15,712 buildings,
houses, agriculture
buildings.
Assam 2014 Heavy Rainfall10
25000
displaced.
-
West Bengal 2015
Cyclone
and rainfall
48
10,000 villages
in 12 districts
38000 Houses
Assam 2015 Heavy Rainfall2
700 villages
15 districts
311,000 people
11000 Hectares crop
Tamil Nadu 2015 Heavy Rainfall500 1.8 million Rs 50000 Cr
Andhra
Pradesh
2016
Long Term
Heavy Rain
15 25000 people
50,000 hectares
of crops.
Bihar 2016
Long Term
Heavy Rain
17
1,500 Villages, 8
districts, 3.753
million.
-
Gujarat 2017
Extreme
Rainfall
224 0.3 million Rs 10 cr 35
Bihar 2017
Long Term
Rainfall
253
180,000
people in
10 districts
25000 buildings
Uttar Pradesh 2017
Long Term
Rainfall
10
2,000,000
people
1182
Buildings
destroyed
Kerala 2018 Heavy Rainfall339 5.4 million
75, 857 cattle, 6.42
lakh houses were
damaged. In addition,
82 thousand hectares
of standing crops
Bihar 2019 Heavy Rainfall116 10 million -
Source: Various Ministerial Sources
Uttarakhand Flood 2013
On 16 June 2013, the State of Uttarakhand suffered mega disaster, one of the worst disasters
in the living memory, causing widespread damage and destruction, besides heavy casualties.
The entire State was hit by very heavy rainfall and flash floods. Though all the thirteen districts
of the State were hit, five districts, namely Bageshwar, Chamoli, Pithoragarh, Rudraprayag and
Uttarkashi were the worst affected. The disaster coincided with the peak tourist and pilgrimage
season, significantly enhancing the number of the casualties and adversely affecting the rescue
and relief operations. The impact of disaster was most pronounced in the Mandakini valley of
the Rudraprayag district. Torrential rains, coupled with the probable collapse of the Chorabari
Lake, led to flooding at the Kedarnath Shrine and the adjacent areas of Rambara, Agastyamuni,
Tilwara, and Guptkashi. Other pilgrimage centers in the region, including Gangotri, Yamunotri
and Badrinath, which are visited by thousands of devotees during the summer season, were also
affected. People in important locations, such as the Harsil, Roopkund and Hemkund Sahib, were
stranded for days together. Over one lakh people were stuck in various regions of the State due to
damaged roads, landslides and flash flood-induced debris.
Effects of Flood
The disaster caused heavy loss of precious lives and extensive damage to private properties and
public infrastructure. More than nine million people were affected by the flash floods. The five
districts namely, Bageshwar, Chamoli, Pithoragarh, Rudraprayag and Uttarkashi were the worst
affected. As far as casualty to human lives is concerned, as informed by the State Government on
09 May 2014, a total of 169 people died and over 4,021 people were reported missing (presumed
to be dead). As per estimates, the disaster has cost Uttarakhand Rs 50,000 crore in infrastructural
loss. Uttarakhand Jal Vidyut Nigam Limited has suffered loss of Rs 77 crore apart from the Rs 50
crore lost in power generation. 36
Table 3: Damage of Uttarakhand Flood
S.NoItemDetails
1. Number of Affected Districts13
2. Number of dead and Missing person (presumed dead) 169+4021
3. Number of houses and cowsheds damaged20141
4. Animals lost11091
Major Findings
1. The disaster essentially occurred due to wide spread heavy rains during the period 14-18
June, which resulted in flash floods in all the major river valleys in the State. Heavy rains
triggered major landslide at numerous locations causing severe disruption in surface
communications.
2. As per the Indian Meteorological Department (IMD), the rainfall in the State between
15 June and 18 June 2013 was measured at 385.1 mm, against the normal rainfall of 71.3
mm, which was in excess by 440%.
Figure 6: The Indian Meteorological Department image (17th June 2013) suggested
heavy rainfall on the higher reaches of Uttarakhand, Himachal and Nepal Himalaya
3. Thus, it can be inferred that the disaster was the result of extra precipitation in a very
short duration of time, which resulted in heavy water discharge in various rivers and
streams.
4. As per the eye witnesses and technical inputs received from various agencies, the possible
causes of the disaster could be summarized as:-
•Collision of western disturbances with monsoon easterlies.
•Excessive precipitation in very short span of time.
•Heavy erosion and the accumulation of large volume of water and sediment
accumulation in major river beds due to excessive rainfall. 37
•Run - off of loose debris, moraine and boulders with excessive force washing
•off all that came in its way.
5. The worst impact of the disaster on human settlements was in the Kedarnath shrine area
(Gaurikund to Kedarnath), the Mandakini valley, the Alaknanda valley (at Gobindghat
and upstream), the Pindar valley, and along the banks of the river Kali in Dharchula area.
6. The Kedarnath area in particular was impacted the most as it suffered unprecedented
devastation with very heavy loss of life and property.
Figure 7: Kedarnath Before and After the Flood
7. The world’s greatest war footing rescue operation was done by all the three wings of
army- Army, Air Force and Navy.
8. All the essential supplies like food, drinking water, medicines, kerosene oil, solar lamps,
etc. were continuously provided by air dropping as well as by surface means. A total of
69 relief camps were run, where 1,51,629 pilgrims/ local residents were looked after.
Some camps continued operating beyond the emergency phase for the local residents.
Approximately 900 trucks of relief material were received from other states and dispatched
to the affected districts from a nodal/ relief centre, set up at Dehradun.
9. Forty-three medical teams comprising of 313 doctors and 4977 para-medical staff, were
deployed and essential medicines, bleaching powder and chlorine were regularly supplied.
Key Takeaways
1. The Uttarakhand flash floods of 16 - 17 June 2013, were one of the worst disasters to
strike Uttarakhand. Though the disaster essentially occurred due to natural hazards, the
vulnerability to the disaster was enhanced manifold by anthropogenic activities. The
disaster revealed several infirmities in our preparedness, which need to be rectified at
the earliest. Some of the important lessons learnt and key takeaways are listed below: - 38
2. Flood Plain Zoning Act regulating construction within the flood plain of a river should
be implemented strictly.
3. For clearance of all hydro-power and other mega projects in ecologically sensitive
regions like Uttarakhand, the Disaster Impact Assessment (DIA) should also be made
compulsory besides Environmental Impact Assessment (EIA).
4. Landslide risk zonation mapping be completed on priority. Development and enforcement
of guidelines, regulations and codes for landslides is critical.
5. Effective stabilization of slopes in shear and weak zones be undertaken using scientific
techniques available at national/international levels.
6. Blasting for developmental activities be avoided as it may destabilize the weak rocks in
mountainous regions.
7. Disaster management plans be regularly reviewed and updated to ensure a functional
structure and accountability for all actions initiated by the State Government to enhance
preparedness.
8. The existing emergency communication system is reviewed regularly to ensure last mile
connectivity during disasters.
9. Investments in infrastructure development related to weather, glacial lakes, river flow
monitoring, etc. are fundamental for improving the accuracy of risk mapping, thereby
allowing more lead-time for warnings provided by IMD, CWC, GSI, NRSC, etc.
10. Tourism related development should not be allowed along the river banks.
11. An effective pilgrim control and regulatory body should be constituted for control and
management of pilgrims/tourists.
12. Stockpiling of essential items like food grains, blankets, medicines, etc. must be ensured
at block/panchayat levels in designated areas for an emergency.
13. Supply of essential commodities by animal transport in remote disaster-prone areas
should be examined on regular basis and included in relevant disaster management plans.
14. The community-based disaster management system at the local level must be given utmost
importance and strengthened through appropriate training and awareness programmes.
15. The mechanism of Incident Response System be established at relevant levels and be
dovetailed into the disaster management plans. State and district agencies should
build their command and coordination structures to support the local command and
coordination structures during an emergency.
16. Need to integrate the contributions of volunteers and non-governmental organizations in
disaster response at the State level. This integration would be best achieved at the district
and local levels. NGOs should be engaged in the planning process for their involvement
in a joint response. 39
Tamil Nadu Flood 2015
Tamil Nadu recorded an exceptionally heavy rainfall during November - December 2015 due to
the North East Monsoons. This unprecedented rainfall took place in four spells:
i. November 8-10, 2015 causing extensive damages, mainly in Cuddalore district;
ii. November 12-13, 2015 severely affecting Kancheepuram town;
iii. November 15-17, 2015 bringing heavy rain to Chennai and the adjoining districts of
Kancheepuram and Thiruvallur; and
iv. November 30 to December 07, 2015 which again hit Chennai and the two adjoining
districts with such great intensity that it marooned large parts of the metropolis causing
severe damage and destruction, and marooning large parts of the metropolis with people
stranded on rooftops for days together, especially in the low-lying areas.
While the first three spells of rains caused flooding in many districts of Tamil Nadu, causing damages
to infrastructure and property and distress to people, the final spell on 2nd December, 2015, flooded
densely populated areas of Chennai Metropolis and adjoining districts of Kancheepuram and
Thiruvallur. This unprecedented rainfall in a short duration led to devastating flash floods causing
major damages to irrigation infrastructure, roads and public amenities as well as loss of human lives
and livestock.
Effects of Flood
It is estimated that around 500 people lost their lives and over 18 lakh (1.8 million) people were
displaced. With approximations of damages and losses ranging from ₹50000 crore (US$7 billion)
to ₹100000 crore (US$15 billion), the floods were the costliest to have occurred in 2015, and were
among the costliest natural disasters of the year.
Figure 8: Chennai Flood
Major Findings
1. The outcome of this unprecedented level of downpour was immediate and disastrous
with major water bodies getting filled and flowing into major rivers, Adyar, Cooum
and Kosathalai, which in turn overflowed into densely populated areas of Chennai City, 40
transforming Chennai into islands of houses in a vast expanse of water many feet high.
This flood put a large number of urban populaces of these areas in great difficulty and
caused severe damages to public and private property. Water entered buildings, even
in first floors in some areas, stranding residents on building rooftops without essential
provisions - food, water and electricity, besides completely damaging all their household
durable assets and motor vehicles, and rendering their homes uninhabitable for long
period to come. People were shifted to temporary shelters set up by the State Government.
2. The rapid urbanization has attributed a lot in the 2015 floods. As a consequence of
urbanization there is reduction in infiltration component of the hydrological cycle, which
will increase the peak run off discharge. It has also led to encroachment of waterways
which reduces their vent away. For example, construction of new runway of Chennai
airport which was flooded during the 2015 rain is built on Adyar River.
3. Chennai during the flood has experienced the “compound wall effect”. Compound walls
are built around almost all institutions to save them from encroachment. This resulted
in alteration of local overland flow paths and some even blocked the local channels.
This turn changed the local flooding patterns, protecting some and endangering some
areas. In some cases, by blocking the natural flow and cross drainage they contributed
in localized flooding.
4. The Chennai city used to have large marsh lands, wetlands and vast tract of pasture land
in the south which used to act as the flood sink of the city. But during 2010-11, along
with marshlands, all other wetlands of Chennai became sites of waste disposal, housing,
commercial and industrial purposes. As city sprawled towards south these marshlands
became fragmented which destroyed flood sink of the city and resulted in citywide
floods
26
.
Key takeaways
1. The Government directed officials to conduct special camps for two weeks to receive
applications from the affected public and issue necessary copies of documents within a
week without collecting any fee. This order was applicable for the flood-affected people
of Chennai, Kancheepuram, Thiruvallur and Cuddalore districts only and was to stay in
force till the completion of the special camps for issue of the above said copies/duplicate
documents. Subsequently, the issue of duplicate documents was initiated free of cost.
2. Each disaster presents an opportunity to learn from it. The Tamil Nadu Government
used the opportunity presented to it after the December 2015 deluge to strengthen
disaster preparedness in the State. A year later, in December 2016, the city was face-to-
face with another extreme weather event, the tropical Cyclone Vardah. This time around,
the government had put in place preparedness measures to deal with any freak rainfall,
26 https://www.slideshare.net/SaranyaNarayanaMoort/chennai-floods-2015-report 41
flood, cloudburst, drought or cyclonic storm incident well in advance. The actions taken
by Government were:
•Special drive to clean channels leading to water tanks is undertaken before the
monsoon season.
•Gaps between Government and Private Sector efforts were bridged. Private
companies came forward, post-disaster, for repairing vehicles, re-phasing loans and
personnel management.
•The State Government had convened a meeting with all Stakeholders to discuss
their
•contingency plans which ensured pre-emptive deployment of response forces.
Additional
•Teams of NDRF, SDRF and Columns from Army, Navy and Coast Guard were
mobilized and pre-positioned in vulnerable areas.
•Similar meetings were held at the district and state level to sensitize hospitals,
educational and industrial organizations, communication service providers and Oil
Companies etc. sensitizing them to be equipped with institutional strategies for
immediate response during disasters. They were also sensitized to make back-up
arrangements to ensure continuity of life saving services, especially in the hospitals.
•A coordinated approach covered timely evacuation and minimum casualties.
•Power supplies were turned off during floods/cyclonic storms.
•Diesel Generators (DG) were shifted to elevated level/upper floors. DG sets of
mobile service operators were damaged during 2015 floods as they were installed
in the basements.
•Sufficient diesel/oil stock with power/oil/telecom companies with proper storage
facilities at safe locations. While only BSNL had enough stock during 2015, each
of these service providers had enough stock during the 2016 North East Monsoon.
•During the 2016 North East Monsoons, at least 5,000 culverts were cleaned
beforehand.
•Similarly, bridges and culvert outlets were also cleaned – 500 metres upstream and
an equal distance downstream.
•When schools were re-opened after floods, water storage tanks were cleaned and
fi lled with fresh water.
•Power supply to government hospital buildings were restored first. Later, step-by-
step restoration of power for other important establishments was done.
•Chlorination of water tanks were done before North East Monsoon season. 42
•Massive exercises for desilting 22,899 tanks and 11,446 kms of water bodies were
taken up. In addition, clearing of blockages on either side of at least 15,870 bridges
and more than 1.4 lac culverts for up to 500 upstream and downstream were also
undertaken and encroachments were removed.
•A total of 6,960 recharge pits were created and 8,657 defunct bore-wells were also
converted as recharge-pits.
•Formation of green corridors in vulnerable areas to facilitate rapid movement of
rescue teams to undertake necessary operations.
Kerala Flood 2018
Kerala State has an average annual precipitation of about 3000 mm. The rainfall in the State is
controlled by the South-west and North-east monsoons. About 90% of the rainfall occurs during
six monsoon months. Kerala experienced an abnormally high rainfall from 1 June 2018 to 19
August 2018. This resulted in severe flooding in 13 out of 14 districts in the State. As per IMD
data, Kerala received 2346.6 mm of rainfall from 1 June 2018 to 19 August 2018 in contrast
to an expected 1649.5 mm of rainfall. This rainfall was about 42% above the normal. Further,
the rainfall over Kerala during June, July and 1st to 19th of August was 15%, 18% and 164%
respectively, above normal.
Due to heavy rainfall, the first onset of flooding occurred towards the end of July. A severe spell of
rainfall was experienced at several places on the 8th and 9th of August 2018. Water was released
from several dams due to heavy rainfall in their catchments. The water levels in several reservoirs
were almost near their Full Reservoir Level (FRL) due to continuous rainfall from 1st of June.
Another severe spell of rainfall started from the 14th of August and continued till the 19th of
August, resulting in disastrous flooding in 13 out of 14 districts.
Table 4: District wise rainfall during 1 June 2018 to 22 August 2018
District
Normal Rainfall
(mm)
Actual Rainfall
(mm)
Departure from Natural (%)
Kerala State 1701.4 2394.1 41 Excess
Kasaragode 2609.8 2287.1 12 Normal
Palakkad 1321.7 2285.6 73 Large Excess
Alappuzha1380.6 1784 29 Excess
Kannur2333.2 2573.3 10 Normal
Ernakulam1680.4 2477.8 47 Excess
Idukki1851.7 3555.5 92 Large Excess
Kollam1038.9 1579.3 52 Excess
Kottayam1531.1 2307 51 Excess 43
Kozhikode2250.4 2898 29 Excess
Malappuram1761.9 2637.2 50 Excess
Pathanamthitta1357.5 1968 45 Excess
Thiruvananthapuram 672.1 966.7 44 Excess
Thrissur1824.2 2077.6 14 Normal
Wayanad2281.3 2884.5 26 Excess
Source: CWC report
Figure 9: Rain gauge stations of Kerala used for rainfall analysis 44
Effects of Flood
Kerala was very badly affected by the flood and lost
nearly 33 were destroyed and about 70 thousand
kilometer of road network suffered major damage.
Centre government approved the assistance of Rs.
3048.39 crore for the floods. The estimated losses
of flood from different agencies is US$ 4.25 billion
displacing over 8,00,000 people in the region.
Major Findings
1. From the analysis it has been found that the dams in Kerala neither added to the flood
nor helped in reduction of flood, as most of the dams were already at FRL or very close
to FRL on 14 August 2018, due to more than normal rainfall in the months of June to
July 2018. It may be noted that, had the reservoir been a few feet below FRL, the flooding
conditions would have not changed much, as the severe storm continued for 3 days and
even for 4 days at majority of the places, and in any case, it would have been necessary
to release from the reservoirs after 1st day of the extreme rainfall.
2. Nevertheless, it is essential to review the rule curves of all the reservoirs in Kerala. The
rule curves need to be meticulously drawn particularly for the reservoirs having the live
storage capacity, of more than 200 MCM in order to create some dynamic flood cushion
for moderating the floods of lower return periods particularly in the early period of
monsoon.
3. The runoff generated from Pamba, Manimala Achenkovil and Meenachil rivers during
15-17, August 2018 rainfall was about 1.63 BCM against the 0.6 BCM carrying capacity of
Vembanad lake. Further, the discharging capacity of 630 cumec of Thottappally spillway
was the other major constraint for the disposal of runoff. Considering the lake carrying
capacity of about 600 MCM and discharging capacity of 630 cumec of Thottappally
spillway and about 1706 cumec present discharging capacity of Thaneermukkom
barrage, it can be concluded that out of 1.63 BCM the runoff generated during the 15-
17, August 2018 rainfall, only about 0.605 BCM runoff was possible to drain out of the
Vembanad lake. The remaining runoff volume of about 1 BCM created the rise of the
water level in the lake and nearby areas. This continuous rising of lake water may be
one of the reasons of overall change in the river hydrodynamics of Pamba, Manimala,
Meenachil and Achenkovil river systems resulting higher water level for a particular
discharge in these rivers. Considering the high rainfall during 15-17, August 2018, the
absence of appreciable storage reservoirs in the upstream in the above rivers along with
the shrinkage of carrying capacity of Vembanad Lake and reduction of the capacity of
Thottappally spillway worsened the flooding in the Kuttanad region and the backwaters
flows to the low lying areas in the upper reaches of the lake. 45
4. The worst affected districts noticed were Wayanad (Kabini sub-basin), Idukki (Periyar
sub-basin), Ernakulam (Periyar and Chalakudi) sub-basins, Alleppey and Pathanamthitta
(both in Pamba sub-basin).
5. In a nutshell, it can be concluded that August 2018 flood in Kerala was due to severe
storm occurrences during 8-9, August 2018 and 15-17, August 2018. The storm of 15- 17,
August 2018 resulted in heavy flooding in Periyar, Pamba, Chalakudi and Bharatpuzha
sub-basins of Kerala. The rainfall during 15-17, August 2018 was almost comparable to
the historical 16-18, July 1924 rainfall of Kerala, particularly in Periyar, Pamba, Chalakudi
and Bharatpuzha sub-basins.
6. The release from reservoirs had only minor role in flood augmentation as released
volume from the reservoirs were almost similar to inflow volumes. In fact, Idukki
reservoir absorbed a flood volume of about 60 MCM during 15-17, August 2018. Even,
with the 75 percent-filled reservoir conditions, the current flood could have not been
mitigated as 1-day rainfall in majority of the area was more than 200 mm and severe
rainfall continued for 3 to 4 days.
Key takeaways
1. It is essential to review the rule curves of all the reservoirs in Kerala. The rule curves need
to be formulated for both conservations as well operations during the flood, particularly
for the reservoirs having the live storage capacity of more than 200 MCM in order to
create some dynamic flood cushion for moderating the floods of lower return periods
particularly in the early period of monsoon.
2. For efficient discharge of flood runoff from Vembanad lake, the approach channels to
Thottappally spillway and the passage of the Thaneermukkom barrage should be widened
taking into consideration the lake hydrology, ecology, saline water intrusion, etc based on
scientific and engineering inputs.
3. In basins like Periyar, Pamba and Achenkovil basins, Kerala should explore the possibilities
of creating suitable storage reservoirs, wherever feasible, for flood moderation and other
multipurpose uses.
4. Loans for recovery of essential household articles lost and damaged during the floods
from our Co-operative Banks and commercial banks were channelized through the
widely networked Women’s self-help group Kudumbashree. The interest payment on
these loans was borne by the Government of Kerala.
5. Camps were held to speedily reissue lost certificates.
6. The Government of Kerala has also entrusted the Kerala State IT Mission (KSITM)
to set up an ICT Platform comprising of Web based backend and a mobile app-based
field survey application to document the flood related damage caused to houses and
commercial establishments in affected districts. 46
Figure 10: Kerala Flood snapshots
Bihar Flood 2019
Many areas of Bihar experienced heavy rains on 21st September. Water entered 80% of the houses
in the capital Patna. The four rivers near Patna, Son, Ganga, Gandak and Punpun, had risen
above the danger mark. The release of 2.75 lakhs cusecs of water from Indrapuri barrage across
the Sone river worsened the situation in river Ganga which caused panic among people living in
Patna. During the flood, some of worst impacted areas were slums in Patna. The slum areas of
Rajendra Nagar area, Ramakrishna Nagar, Kankarbagh, boring road, Nala Road, Gandhi Maidan
were among the worst-affected localities in Patna. The Pataliputra Colony and Kurji were also
severely water logged. These slums faced severe flooding; causing damages to the houses and
remained inhabitable for many days afterwards. The unhygienic living conditions in slums and
water accumulation during and after rain, which made the situation worse and slum areas flood
almost each year now.
Effects of the Flood
28 districts including the capital city Patna is affected. The names of affected districts are Araria,
Kishanganj, Madhubani, East Champaran, Sitamarhi, Sheohar, Supaul, Darbhanga, Muzaffarpur,
Saharsa, Katihar, Purnea, West Champaran, Buxar, Bhojpur, Samastipur, Lakhisarai, Begusarai,
Khagaria, Bhagalpur, Munger, Patna, Saran, Vaishali, Arwal, Jehanabad, Nalanda and Nawada.
Table 5: Damage due to Flood
S.No ItemsNumber
1. Number of Villages affected1846
2. Population affected119 lakh
3. Number of People Evacuated 1.25 lakh
4. People dead116 47
Figure 11: Patna in 2019 Flood
Major Findings
1. Flooding in the city appeared to have been caused by a choked, damaged and dysfunctional
drainage system, and delayed activation of pumps at the sump houses.
2. As per assessment, there are 40 slums are fully affected by the flood and 16825 families
were the victims of flood. In most of the slums water level was 3 feet and 4 slums are not
in accessible condition. The water resources are fully contaminated due to the situation,
66.52 % families were denied by safe drinking water too.
3. Flood in Patna impacted the shelter in slums in various ways. The impact ranges from
complete collapse of houses to partial damages and minor damages. The slum dwellers
need support to help them recover from the impact of flood. In many places, people who
lost their homes were unable to return to their home and getting back to normalcy. 3.3%
of the houses were completely collapsed and these houses will require reconstruction and
major repair work. Shelter support should include options from provision of material
and technical support to labour and cash. It is also observed that the families lost their
homes were staying at relief camps.
4. As per the analysis the livelihood of both male and female were affected badly by the
devastating floods. For female -Domestic works, wage labour, Households chores as
domestic maids, Rag pickers, Tailoring labours were affected. For male’s construction
workers, self-employee, daily wages workers, rickshaw puller, street vendor’s labours were
affected. It indicates the incapacity of the community members to have proper nutritious
food availability in their households.
Key Takeways
1. In order to reduce flood damage in future the effective way is to prevent development
in flood prone lands. So the best approach is zoning of such land, however the land use
planning as discussed should be adopted so the land contains an outlined use. Zoning
can be used to scale back damages from flooding and must be so flexible to acknowledge
that different types of land use are compatible. 48
2. The storm water drainage system is unknown to Patna; what exists in some parts is a
sewage network that is meant to double as drainage. At the best of times, this network
lies overburdened with unrelieved human effluence. Therefore, there is need for regulated
development of the city. Funds to develop the proper sewerage and storm water drainage
system in the city can be taken under Smart City Mission, National Mission for clean
Ganga and AMRUT.
3. Special drive to clean channels leading to water tanks is undertaken before the monsoon
season.
4. All urban water bodies will be protected. Efforts will also be made to restore water bodies
by de-silting and taking other measures. Efforts will also be made to revive water bodies
that have been put to other uses. Water bodies will be an integral part of the stormwater
system.
5. Low-lying areas should be reservedfor parks and other low-impact human activities,
Wherever unavoidable, buildings in low lying areas should be constructed on stilts above
the High Flood Level (HFL)/ Full Tank Level (FTL),
6. For chronic flooding spots, alternate locations may be explored for accommodating
people staying there, Buildings should be constructed on stilts after taking into account
the stability of slopes.
7. The nallahs/ drains/ watercourses/ flood plains should be clearly delineated and
boundaries fixed in new developments. There will be strict enforcement of the relevant
byelaws/regulations in the new layouts.
Hyderabad Flood 2020
On October 14, 2020, after night long rain, the daily rainfall recorded at the weather monitoring
station of the India Meteorological Department was 19.2 cm. The water drowned the roads and
inundated homes worth crores of rupees in upmarket localities such as Manikonda, Gachibowli,
Rajendranagar and Madhapur on the western part of the city.
Effects of Flood
As per the Greater Hyderabad Municipal Corporation data, parts of the Nadeem Colony
abutting Shah Hatim Talab had water rise to 12 feet after the downpour on October 13. Devi
Nagar and Chudi Bazaar colonies in Goshamahal saw the water rise to 10 feet. Similar were the
scenes in several other colonies like Hafiz Baba Nagar, Al Jubail Colony, Ghazi-e-millat colony,
Chandrayangutta, Ghouse Nagar, Moin Bagh, Edi Bazaar, Talab Katta and Riyasat Nagar in the
old city area. All these localities witnessed water rise to 4 feet. Close to two dozen colonies around
LB Nagar too faced a similar fate. 49
33 lives were lost to heavy rains and floods in the city, with the Greater Hyderabad Municipal
Corporation estimating that at least 37,409 families were affected. The Municipal Administration
minister pegged the city’s losses at Rs 670 crore.
Figure 12: Hyderabad Flood 2020 Snapshots
Major Findings
1. Much of the damage was due to the overflowing of lakes — in particular, the Hussain
Sagar Lake in the middle of the city and the breaching of storm water drains. Construction
over lake beds and encroachments of drainage channels have been identified as problems
that have exacerbated flooding and inundation in the city.
2. According to estimates, since last few decades water bodies have drastically come down
from 1 lakh to 185 within the greater Hyderabad Capital Region. Out of 185 lakes for 75,
the surplus weirs and courses are completely closed. These lakes used to work as flood
sink of the city. In absence of these, city is more vulnerable to any natural disaster.
3. Hyderabad and even Telangana state do not have a disaster management plans. They are
not fully utilising the doppler radar, which can give advance and precise warnings. The
focus is on disaster response, even while allowing unplanned growth.
Key Takeaways
1. Hyderabad urgently needs to expand and remodel its drainage system. Besides lakes
and canals, wetlands and watersheds play a vital role in absorbing excess rainfall, but
regrettably, rapid urbanization in the twin cities has resulted in the loss of a large portion
of the wetlands.
2. An analysis by the Centre for Science and Environment in 2016 revealed that 3,245
hectares of water bodies were lost in Hyderabad between 1989 and 2001. In the long
term, the effects of flooding due to deluges can only be mitigated if urban planners take
into account the hydro-geology of cities and ensure that construction, development and
land occupation do not take place in a way that reduces the area of wetlands.
3. Engineering solutions like linking all the 185 tanks in and around Hyderabad with
modern technology to divert flow of water during deluge coupled with measures to 50
control flood (rainwater) flow by restoring ‘nalas’ and removing encroachments would
help prevent flooding and inundation.
4. The nallahs/ drains/ watercourses/ flood plains should be clearly delineated and
boundaries fixed in new developments. There will be strict enforcement of the relevant
byelaws/regulations in the new layouts.
5. An underground drainage system should be constructed to flush rainwater from any
place, whether it is at a high or low elevation, till the final place of discharge, like the
Musi river in Hyderabad’s case 51
© psmag.com
Section 5
Flood Management and
Border Areas Programme
(FMBAP) 52
Introduction
The projects for flood management and control are formulated and implemented by respective
state governments/Union Territories from their own resources and as per their priority. Central
Government provides financial assistance to states/UTs for implementing some projects in critical
areas. Central Govt. has been providing financial assistance through a scheme called Flood
Management Programme (FMP) since XI Plan. The scheme since its inception has undergone
several changes as per demands of states/UTs and also on account of various directions and
policies of Govt. of India.
Flood Management Programme (FMP)
During X Plan, following four schemes were sanctioned to provide central assistance to the flood
prone states to take up flood control and river management works in critical areas:
a. Critical Anti-erosion works in Ganga Basin States (Centrally Sponsored Scheme);
b. Critical Flood Control and Anti Erosion Schemes in Brahmaputra and Barak Valley
States (State Sector Scheme);
c. Improvement of Drainage in critical areas in the country (State Sector Scheme); and
d. Critical Anti-erosion Works in Coastal and other than Ganga Basin States (State
Sector Scheme).
The Flood Management Programme (FMP) was implemented during XI Plan with an outlay of
Rs. 8000 crore after subsuming above four schemes. Under the Programme, central assistance was
provided to State Governments for taking up works related to river management, flood control,
anti-erosion, drainage development, flood proofing, restoration of damaged flood management
works and anti-sea erosion. The pattern of funding was 90 % (Centre):10 % (State) for Special
Category States and 75 % (Centre): 25 % (State) for General/ Non-Special Category States. During
XI Plan, 420 works with a total estimated cost of Rs.7857.08 crore were approved under FMP.
Central assistance to the States/UTs to the tune of Rs. 3566.00 crore was released during this plan
period. During XII Plan, the Government of India approved continuation of “Flood Management
Programme” with an outlay of Rs.10000 crore. The funding pattern under the Scheme for the
special Category States covering the North Eastern States, Sikkim, Himachal Pradesh, Jammu &
Kashmir and Uttarakhand was 70% (Centre) : 30% (State) and for General States – 50% (Centre)
: 50% (State). The project eligibility criteria for inclusion under the Scheme for special Category
States was projects with estimated cost Rs 10 crore and above with Benefit Cost ratio more than
1.0 and for General States it was Rs 40 crore and above with Benefit Cost ratio more than 1.0. The
inclusion of projects, inter-se priority of the works etc. was decided through an Inter-Ministerial
Committee headed by Secretary (Water Resources), Government of India. During XII Plan (up
to 31-03-2017), 102 works with a total estimated cost of Rs.5381.28 crore were approved under
FMP. Central assistance to the States/UTs to the tune of Rs. 1307.07 crore was released during
this plan period. 53
River Management Activities And Works Related To Border Areas
During XII Plan, Government of India had approved implementation of the Central Sector
Scheme “River Management Activities and Works related to Border Areas” with a total outlay of
Rs 740.0 crore to cover the following continuing and new activities.
a. Hydrological observations and flood forecasting on common border rivers with
neighbouring countries,
b. Investigations & Pre-construction activities for WR projects on common border
rivers,
c. Pancheshwar Development Authority (PDA),
d. Grant in Aid to States/UTs for flood management/anti –sea erosion works,
e. Maintenance of flood protection works of Kosi & Gandak projects (in Nepal),
f. Flood Protection/anti-erosion works in the border areas with Bangladesh and
Pakistan by States and Flood Management/anti-erosion works/anti- sea erosion
works in UTs,
g. Activities of Ganga Flood Control Commission (GFCC).
The RMBA being specific to activities in border areas with neighboring countries viz. Bangladesh,
Nepal, China, Pakistan and Bhutan and for taking up Anti Erosion/Flood Management schemes
on rivers on international borders and Union Territories, the projects/ works are funded with
100% central assistance. A Grant-in-Aid of Rs 563.61 (Rs 3401.41-XI Plan & Rs 223.2 Cr XII
Plan) were released to various states under this Scheme.
Flood Management and Border Areas Programme (FMBAP)
The Outcome review/Third party evaluation of the two Plan Schemes ‘Flood Management
Programme (FMP)’ and ‘River Management Activities & Works related to Border Areas
(RMBA)’ implemented during XII Plan was carried out by a Committee constituted under the
chairmanship of Director, National Institute of Hydrology, Roorkee. The Outcome Review/Third
Party Evaluation Committee recommended that only those schemes which are very critical for
long-term protection against floods, costing above Rs. 40 crores, may be considered for funding
by Union Government under Flood Management Programme. Other schemes / works may be
taken up by the concerned State Governments through State Plan allocation. Since the FMP and
RMBA schemes have common nature to some extent, the modalities for merging the two schemes
in a hybrid/umbrella scheme may be explored and both the schemes may be merged into a single
scheme. For the period 2017-18 to 2019-20, a comprehensive scheme titled “Flood Management
and Border Areas Programme (FMBAP)” with an outlay of Rs 3342.00 Cr (FMP-Rs 2642 Cr &
RMBA-Rs 700 Cr) with merged components from the XII Plan Schemes viz. Flood Management
Programme (FMP) and River Management Activities & Works related to Border Areas (RMBA)
schemes was approved by the Union Cabinet. The funding pattern for works in general category 54
states under FMP component remained as 50 % (Centre): 50 % (State) and for projects of 8 North
Eastern States, J&K, Himachal Pradesh and Uttarakhand, the funding pattern continued to be
70 % (Centre):30 % (State). Whereas, RMBA component being specific to activities in border
areas with neighboring countries viz. Bangladesh, Nepal, China, Pakistan and Bhutan the funding
pattern continued as 100% central assistance. During the period 2017-18 to 2019-20 Rs. 1536.95
Crore has been released as Grant-in Aid to the States under FMP component and Rs. 554.16
Crore has been spent under RMBA component of FMBAP thereby making a total of Rs. 2011.91
Crores.
Salient Features Of FMBAP
Some of the salient features of FMBAP Scheme as approved by Union Cabinet for the period
2017-18 to 2019-20 are-
i. FMBAP Scheme is for completion of the spill over works in respect of 83 ongoing
projects, already approved under FMP during Xl & Xll Plan as assessed/required and
dropping 16 ongoing projects in which the current work progress is less than 50 percent.
ii. The Scheme has a provision only for clearing the committed liabilities of ongoing and
completed projects as per extant Xl/ Xll Plan guidelines and that no new project to be
included under FM component of FMBAP Scheme till then.
iii. In this Scheme, Administrative Ministry has been authorized to decide inter sub-
component and inter-item redistribution of provisions within the overall cost of the
respective components of FM (Rs. 2642 crore) and RMBA (Rs. 700 crore) under the
Scheme.
iv. The techno-economic Appraisal and Investment Clearance of flood management works
under FMBAP continued to be done as per the procedures laid down by Department of
Water Resources, River Development & Ganga Rejuvenation.
v. The Inter-Ministerial Committee (IMC) headed by Secretary (WR, RD & GR) with
members drawn from Ministry of Finance (Department of Expenditure), Planning
Commission (Now NITI Aayog) and other line Ministries / Departments/Organisations
constituted during XII Plan to be continued under the scheme for FMP component. For
the works under RMBA component, the procedure is proposed to be in accordance with
the bilateral mechanism with neighboring countries.
vi. For release of Central assistance to State Government for Projects included under FMP,
detailed guidelines of DoWR, RD & GR of October, 2013 describing procedures about
submission of documents, budget provisions, Utilisation Certificates, monitoring reports,
Concurrent Report, instalments for release of central share to States, etc is followed.
FMBAP Scheme For The Period 2021-26
There has been consistent demand from all the flood prone states that Government of India 55
should continue to provide financial assistance to flood management projects in the States and
new projects should be included for central funding. It is, accordingly, recommended that FMBAP
scheme may be continued for the period 2021-26, i.e., co-terminus with the period of 15th Finance
Commission with the provision of inclusion of new projects for funding under the scheme.
Keeping in view the persistent demand from States to include new schemes under central funding
as no new projects have been included for central funding since the year 2015, the proposed
outlay of the FMBAP Scheme for period 2021-26 shall be around Rs. 15,000 Crores. Based on
suggestions received from the States and issues encountered during course of implementation of
existing scheme, following suggestions/modifications are proposed in the new scheme.
a. Threshold Limit for Inclusion:
The current threshold limit for inclusion of new schemes for funding under FMBAP
needs to be relooked into. It is proposed that flood schemes which are very critical
for long-term protection against floods, costing above Rs. 40 crore with BC ratio more
than 1.0, may be considered for funding under Flood Management Programme works
in general category States. Whereas, for 8 North Eastern States, J&K, Himachal Pradesh
and Uttarakhand, flood schemes which are very critical for long-term protection against
floods, costing above Rs. 20 crore with BC ratio more than 1.0, may be considered for
funding under FMBAP.
b. Funding Pattern:
There has been demand from Special category states that funding pattern under the
Scheme should be 90 % (Centre): 10 % (State) instead of current 70 % (Centre): 30 %
(State). It is pertinent to mention that funding pattern of Centrally Sponsored Schemes
is guided by the directions of Ministry of Finance. As per the OM of Governing Council
Secretariat, NITI Aayog dated 17th August, 2016 the funding pattern for new flood
management schemes could be considered as follows (however, it will depend on the
provisions applicable at the time of approval of new Scheme)
FMP Component: The funding pattern for works in general category States to be 60 %
(Centre): 40 % (State) and for projects of 8 North Eastern States, J&K, Himachal Pradesh
and Uttarakhand, to be 90 % (Centre): 10 % (State)
RMBA Component: The RMBA component is specific to activities in border areas
with neighboring countries viz. Bangladesh, Nepal, China, Pakistan and Bhutan. The
projects/ works continue to be funded as 100% central assistance.
c. Techno-Economic Appraisal of Flood Management Schemes/Projects:
For inclusion of flood management scheme in FMBAP, project reports are required to
secure all mandatory clearances from the specified Committees including State Technical
Advisory Committee, State Flood Control Board, Forest Clearance, technoeconomic
viability acceptance of CWC/GFCC/Advisory Committee of DoWR, RD&GR (as
applicable) and investment clearance by the Investment Clearance Committee of DoWR, 56
RD&GR . The general procedure(s) of techno-economic appraisal has been described
in the erstwhile Planning Commission communication No. 16(12)/12003-WR dated
29.06.2012. There have been demands from States for considering enhancement of
the existing powers of the State Government for clearance of flood control schemes. A
Committee with the approval of Secretary (WR, RD & GR) under the chairmanship of
Chairman, CWC was constituted for to review the above existing instructions of Planning
Commission, stipulating the procedures and existing powers of the State/UT Government
for the sanction of flood control, drainage and anti-water logging schemes. The revision
of monetary limits for appraisal of flood control schemes as per the recommendation of
Committee as well as the existing powers are mentioned in table below.
Table 6: Revision of monetary limits for appraisal of flood control scheme
S. No. Appraising Authority Existing
As proposed by Committee
headed by Chairman, CWC
1. State TAC < Rs. 12.50 Crores<Rs. 25 Crores
2.
GFCC (for Ganga Basin) /Regional
Offices of CWC
(other than Ganga Basin)
> Rs. 12.5 Crore
and < Rs. 25 Crores
>Rs. 25 Crores
< Rs. 40 Crores
3.
Advisory Committee of DoWR based
upon appraisal by
GFCC/CWC
>Rs. 25 Crores > Rs.40 Crores
It is proposed to revise the limits as recommended by the said Committee
d. Monitoring Mechanism of FMBAP Projects:
Extensive and regular Monitoring of the schemes with latest technology using remote
sensing tools to be carried out by the Central Water Commission (CWC), Ganga
Flood Control Commission (GFCC) and Brahmaputra Board (BB) in their respective
jurisdiction. The above central organizations to play an active role at formulation stage
of the DPRs for flood management works by the State Governments in their respective
jurisdiction and provide necessary guidance in preparation/ submission of the funding
proposals in time for appraisal and release of central assistance. The possible use of
UAV along with satellite technology to be explored for monitoring of the projects and
a comprehensive dashboard to be created for mapping of flood management projects
under FMBAP.
e. Utilization Certificate:
As per extant guidelines, for release of installment in any year, the Utilization Certificate
(UC) for the full amount of central assistance releases made in previous year is mandatory. 57
Since second installment is normally released at the far end of previous Financial Year,
the proposals for central assistance for a fresh year gets delayed on account of arranging
UC of the previous year. In order to streamline this, release of an installment of Central
share not to be predicated on producing Utilization Certificates (UCs) of the last
instalment and that release to be based on the furnished UC of the penultimate (last to
last) release of Central share as per NITI Aayog OM dated 17th August, 2016.
f. Reimbursement of Central Assistance:
In respect of projects included under FMBAP Scheme for central funding, if any,
expenditure is made by the State Government towards the Central share from its own
resources, the same shall be reimbursable. This is in line with NITI Aayog OM dated
17th August, 2016. However, any expenditure made by the States prior to inclusion of
project in FMBAP Scheme shall not be eligible for reimbursement.
g. Installments for release of Central Assistance:
The release of central assistance is done in two installments. In view limited working
season for flood management schemes/ anti erosion works which is broadly between 15th
November to 31st May, the States Governments particularly from the special category
states are demanding that the first installment of eligible central assistance needs to be
raised from current level of 50%. Accordingly, it is proposed that the first installment in
respect of all States may be kept as 90% of eligible central Share. However, it would be
governed by extant guidelines of Ministry of Finance
h. Scope of RMBA Component:
The present scope of RMBA component allows maintenance of flood protection works
of Kosi & Gandak projects in Nepal territory only and 100 % Reimbursement is given to
the State Governments based upon the recommendation of India-Nepal Kosi High Level
Committee (KHLC) and Gandak High Level Standing Committee (GHLSC). Considering
the importance and significance of the inundation issues along India-Nepal Border, the
current scope of RMBA Scheme may be extended for flood protection works in India
on all cross border/border rivers for all neighbouring countries in addition to Kosi and
Gandak in Nepal territory as per bilateral agreement. Ministry of External affairs has
strongly expressed to include the 100% central funding of river training works on cross
border rivers with Nepal due to its international importance. Accordingly, it is proposed
that while the existing works/activities shall continue to be part of RMBA component of
FMBAP Scheme additional provisions shall be kept for taking up of river training works
on all cross border/border Rivers. A comparison of existing and new provisions under
RMBA component is at Annexure II. 59
© psmag.com
Section 6
National Water Model for
India and preparation Flood
Management Plans 60
Use of Technology
When it comes to disaster mitigation and planning, technology holds a very important role. The
latest space technology which includes the use of remote sensing can prove to be an ace for flood
control and mitigation. Moreover, use of GIS and Unmanned Arial Vehicles can turn around the
whole planning system.
1. Space Technology: In order to plan, execute, monitor and maintain the flood management
works, it is necessary to acquire timely and reliable information about the flooded areas,
watershed areas, river behavior and configurations, etc. prior to floods, during floods,
and after floods. Such information is difficult to acquire in time for decision making
from conventional ground survey methods, which are strenuous, time consuming
and full of limitations, especially while studying floods of large river basins. Satellites
due to their remote sensing and data transmission capabilities are the ideal methods
to study floods not only in smaller basins but also the large basins. The distinctive
ability to provide comprehensive, synoptic and multi-temporal coverage of very large
areas at regular interval and at high frequent time periods make them very valuable
in mapping, studying monitoring and managing flood dynamics. They can efficiently
provide information on i) flooded and congested areas ii) extent of destruction from
the flood iii) river configuration iv) status of dams and watershed structures v) collect
data from various sources and synthesize them to give a holistic picture of the calamity.
They are also useful in delineating the boundaries of flood prone zones and suggesting
the appropriate places where structural measures can be adopted to manage flood. Some
of the applications of Space Technology are development of early warning systems,
monitoring & assessment, preparation of developmental plans for relief, rehabilitation and
post-flood assessment. Space technology through Geostationary satellites, meteorological
satellites and communication satellites can play an important role in providing valuable
information particularly useful in the flood assessment, mitigation and preparedness
phases of floods besides weather monitoring and effective communication for early
warning and management of the floods.
2. GIS application in flood management: A Geographic Information System is a tool
that can assist in identifying flood prone areas. The geographical information is stored
in a database that can be analyzed by overlaying or intersecting different geographical
layers and thus flood prone areas can be identified and targeted for mitigation or stricter
floodplain management practices.
3. Unmanned Aircraft System (UAS): United States of America for a very longer time is
using UAS for flood forecasting, observing dams, detecting levee failures and watershed
structures and assessing the damage brought down by flood. Such technology can help
to provide timely and secure data. 61
Development of National Water Model for India
The National Water Model (NWM) is a hydrologic modelling framework developed in USA that
simulates observed and forecast streamflow over the entire continental United States (CONUS).
The NWM simulates the water cycle with mathematical representations of the different processes
and how they fit together. This complex representation of physical processes such as snowmelt
and infiltration and movement of water through the soil layers varies significantly with changing
elevations, soils, vegetation types and a host of other variables. Additionally, extreme variability
in precipitation over short distances and times can cause the response on rivers and streams to
change very quickly. Overall, the process is so complex that to simulate it with a mathematical
model means that it needs a very high powered computer or super computer in order to run in
the time frame needed to support decision makers when flooding is threatened
27.
The NWM runs in four configurations
28
:
•Analysis and assimilation provides a snapshot of current hydrologic conditions
•Short-Range produces hourly forecasts of streamflow and hydrologic states out to 15
hours
•Medium-Range produces 3-hourly forecasts out to 10 days
•Long-Range generates 30-day ensemble forecasts.
The NWM improves the National Weather Service’s ability to deliver impact-based decision
support services nationwide by providing “street level” water information and guidance (e.g.,
flood maps), as well as serve as the foundation for additional private sector water services.
NWM in India: A similar kind of National Water Model may be attempted in India with the help
of some scalable models details of which are given in the graphical format. These models can be
used together to feed the information into a decision support system which can provide support
services to Nation by predicting and forecasting flood and other water related events
1. Using Internet of Things (IoT) sensors
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27 https://water.noaa.gov/about/nwm
28 https://toolkit.climate.gov/tool/national-water-model 62
Advantages of the model:
i. Brings near real-time visibility on data;
ii. Records rainfall, Temperature, Levels, Flow ;
iii. Cloud based storage means can be accessed anywhere and safe;
iv. Cloud Computations.
2. Hydrological Model Based Flood Forecasting
The transformation of precipitation into channel flow is a highly complex physical process.
A common practice is to use a hydrological model to represent watershed processes. Many
different hydrological models have been produced by government agencies, universities,
and private companies. They offer a wide range of process simulation options, differing
levels of complexity and data requirements, and various degrees of technical support
and training. Their application also depends on the forecasting objective, geographical
and environmental factors, as well as institutional capabilities. Therefore, the selection
of a “best choice” flood forecasting model needs to be based on a systematic approach
29.
Advantages of the model:
i. Leverages historical data and near real-time data for computation
ii. Uses plethora on advanced techniques including GIS
iii. Model requires minimal installation of sensors
3. AI Based Flood Forecasting:
The need for reliable, easy to set up and operate, hydrological forecasting systems is
an appealing challenge to researchers working in the area of flood risk management.
Currently, advancements in computing technology have provided water engineering
with powerful tools in modelling hydrological processes, among them, Artificial Neural
Networks (ANN) and genetic algorithms (GA). These have been applied in many case
studies with different level of success. These AI and ML based models feed data like
rainfall or temporal flow and predict the flow flows at point of Interest.
Figure 14: AI Based Flood Forecasting
29 http://www.wmo.int/pages/prog/hwrp/documents/FFI/Intercomparison_of_flood_forecasting_models_for_review.pdf 63
Advantages of the Model
i. Leverages historical data for computation
ii. Model uses the recent Rainfall and corresponding flow to depict reality
iii. Model gives more accurate results over time
Based on the above models, National Water Model can be prepared for the country. The NWM
India will be able to do the short term, medium term and long-term flood forecasting. In the
event of floods, the alert can be disseminated through SMS or mobile applications. The post flood
assessments can be made through satellite imagery or other applications like Drones, UAS etc.
₹
Figure 15: National Water Model for India
Flood Management Plans
The most effective way of reducing the risk to people and property is through the production
of flood management plans. The flood management plans include all the activities and related
preparation in the eventuality of flood. Therefore, it is very important for at-risk communities to
develop a comprehensive Floodplain Management plans. A comprehensive plan should include
the following activities:
•Identification of flood prone areas: village/block/tehsil or taluka/district wise and
delineation thereof on maps.
•Preparation of flood vulnerability/flood risk/ flood hazard maps.
•Putting in place Decision Support System (DSS) for FM including preparedness, rescue,
relief, rehabilitation and recovery.
•Developing reliable and country-wide Flood Forecasting and Warning systems in the
public domain for all the flood prone areas with sufficient lea time and giving information 64
on prevailing water levels, area inundated, expected water levels and area likely to be
inundated with depth and duration of flooding in a manner easily understood by all.
•Implementation of adequately designed, maintained and sustained structural measures
for prevention of flooding and improvement of drainage, leading to feeling of security
against floods and overall development in the flood prone areas.
•Operation of reservoirs optimising benefits of flood moderation, irrigation, hydropower,
drinking and industrial water supply. Enactment and enforcement of laws for regulating
developmental activities in flood plains and prevention of encroachments into flood
plains and waterways, thereby reducing flood vulnerability/risk.
•Making the existing and new buildings and infrastructure such as roads, railway lines,
bridges, canals, etc. capable of withstanding the fury of the floods and not enhancing
flood vulnerability/risk.
•Preparation of states and districts FMPs.
•Training of trainers in professional and technical institutions on FM issues.
•Training of professionals like engineers and architects for incorporating measures that
can sustain the structures and provide shelter to people during floods in flood prone
areas.
•Implementing demonstration projects on flood-proofing in flood prone areas.
•Launching public awareness campaigns on flood safety and risk reduction and sensitizing
all stakeholders to flood problems and mitigation in flood prone areas.
•Undertaking regular inspections of structural works such as embankments, drainage
channels, protection works, etc. and implementation of required restoration/strengthening
measures prior to and emergency measures during floods in the flood prone areas by
the respective agencies/departments.
•Developing an inventory of the existing built environment.
•Assessing the flood risk and vulnerability thereof.
•Developing guidelines for flood-proofing measures and for all existing critical lifeline
structures and major public buildings in flood prone areas in a phased manner.
•Preparation of FMPs plans by schools, hospitals, industries, entertainment houses, major
shopping complexes etc. in flood prone areas and carrying out mock drills for enhancing
preparedness.
•Strengthening the Emergency Operation Centers network.
•Streamlining the mobilization of communities, NGOs, civil society partners, police force,
Civil Defence, the corporate sector and other stakeholders on occurrence of floods. 65
•Preparing community and village level Flood Management Plans ( FMPs).
•Creating an inventory of resources for effective response to floods in flood prone areas.
•Strengthening research capability of various academic and research institutions for
takingup development of cost-effective Flood Management measures.
•Preparing documentation on lessons from previous floods and their wide dissemination.
•Preparing an action plan for the upgradation and integration/interlinking of the FM
capabilities of the CWC, IMD and the state governments in flood forecasting with clear
roadmaps and milestones.
•Developing appropriate scheme for insurance of lives, crops and private and public
properties in flood prone areas by collaborating with insurance companies and financial
institutions.
•Operationalising the NDRF battalions.
•Operationalising the SDRF battalions in the states.
•Allotment for land for the Regional Response Centres.
•Strengthening the medical preparedness for effective response to prevent spread of
epidemics especially water-borne diseases after floods. 67
©Peter Gillespie
Section 7
Recommendations 68
Non-Structural Measures
•Ministry of Jal Shakti to continuously impress upon the States about the need to take
action to implement the flood plain zoning approach.
•(Action: Ministry of Jal Shakti and NITI Aayog - The ministry along with NITI Aayog
within next 6 months should conduct a workshop with states regarding the problems
and situations faced by them while adopting Flood Plain Zoning. Ministry of Jal Shakti
may also propose some financial or other incentives for the states implementing the
flood plain zoning)
•Continuous efforts to be made towards modernization in collection of hydrometeorological
data, flood forecast formulation and forecast dissemination. Further simplified data
dissemination policy for use of data by the States particularly regarding trans-boundary
rivers to be developed.
(Action: CWC and NITI Aayog- CWC within next 1 year should frame a simplified
data dissemination policy for use of data by the States particularly regarding trans-
boundary rivers and make a presentation to Vice Chairman, NITI Aayog)
•Focus on scientific research in development of Model based system to forecast flash
flood with sufficient lead time will provide a much-needed relief from menace of flash
floods.
(Action: CWC- within next 3 years, monitoring agency will be NITI Aayog, time to time
presentations on the research will be done to Vice Chairman, NITI Aayog)
•Rule curve/ level for all reservoirs should be prepared & updated accounting change in
rainfall trend and changing demand over the years due to rapid increase of population,
urbanisation and industrialisation. Rule curves of major reservoirs, where flood cushion
is not in-built, need to be reviewed to have some dynamic flood cushion for major part
of the flood season.
(Action: State Government, CWC and NITI Aayog: State Governments/ Dam owners
should prepare the rule curve for all reservoirs within next 1 year and submit it to CWC.
Rule curves of major reservoirs, where flood cushion is not in-built, will be reviewed and
updated by CWC within next 1 years. The progress regarding to it should be intimated to
NITI Aayog on quarterly basis.)
•Inflow forecasting to be made mandatory for all reservoirs and Emergency Action
Plan (EAP) for dam break/extreme flood situations should be ready including flood
inundation maps and flood waves & time analysis. Further, SoP for water releases
to be made mandatory for all reservoirs. Water release information for downstream
areas should be provided with sufficient response time and channel encroachment in
downstream stretches of dams to be removed. 69
(Action: CWC and State governments- Within next 3 years, progress made in these
directions will be intimated to NITI Aayog on quarterly basis.)
•Passing of Dam Safety Bill to be taken up on priority and Integrated Reservoir Operation
(IRO) for flood management to be promoted by giving Central Government a proactive
role and mandate.
(Action: Ministry of Jal Shakti: Next session of Parliament)
•Emphasis to be laid on application of space technology and use of State –of the- art
technology in spatial flood early warning and near real-time monitoring and mapping
of floods. The National Water Model as proposed in the last sections may be taken up
on pilot basis in Koshi and Gandak River Basins.
(Action: CWC - Within next 3 years, monitoring will be done by NITI Aayog)
•In order to check the threat of urban flooding, each city should have their flood
mitigation plans (floodplain, river basin, surface water, etc.) amalgamated within the
overall land use policy and master planning of the city.
(Action: Urban Local Bodies, State Governments Ministry of Housing and Urban
Affairs, NDMA, Ministry of Jal Shakti and NITI Aayog- Urban Local bodies within
next 1 year should prepare the Flood Management Plans amalgamating them with overall
land use policy and master planning of the cities. MoHUA , NDMA, Ministry of Jal Shakti
and state governments should provide hand holding services to ULBs. A workshop may
be conducted within 6 months by these agencies along with NITI Aayog to encourage the
ULBs to make such plans. The funds for implementation of plans can be sourced from
Smart City Mission and AMRUT as major drainage works and city rehabilitation can be
covered under these two programmes.)
•The state governments should strengthen FM education by facilitating the incorporation
of the best available technical and non-technical inputs on FM in educational curricula.
This effort will address the multi-faceted aspects of FM covering the pre- and post-
flood situations that include the inculcation of a culture of prevention, mitigation and
preparedness as well as effective and prompt response, relief, rehabilitation and recovery.
Case histories of major flood events will be used as valuable inputs in the process.
(Action: State Government- within next 3 years, monitoring agency will be MHRD which
will quarterly send report on the steps taken to NITI Aayog)
•Specially designed public awareness programmes should be developed by the state
governments/SDMAs/DDMAs for addressing the needs of citizens. The people should
be made aware of the need to keep special kits containing medicines, torch, identity
cards, ration card and non- perishable eatables such as dry fruits, roasted chana etc.
ready before commencement of monsoon so that, they can carry the same with them,
in case, they have to be evacuated .The community will also be trained for preparation
and utilization of improvised flood rescue devices with household articles. 70
(Action: State Government, SDMAs, DDMAs- Within next 3 years, monitoring agency
will be NDMA which will quarterly send report on the steps taken to NITI Aayog)
•The state governments should proactively support application-oriented research and
developmental activities to address contemporary challenges, generate solutions, and
develop new techniques to improve their sustainability in floods.
(Action: State Governments- Within next 3 years; MoJS should conduct a biannual
conference to review these researches)
Structural Measures
•The long-term structural solution to floods lies in construction of large storage reservoirs
which moderate flood peaks by adopting appropriate reservoir operation schedule.
Government of India has to expedite implementation of storage projects in Nepal as per
bilateral agreements. In order to mitigate Brahmaputra flood, flood storage is essential
in Subansiri, Siang, Dibang and Lohit sub basins and projects that have been identified
in these sub-basins to be taken up for expeditiously. Likewise, to mitigate Barak floods,
storage projects in the basin to be taken up.
(Action: Ministry of Jal Shakti- Identify the storage projects In Nepal; Prepare their
feasibility studies; Prepare the DPRs of the identified projects in Next 3 years; Expedite
the constructions of identified projects like Upper Siang, Lower Subansiri and fix a non-
extendable timeline for the initiation of their proper functioning; Identify the storage
projects in Barak Basin and prepare their feasibility studies in next 3 years. Ministry of Jal
Shakti will present the quarterly progress regarding these matters to Vice Chairman, NITI
Aayog)
•To get benefit of flood control, it is essential that tendencies like encroachment of
natural detention basins are curbed and these basins are restored to their natural state
as a measure for flood control.
(Action: State Governments, Ministry of Jal Shakti and NITI Aayog - State Governments
in next 1 year should prepare a district wise list of natural detention basis, a status note on
the level of encroachment and submit the action plan for the restoration of natural state of
these detention basins to Ministry of Jal Shakti and NITI Aayog. Ministry of Jal Shakti and
NITI Aayog will be the monitoring agencies for the implementation of state- wise action
plans. The funds for these works can be sourced from Watershed Component of PMKSY,
MGNREGA and proposed FMBAP scheme. The action plan should be implemented by the
states in next 3 years)
•The raising and strengthening of existing embankments, new embankments,
channelisation, drainage & channel improvement, anti-erosion works, to be taken up
as a flood control and erosion management measures as per requirement of the flood
prone States 71
(Action: State Governments and CWC- State Governments should provide the list of
proposed projects along with their techno-feasibility studies to CWC in next 1 year. The
funds for these projects can be sourced from the proposed FMBAP scheme. The appraisal of
the project will be according to the revised guidelines suggested in the report. Monitoring of
the projects will be on the lines of guidelines provides for the monitoring of FMBAP projects
in the report)
•The projects for interlinking of rivers for diversion of flood water to water scarce areas
may be taken up in a time bound manner.
(Action: NWDA and NITI Aayog- The DPR of Ken-Betwa, Damanganga-Pinjal and
Par-Tapi-Narmada link projects have been completed and these projects are in an advanced
stage of implementation. NWDA should expedite the implementation of these projects and
push forward the DPR formation of rest of identified links. The quarterly presentations on
the progress can be made to Vice Chairman, NITI Aayog.)
•Watershed management works in the hilly catchments of the rivers originating in Nepal,
Bhutan as well as in hilly areas of India should be selectively chosen and implemented
with central assistance. Effort may be made to treat the hilly catchments to reduce/
minimize the sediment yield from such areas. The steep sloped rivulets/streams in hilly
region may be re-graded/ longitudinal slopes reduced to control the velocities of flow
by adopting various river training measures. Such measures will arrest the sediment
at source or near the source. This will further stabilize the hill slopes adjacent to the
rivers. Adopting such methods will further improve the ground water recharge and
release such water over extended period of time back to the river system. This will
in a way attenuate the peak of the hydrograph, reduce the flooding and ill effects of
sedimentation in downstream areas. Nodal Ministry viz. Ministry of Rural Development
– Department of Land Resources for the watershed management works may work out
a detailed programme in consultation with Ministry of Jal Shakti, NITI Aayog other
stake holders of State Government.
(Action: Department of Land Resources- A detailed programme in consultation with
Ministry of Jal Shakti, NITI Aayog, other stake holders of State Government should be
prepared within next 1 year)
•The reclamation of the existing wetlands/ natural depressions should be prohibited by
state governments and they should formulate an action plan for using them for flood
moderation.
(Action: State Governments and Department of Land Resources, NITI Aayog- A
district wise action plan for conservation of wetlands, lakes and natural depressions should
be prepared by states and submitted to Department of Land Resources, Ministry of Jal
Shakti and NITI Aayog within next 1 year. Department of Land Resources and NITI
Aayog will be the monitoring agencies for the implementation of the action plans which
should be get over by next 3 years) 72
•Conventional anti erosion works along with cost effective methods like riparian
vegetation which interacts with a range of geomorphological, geotechnical, hydrological
and hydraulic factors to affect the type and extent of riverbank erosion to be taken.
(Action: Ministry of Jal Shakti, MoEFCC, Ministry of Agriculture, DoLR, and State
Governments- Ministry of Jal Shakti along with MoEFCC, Ministry of Agriculture, DoLR
within next 1 year should issue an detailed advisory about the anti-erosion works and cost
effective methods like riparian vegetation to the states considering all the geomorphological,
geotechnical, hydrological and hydraulic factors. The presentation on the advisory should
be made to Vice Chairman, NITI Aayog at the end of 1 year. State governments should
move forward to adopt the advisory in the pace suitable to their natural circumstances.
Minsitry of Jal Shakti will hand hold and monitor the states in the adoption of advisory)
•The activities related to control of coastal erosion in an integrated manner to provide
environmentally and economically acceptable coastal protection system need to be
promoted.
(Action: Coastal Protection and Development Advisory Committee (CPDAC),
Ministry of Jal Shakti and NITI Aayog- CPDAC will form and submit the action plan
within next 1 year to control coastal erosion in different ranges of coastal areas to Ministry of
Jal Shakti and NITI Aayog. Ministry of Jal Shakti will further facilitate the implementation
of action plan within 3 years)
•Emphasis to be laid on Integrated flood management which calls for a paradigm shift
from the traditional, fragmented and localized approach and encourages the use of the
resources of a river basin as a whole and setting up of River Basin Organization for its
effective implementation.
(Action: Ministry of Jal Shakti- Facilitate the passing the River Basin Organization Bill
in Parliament in next session)
•Emergency Action Plan for all big dams should be prepared and implemented when
needed.
(Action: Dam owners & CWC- The dam owners within next 1 year should prepare the
Emergency Action Plan and submit it to CWC. CWC as the monitoring agency should
ensure the preparation of EAPs)
Flood Management and Border Areas Programme (FMBAP)
(Action: Ministry of Jal Shakti: Prepare the cabinet note of the proposed FMBAP scheme
within next 3 months including all the changes in the FMP and RMBA guidelines and all
the other proposed suggestions)
•FMBAP scheme to be continued for the period 2021-26, i.e., co-terminus with the period
of 15
th
Finance Commission with the provision of inclusion of new projects for funding
under the scheme. The selection of the schemes will be undertaken in consultation with
NITI Aayog and State Government. 73
•The proposed outlay of the FMBAP Scheme for period 2021-26 to be kept around
Rs.15,000 Crores, with Rs.13,000 Crores for FMP component and Rs. 2,000 Crores for
RMBA component.
•The funding pattern recommended for schemes in FMBAP is
FMP Component: The funding pattern for works in general category States to be 60 %
(Centre): 40 % (State) and for projects of 8 North Eastern States, J&K, Himachal Pradesh
and Uttarakhand, to be 90 % (Centre): 10 % (State)
RMBA Component: The RMBA component is specific to activities in border areas with
neighboring countries viz. Bangladesh, Nepal, China, Pakistan, Myanmar and Bhutan.
The projects/ works continue to be funded as 100% central assistance.
•Threshold Limit for Inclusion to be kept as Rs. 40 crore for projects with BC ratio more
than 1.0 for funding under Flood Management Programme works in general category
States. Whereas, for projects in 8 North Eastern States, J&K, Himachal Pradesh and
Uttarakhand, costing above Rs. 20 crore with BC ratio more than 1.0.
• For techno-economic appraisal, the monetary limits of projects of flood control may
be modified as recommended by Committee headed by Chairman, CWC, and Adviser
(WR), NITI Aayog, Commissioner Flood Management, Ministry of Jal Shakti, Chairman
Brahmaputra Board and Chairman, GFCC as members.
Table 7: Revision of monetary limits for appraisal of flood control scheme
S.
No.
Appraising Authority Existing
As proposed by Committee
headed by Chairman, CWC
1.State TAC < Rs. 12.50 Crores <Rs. 25 Crores
2.
GFCC (for Ganga Basin) /Regional
Offices of CWC (other than Ganga
Basin)
> Rs. 12.5 Crore
and < Rs. 25 Crores
>Rs. 25 Crores
< Rs. 40 Crores
3.
Advisory Committee of DoWR based
upon appraisal by
GFCC/CWC
>Rs. 25 Crores > Rs.40 Crores
•Monitoring of FMBAP projects with latest technology using remote sensing tools
to be carried out by the Central Water Commission (CWC), Ganga Flood Control
Commission (GFCC) and Brahmaputra Board (BB) in their respective jurisdiction.
•The provision of concurrent evaluation by third party is proposed to be dispensed
with and performance evaluation of projects after completion may be undertaken by
independent agencies like recognized/reputed engineering colleges, research institutions,
technical universities, etc. after the works implemented in the scheme withstood at least
one flood season after their completion. 74
•Release of an installment of Central share not to be predicated on producing Utilisation
Certificates (UCs) of the last installment and that release to be based on the furnished
UC of the penultimate (last to last) release of Central share as per NITI Aayog OM
dated 17th August, 2016.
• In respect of projects included under FMBAP Scheme for central funding, if any,
expenditure is made by the State Government towards the Central share from its own
resources, the same shall be reimbursable. This is in line with NITI Aayog OM dated
17th August, 2016. However, any expenditure made by the States prior to inclusion of
project in FMBAP Scheme shall not be eligible for reimbursement.
•The first installment for release of central assistance in respect of all States may be kept
as 90% of eligible central Share. However, it would be governed by extant guidelines
of Ministry of Finance
• Scope of RMBA Component to be modified for taking up of river training works on all
cross border/border Rivers. A comparison of existing and new provisions under RMBA
component is at Annexure III.
•Research & Development and Capacity Building on areas of flood management is
proposed to be kept as an integral part of the FMBAP Scheme. The research studies
for morphological behavior of rivers, sediment carrying capacity of streams, impact
of structural interventions and its impact on overall flood management of river basin
to be carried out in association with esteemed institutes of the country like IITs, IISc,
NITs, etc. Thrust on developing basin flood management plan using State-of-the-art
technology and adopting holistic approach at basin level for flood management may
be taken as foremost consideration in capacity building under FMBAP.
•The States to be incentivized for adopting Integrated Flood Management approach and
taking measures like Decision Support System for integrated operation of reservoirs,
flood plain zoning and developing flood management infrastructure in consonance
with master plan. 75
ANNEXURES 76
Annexures 1
Official Order for Committee Formation
77 78
Annexure II
Official order for Sub Committee for Formulation of Strategy for Flood Management Works
in entire country and River Management Activities and Works related to Border Areas
(2020-23) 79
Annexure III
Comparison of the existing guidelines with the revised guidelines and reasons for the change
in guidelines under the River Management Activities in Border Area Programme (RMBA)
S. No Existing Guidelines Proposed Guidelines Reason for revision
Scope Maintenance of flood
protection works of Kosi &
Gandak projects (in Nepal)
Maintenance of flood
protection works
of Kosi & Gandak
projects (in Nepal) and
river training works on
all cross border/border
rivers within Indian
territory
Maintenance of flood
protection works of Kosi
& Gandak projects (in
Nepal) would continue as
per bilateral agreement
River training works on
all cross border/border
rivers within Indian
territory is an important
as Issue of inundation
along India Nepal Border
is a recurring issue and
is often raised in bilateral
forums.
Procedure for
inclusion in
RMBA
Maintenance of flood
protection works of Kosi &
Gandak projects (in Nepal)
is recommended by KHLC &
GHLSC River training works
on all cross border/border
rivers within Indian territory.
SameRecommended
by JCIFM (for Nepal) /
other existing bilateral
mechanism after
technical appraisal of
river training works
from GFCC/CWC.
Procedure for inclusion
of works in RMBA other
than Kosi and Gandak
project (in Nepal) needs
to be elaborated.
100 % Reimbursement only
for Maintenance of flood
protection works of Kosi &
Gandak projects (in Nepal)
as recommended by KHLC &
GHLSC
100 % Reimbursement
for all works in border
area under RMBA
100 % Reimbursement
for all works in border
areas under RMBA
as these works are of
strategic importance. 80
works to be
carried out in
No Man’s Land
in border area
No mentionAs per
recommendation of
MEA
The embankment
build along the cross
border rivers on both
sides by neighboring
countries needs tying of
embankment in No Man’s
land area.
Procedure
for release
of Central
Assistance,
documentation
for flood
management
works
Not explicitly mentioned As per detail guidelines
of FMBAP
There were different set
of guidelines for FMP
and RMBA component
of FMBAP even after
the merger of Scheme
as FMBAP. A modified
comprehensive guideline
on FMBAP would
describe procedure and
documentation for release
of Central Assistance 81
Annexure IV
Important Government Initiatives and Policies on Floods
S.
no.
Year InitiativeMajor Recommendations
1.1954Policy Statement
Following the unprecedented floods of 1954, the Union Minister for
Planning, Irrigation and Power, placed before the Parliament on 3rd
September, 1954, two statements namely “Floods in India - Problems
and remedies” and “The Floods in the country”. The objective
unequivocally set, in the policy statements, was to rid the country
from the menace of floods by containing and managing floods and
thus solving the problem.
2. 1957
High Level Committee
On Floods
i) Absolute or permanent immunity from flood damage is not
physically attainable by known methods of flood control. Flood
plain zoning, flood forecasting and warning, and like measures
should, therefore, be given due importance, particularly as these
do not require large capital investment.
(ii) Flood control schemes should fit in with other water related
plans to the extent feasible.
(iii) Future multi-purpose project should consider flood control
aspects simultaneously.
3.1980
National Flood
Commission
(Rashtriya Barh Ayog)
- Data collection for providing information on their long term
performance and their impact on various socio-economic
factors.
- Legislation and enforcement by States to prevent unauthorized
river bed cultivation and encroachments into drains etc.
- Separate reporting of flood damage for (i) Unprotected areas
(ii) Protected areas and (iii) Areas situated between the
embankments.
- Legislation for management of flood plains.
- Intensifying studies on sedimentation of reservoirs.
- Forming a national council for mitigating disaster.
- Priority for measures to modify the susceptibility of life and
property to flood damage. 82
4.2003
Expert Committee
to Review the
Implementation of the
Recommenda-tions
of National Flood
Commission
- Flood damage assessment, from year to year, is not done
realistically or on scientific basis as per RBA recommendations,
due to collateral reasons, which are surmised but not expressed.
This needs corrective steps.
- Lack of representative, scientific and credible post-project
performance evaluations of past flood management works is a
serious handicap.
- Unabated and unplanned intrusion into the flood plains and
river beds, sometimes with the approval or acquiescence of
Government has now reached alarming dimensions. If this is
not managed, flood losses will continue to mount.
- The international dimensions of flood management as an
integral part of Water resource development and management
must be pro actively addressed.
5.
1987/
2002/
2012
National Water Policy
(i) There should be a master plan for flood control and
management for each flood prone basin.
(ii) Adequate flood cushion should be provided in water
storage projects, wherever feasible, to facilitate better flood
management. In highly flood prone areas, flood control should
be given overriding consideration in reservoir regulations policy
even at the cost of sacrificing some irrigation or power benefits.
(iii) While physical flood protection works like embankments and
dykes will continue to be necessary, increased emphasis should
be laid on non-structural measures such as flood forecasting
and warning, flood plain zoning and flood proofing for the
minimization of losses and to reduce the recurring expenditure
on flood relief.
(iv) There should be strict regulation of settlements and economic
activity in the flood plain zones along with flood proofing, to
minimize the loss of life and property on account of floods.
(v) The flood forecasting activities should be modernized, value
added and extended to other uncovered areas. Inflow forecasting
to reservoirs should be instituted for their effective regulation. 83
Annexure V
List of Large Dams having the Emergency Action Plans
S. No.AgencyName of Dam
1
Madhya Pradesh Water Resources
Deaprtment (MPWRD)
Ari Dam
2MPWRDArniya Bahadurpur
3MPWRDBarna
4MPWRDBundala
5MPWRDChandpatha
6MPWRDChandrakeshar
7MPWRDDholawad Tank (Ratlam)
8MPWRDDudhi (Kunwar Chain Sagar)
9MPWRDJirbhar
10MPWRDKanhargaon Tank (Chhindwara)
11MPWRDKankerkheda
12MPWRDKharadi
13MPWRDKolar
14MPWRDMakroda
15MPWRDMarhi
16MPWRDMoorum Nalla
17MPWRDNahlesara
18MPWRDRuthai (Gopi Krishna Sagar)
19MPWRDSampna
20MPWRDSanjay Sagar
21MPWRDSarathi
22MPWRDThanwer (Rajivsagar)
23MPWRDUmrar
24MPWRDUpper Wain Ganga (Sanjay Sarover)
25
Odisha Water Resources
Department (OWRD)
Ashok Nalla
26OWRDBanksal
27OWRDBhaskel
28OWRDDaha
29OWRDDamsal 84
30OWRDDerjang
31OWRDDhanei
32OWRDHirakud
33OWRDJhumuka
34OWRDKalo
35OWRDNesa
36OWRDPillasalki
37OWRDPitamahal
38OWRDSalia
39OWRDSapua
40OWRDSarafgarh
41OWRDSatiguda (Malkangiri)
42OWRDSatiguda (Ukp)
43OWRDSundar
44OWRDTalsara
45
Tamil Nadu Water Resources Department
(TNWRD)
Aliyar
46TNWRDAmaravathi
47TNWRDBhavanisagar
48TNWRDKelavarapalli
49TNWRDKrishnagiri
50TNWRDPonnaniyar
51TNWRDSholayar
52TNWRDShoolagirichinnar
53TNWRDThirumurthi Dam
54TNWRDUpper (Tirpur)
55TNWRDChinnar Dam
56TNWRDPalar Porundar Dam
57
Tamil Nadu Generation and Distribution
Corporation (TANGEDCO)
Avalanche
58TANGEDCOBunghihallabund
59TANGEDCOEmerald
60TANGEDCOKadambarai
61TANGEDCOKodayar I
62TANGEDCOKundahpalam
63TANGEDCOKuttiyar 85
64TANGEDCOManalar
65TANGEDCOPegumbahallah Forebay
66TANGEDCOPorthimund
67TANGEDCOUpper Aliyar
68TANGEDCOUpper Bhavani
69TANGEDCOVandal Weir
70
Kerala Water Resources Department
(KWRD)
Chimoni
71KWRDChulliar (Gayathri Stage Ii)
72KWRDKanjira Puzha
73KWRDKuttiyadi (Irrign. Proj.)
74KWRDMalampuzha
75KWRDMalankara / Muvattupuzha
76KWRDMeenkara (Gayathri Stage I)
77KWRDNeyyar
78KWRDPazhassi Irrigation Project
79KWRDPeechi
80KWRDPothundy
81KWRDVazhany
82KWRDWalayar
83 Kerala State Electricity Board (KSEB)Idamalayar (Eb)
84KSEBCheruthoni (Eb)
85KSEBErrattayar (Eb)
86KSEBIdukki (Eb)
87KSEBKallar
88KSEBKulamavu (Eb)
89KSEBChulliyar
90KSEBKallada
91KSEBMoozhiyar (Kakkad) (Eb)
92KSEBVeluthodu (Kakkad) (Eb)
93KSEBKakkayam Dam (Hep)
94KSEBKosani Saddle Dam
95KSEBKottagiri Saddle Dam
96KSEBKuttiyad Saddle Dam
97KSEBKuttiyadi Augmentation Main Dam
98KSEBKuttiyadi Augmentation Spillway Dam 86
99KSEBManjoora Saddle Dam
100KSEBNayammoola Saddle Dam
101KSEBNear Kottagiri Saddle Dam
102KSEBPambla Dam
103KSEBKallarkutty (Eb)
104KSEBKundala (Eb)
105KSEBMadupetty (Eb)
106KSEB
R A Head Works (Ramaswami Aiyar
Headworks)
107KSEBAnayirankal (Eb)
108KSEBPonmudi (Anayirankal) (Eb)
109KSEBPoringalkuthu (Eb)
110KSEBAnathodu Flanking (Eb)
111KSEBGavi (Sa Diversion) (Eb)
112KSEBKakki (Eb)
113KSEBKullar (Sabarigiri Aug.) (Eb)
114KSEBMeenar I (Sabarigiri Aug.) (Eb)
115KSEBMeenar Ii (Sabarigiri Aug.) (Eb)
116KSEBPamba (Eb)
117KSEBUpper Moozhiyar (Sa) (Eb)
118KSEBSengulam (Eb)
119KSEBSholayar (Flanaking) (Eb)
120KSEBSholayar (Main ) (Eb)
121KSEBSholayar (Saddle ) (Eb)
122KSEBVazhani
123
Karnataka Water Resources
Department (KAWRD)
Almatti Dam
124KAWRDBhadra Dam
125KAWRDChickkahole
126KAWRDDevarabillikere Tank
126KAWRDH.B.Halli Pickup
127KAWRDHarangi Dam
128KAWRDHemavathy Dam
129KAWRDHidkal Dam
130KAWRDMalaprabha Dam
131KAWRDMallaghatta Tank 87
132KAWRDMaskinala
133KAWRDNarayanapur Dam
134KAWRDLakya
135KAWRDHagari Bommanaha1li
136KAWRDVotehole Dam
137DVCKonar Dam
138BBMBBhakra Dam
139BBMBBeas Dam
140BBMBPandoh Dam
141
Bihar Water Resources Department
(BWRD)
Kharagpur Lake
142BWRDNagi
143BWRDKohira
144BWRDAmrity
145BWRDBadua
146BWRDSrikhandi
147BWRDKalmahadeo
148BWRDChandan
149BWRDJalkund
150BWRDMorway
151BWRDJob
152BWRDKailashghati
153BWRDNakti
154BWRDBaskund
155BWRDBelharna
156BWRDAnjan
157BWRDPhulwaria
158BWRDOrhani
159BWRDUpperkuil
160BWRDBilasi
161THDCTehri Dam
162THDCKoteshwar Dam
163
National Hydroelectric Power Corporation
(NHPC)
Parbati III Dam
164NHPCBaira Dam
165NHPCChamera I Dam 88
166NHPCChamera II Dam
167NHPCChamera III Dam
168NHPCSalal & Salal Dam
169NHPCUri I
170NHPCDul Dam
171NHPCSewa II Dam
172NHPCChutak Dam
173NHPCNimo Bazgo Dam
174NHPCUri II Dam
175NHPCRangit Dam
176NHPCTeesta V Dam
177NHPCTanakpura Dam
178NHPCDhauliganga Dam
179NHPCTeesta Low III Barrage
180NHPCTeesta Low IV
181 Himachal Pradesh (IPH) Sanj Dam
182 Himachal Pradesh (IPH) Pong Dam
183 Himachal Pradesh (IPH) Neogal
184 Himachal Pradesh (IPH) Nathka Japri
185 Himachal Pradesh (IPH) Malana I
186 Himachal Pradesh (IPH) Malana II
187 Himachal Pradesh (IPH) Larji
188 Himachal Pradesh (IPH) Kol
189 Himachal Pradesh (IPH) Karchham Wangtoo
190 Himachal Pradesh (IPH) Chanju I
191 Himachal Pradesh (IPH) Budil
192 Himachal Pradesh (IPH) Baspa II
193 Himachal Pradesh (IPH) Allain Duhanganj 89
Annexure VI
Minutes of the Meeting held on 27th February, 2020
NITI Aayog
(WR&LR Vertical)
Subject: First meeting of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities and works related
to Border Areas (2020 – 23).
The first meeting of the Committee constituted for formulation of strategy for Flood Management
Works in entire country and River Management Activities and works related to Border Areas
(2020 – 23) was held on 27th February, 2020, at 1200 hrs in Room No. 228, NITI Aayog. The
meeting was attended by CEO, NITI Aayog, Secretary, Department of Water Resources, RD
& GR (D/o WR, RD & GR) , Ministry of Jal Shakti, Member Secretary, National Disaster
Management Authority (NDMA), Member, Central water Commission (CWC), Joint Secretary,
Ministry of Home Affairs, Director (North), Ministry of External Affairs, Experts from IIT-
Roorkee and Central Water and Power Research Station (CWPRS), representatives from state of
Jammu & Kashmir, Uttar Pradesh, Bihar, West Bengal, Punjab, Assam, , Tripura, and Kerala and
other senior officers of D/o WR, RD &GR, CWC and NITI Aayog. The list of the participants is
enclosed as Annexure.
At the outset, Adviser (WR), NITI Aayog welcomed all the participants and mentioned that
consequent upon examination of the draft Cabinet Note on ‘Flood Management and Border Areas
Programme (FMBAP)’ for flood management works in entire country and river management
activities and works in the border areas during 2017-18 to 2019-20, the PMO had conveyed that
the strategy for flood management for the next three years should be firmed up by a group led
by NITI Aayog. The strategy should have clear priorities, costs and deliverables for the next three
years (2020-23). In order to formulate the ‘Strategy for Flood Management Works in entire country
and River Management Activities and works in the Border Areas for 2020-2023’ a Committee
is constituted under the chairmanship of Vice Chairman, NITI Aayog. The committee is duly
represented by central ministries, states and external experts. He further requested Secretary, D/o
WR, RD & GR to set the context of the meeting for the participants.
Secretary, D/o WR, RD & GR introduced the subject to the participants and mentioned that flood
is one of the most frequent and important natural calamity to the country. There is no year when we
as a Nation have not faced the destruction of flood. Due to climate change not only the frequency
but also the magnitude of flood has increased over the years. Floods are natural phenomenon so
they cannot be prevented but can be managed. We have to understand the new concept of living
with the floods. He further indicated that there are number of measures to manage funds which 90
include both structural and non-structural measures. In structural measures, perhaps the best
cushion for floods are dams but now we have to understand that due to environmental constraints,
it is not easy to build new dams in India. Other structural measures like embankments can be
adopted but they should not be taken up indiscriminately. Although department is now focusing
on non-structural measures like flood plain zoning, catchment area treatment plans etc. which
are very important but are not getting enough attention and importance. He also asserted that
department has come long way in the case of flood forecasting and early warning system. Now
the flood warnings are issued 72 hrs before the event which was earlier 24 hrs. Also, department
has started to use and provide inundation maps for better identification of submerged areas. He
further requested Joint Commissioner (FM) to make a presentation to the committee.
Joint Commissioner (FM), DoWR, RD & GR made a presentation and briefed the committee
about the general facts of flood, types of floods, structural & nonstructural measures of flood
management which includes dams, embankments, flood forecasting, flood plain zoning, etc.,
components of flood management & border areas programme (FMBAP) and performance of the
scheme. He in detailed discussed the annual damages caused by the floods and extent of problem
of flood in India. He further moved on to the FMBAP scheme, its coverage, funding mechanism
and progress.
After the presentation, chairman of the committee Vice Chairman, NITI Aayog invited the
committee members, representatives of the states and external experts to express their views.
Member Secretary, NDMA taking the lead expressed that there are number of laws and
guidelines to define and mitigate the risk of floods. But these laws can be effective only if they
are implemented with high level administrative will and skill. In order to encourage states to take
up flood management measures like flood plain zoning (only Jammu & Kashmir, Uttarakhand
and Jharkhand have Flood Plain Zoning), they should be provided with incentives which may
include financial incentives.
Deputy Secretary, Water Resources department, Government of Kerala highlighted as per the
FMB guidelines, Projects amounting to Rs.40 Crore or above would be considered as per the
guidelines laid down under FMP. Due to typical topography of the states, the construction
of storage structures amounting to Rs.40 Crore or above is mostly inconceivable. In case of
coastal protection works, the guidelines mandate that prior to sanction of works under FMP
and necessary clearances shall be obtained from the State Coastal Zone Management Authority
(CZMA). Though the state had approached its authority for clearance, it was informed that the
clearance could not be issued unless EIA is done (Environmental Impact Assessment) which gets
carried out for one year. If the guidelines of FMP can be modified by relaxing the minimum total
amount for a project to be funded in case of river training works, works on embankments, State
of Kerala would be able to derive funds under FMP. ln the case of coastal erosion works also,
the state would enjoy benefits of the central funds much more than from its own plan schemes
if necessary relaxation can be made by the (CZMA)for those works which are only reformation 91
in nature. Answering the query, Secretary, DoWR, RD & GR mentioned that projects should be
taken up for the entire stretch of the rivers for proper management of floods. The comprehensive
projects can go up to the prescribed amount of Rs 40 cr. Further, Vice Chairman, NITI Aayog
instructed to call a representative of Coastal Regulatory Zone Authority in the next meeting of
committee.
Chief Engineer, Irrigation, Government of Uttar Pradesh highlighted that in Uttar Pradesh projects
of flood management are delaying due to delayed and phase wise funding from the DoWR, RD &
GR. Another main reason for the delay is the cumbersome procedure of getting approvals from
number of departments of central government. Responding to the comment, Vice Chairman,
NITI Aayog calls for the rationalization of funding and approval process of the ministry.
Joint Secretary, I&W Department, Government of West Bengal stressed on the two issues faced
by the state in flood management. Firstly, the high density of population in flood plain zone
doesn’t allow the state government to undertake flood plain zoning. Secondly, in last four years,
state is able to save human and livestock lives by shifting them to safer places in the event of flood
but they are not able to find out the panacea for the flood related damages. Responding to issues,
Secretary, DoWR, RD & GR asserted that in order to minimize the flood related damages, it is
necessary to leave the room of the river and state should enact the law on flood plain zoning on
priority.
Chief Engineer, Water Resources department, Government of Punjab raised the issue that due
to lack of central assistance some heavily invested projects in Punjab are stalled. He requested
the Committee to consider these projects for continuation. The Vice Chairman, NITI Aayog
indicated that it should be considered.
Joint Secretary, Ministry of Home Affairs informed that post flood relief measures are now entirely
under the perview of Ministry of Home Affairs. Therefore, it is necessary to have a synchronized
database for the damages caused by the floods. The Vice Chairman, NITI Aayog also calls for the
collection of proper data of the damages caused by the flood. The Chief Engineer (CWC) informed
that in 2012, an expert committee was established under the chairmanship of Chairman (CWC)
to provide better estimates of the damages occurred due to floods in India and that committee
is due to submit its report in next two months. Vice Chairman NITI Aayog instructed CWC to
submit a copy of report to this committee and may however provide the Terms of Reference of the
committee established to assess estimates of damages occurred due to floods to Water Resources
Vertical, NITI Aayog.
Scientist (SG and DGM), ISRO informed the committee that ISRO has collected the flood foot
prints all over the country and also undertaking the basin wise studies to study the patterns
of flood in the basins. ISRO is also assisting DoWR, RD & GR through National Institute of
Hydrology in collecting data on floods.
Professor, Deepak Khare from IIT, Roorkee indicated that there is need to focus on the Research
and Development in order to find out the new technologically advanced measures to control 92
flood. He also asserted that DoWR, RD & GR should conduct a study on the flood events of last
10 years to find out the commonalities among them and focus on those to solve the problem. He
further requested to study the changing climate and land use patterns to predict floods in near
future.
Summing up the discussion, Vice Chairman, NITI Aayog emphasized that problem of flood is a
much vast and deep rooted then it is represented in general terms. In the changing climatic and
environmental scenario flood management is not limited to some flood control measures but it
needs to be taken up in holistic manner which includes redefining of roles of various stakeholders
and changes in institutional set ups. This committee should provide the comprehensive and
holistic solution to the problem of flood management in India.
After detailed discussions, the following decisions were taken:
1. The CWC will submit a copy of the report of the expert committee established to provide
estimates of damages occurred due to floods to this committee and for present it may
provide the Terms of Reference of the committee to Water Resources Vertical, NITI
Aayog.
(Action: CWC, Ministry of Jal Shakti)
2. CWC has recently done a presentation on flood forecasting and other non- structural
measures to Parliamentary Advisory Committee. CWC should provide this presentation
to Water Resources Vertical, NITI Aayog. CWC should also provide a brief note on the
procedure of flood forecasting and estimates about the hydrological observation stations
needed for accurate forecasting in India.
(Action: CWC, Ministry of Jal Shakti)
3. D/o WR, RD & GR may conduct a study and find out that how flood plain zoning is
defined and implemented in other countries like Egypt, United States of America, Brazil
and China.
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
4. CWC and NITI Aayog should examine the process of granting the clearance to the states
for flood management projects and find out the ways to rationalize the whole process.
CWC should make a presentation on the above findings in next meeting.
(Action: CWC, Ministry of Jal Shakti & NITI Aayog)
5. The 8 state namely West Bengal, Bihar, Assam, Jammu & Kashmir, Himachal Pradesh,
Uttar Pradesh, Kerala and Tamil Nadu (having highest fund allocation in FMP Component
of FMBAP scheme) should make a presentation in the next meeting on the measures
taken by them and the protection from flood achieved out of this investment. D/o WR,
RD & GR should coordinate with these states for the presentation, so the strategy may
be formed or 2020 to 2023. 93
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
6. CWC and Ganga Flood Control Commission should make a presentation to the committee
and recommend that how the departments working in silos at centre and state level
should come together to form long term strategy to control and mitigate floods in India.
(Action: CWC and Ganga Flood Control Commission)
7. D/o WR, RD & GR in consultation with WR Vertical NITI Aayog should identify some
important projects for continuation which are foreclosed by State under FMBAP scheme.
D/o WR, RD & GR should also look into the guidelines/constraints which force the
states to foreclose the projects and try to simplify these guidelines.
(Action: D/o WR, RD & GR, Ministry of Jal Shakti, NITI Aayog)
8. NDMA has prepared the guidelines on Floods and urban floods in 2008. NDMA should
make a presentation to the committee on these guidelines, so the guidelines’ suitability
for adoption by the committee may be considered.
(Action: NDMA)
9. A representative of Coastal Regulatory Zone Authority (CRZA) should be invited to the
next meeting of the committee who should provide details on the clearance procedures
of Flood Management Projects.
(Action: Water Resources Vertical, NITI Aayog)
The meeting ended with vote of thanks to the chair.
List of Participants in the 4th Meeting of Pmksy Council Held Under the Chairmanship of
Ceo, Niti Aayog on 14.12.2018 in Niti Aayog, New Delhi
S.No.NameDesignation and Organization
1
Dr. Rajiv Kumar, Vice Chairman, NITI
Aayog
In Chair
2 Shri. Amitabh Kant CEO, NITI Aayog
3 Shri. U.P. Singh Secretary, DoWR, RD & GR, Ministry of Jal Shakti
4 Shri. G.V.V. Sarma Member Secretary, NDMA
5 Shri R.K. GuptaMember, CWC
6 Shri Avinash Mishra Adviser, WR & LR, NITI Aayog
7 Shri Sanjeev Kumar Jindal Joint Secretary, MHA
8 Shri Amit A. ShuklaDirector (North), MEA 94
9 Shri D. Sengupta
Joint Secretary, I&W Department, Government of
West Bengal
10 Shri Padma Kant Jha S.E. Water Resources department, Bihar
11 Ms. Mrunmai Joshi
Deputy Secretary, Water Resources department,
Kerala
12 Shri G. Srinivasa RaoAssociate Director (DRR), ISRO
13 Dr. V.M. ChowdaryScientist (SG and DGM), ISRO
14 Shri B.K.KanjerChief Engineer, CWC
15 Shri. A.K. Singh Chief Engineer Irrigation, U.P.
16 Shri. Sanjiv GuptaChief Engineer, Water Resources, Punjab
17 Shri. Ashok Sharma
Chief Engineer I&W Department, Jammu &
Kashmir
18 Shri Bishu Kumar. Debbarma Chief Engineer, Water Resources, Tripura
19 Shri Abani HazarikaChief Engineer, Water Resources, Assam
20 Shri Charu Chandra Mishra E. E. Water Resources department, Bihar
21 Shri Khanindra BarmanAEE, WRD, Assam
22 Shri Rakesh Toteja
Joint Commissioner, DoWR, RD & GR, Ministry of
Jal Shakti
23 Shri Sharad Kumar Kaushal
Deputy Commissioner, DoWR, RD & GR, Ministry
of Jal Shakti
24 Shri Piyush KumarDirector, CWC, Ministry of Jal Shakti
25 Shri Sharad ChandraDirector, CWC, Ministry of Jal Shakti
26 Shri Upananda Rath
Deputy Director, DoWR, RD & GR, Ministry of Jal
Shakti
27 Shri Harish Kumar Chauhan Liaison Officer, WRD, Arunachal Pradesh
28 Shri N.K. VelScientist- D, NITI Aayog
29 Shri Gopal SaranScientist- C, NITI Aayog
30 Shri Venkat AnginaRA, NITI Aayog
31 Ms. Arunima ChandraYP, NITI Aayog
32 Ms. Aakanksha SharmaYP, NITI Aayog
33 Dr. Namrata Singh PanwarYP, WR & LR, NITI Aayog 95
Annexure VII
Minutes of the Meeting held on 27th May, 2020
NITI Aayog
(WR&LR Vertical)
Subject: Second meeting of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities and works related
to Border Areas (2020 – 23).
The second meeting of the Committee constituted for formulation of strategy for Flood
Management Works in entire country and River Management Activities related to Border Areas
(2020 – 23) was held under the chairmanship of V.C. NITI AAYOG through video conferencing
on 27th May, 2020, at 1500 hrs in Room No. 126, NITI Aayog. The meeting was attended by
Member (Agri & Water Resources), NITI Aayog, Secretary, Department of Water Resources, RD
& GR (D/o WR, RD & GR), Ministry of Jal Shakti in person and senior officers from National
Disaster Management Authority (NDMA), Central water Commission (CWC), Experts from IIT-
Roorkee and Delft Institute Netherland, representatives from state of Uttar Pradesh, Bihar, Assam,
Himachal Pradesh and Kerala connected through Video Conferencing. The list of the participants
is enclosed as Annexure.
At the outset, Adviser (WR), NITI Aayog welcomed all the participants and briefed them on the
progress of work of the committee. He mentioned that the basic objective of the committee is to
frame a strategy for flood management in India for next three years (1
st
April 2020 to 31st March
2023). The first meeting of the committee was held on 27th February 2020 wherein it was
deliberated that it is very important to organise the unstructured flood management guidelines
in the country. Non-structural measures should be given due focus and benchmarking should
be done with other developed countries. Flood cushioning should be provided in the new dams
and if possible, in existing dams too. Thereafter he requested Ministry of Jal Shakti to make a
presentation on River Management activities in Border Area.
Commissioner (FM), DoWR, RD & GR made a presentation on the river management activities
in the Border area. India shares its border with 5 countries where trans-boundary rivers flow.
These nations are China, Pakistan, Nepal, Bhutan and Bangladesh. In respect of China, Nepal and
Bhutan we are lower riparian states and in case of Pakistan and Bangladesh, we are upper riparian
states. He explained that here we need to undertake the works which are strategically important
at times may not be priority to the states. Subsequently, Commissioner (FM) briefed committee
on various components of the programme, on-going projects, funding mechanisms for states
and UTs, working and functions of lateral organizations like Ganga Flood Control Commission
which provide long term plans for managing flood in Ganga Basin. He further indicated that 96
due to some restrictions in the current guidelines, Ministry is not able to fund the projects which
are on the river originating from the Nepal other than Kosi and Gandak. Elaborating the whole
issue Secretary (D/o WR, RD & GR) indicated that these trans- boundary river projects do not
give large benefits to the states, therefore there is always uncertainty that which agency is going
to fund them. But these projects are important to develop the atmosphere of trust and belief with
Nepal and other neighbouring countries. Therefore, the new guidelines need to be formulated
to accommodate logically vulnerable stretches on international rivers. The Vice Chairman, NITI
Aayog and the Chairman of the committee instructed to constitute a committee under Secretary
Water Resources where in Commissioner (FM) will provide a tabular comparison of the existing
guidelines and the revised guidelines and reasons for the change in guidelines. The committee
will submit its report in next 15 days.
Secretary (D/o WR, RD & GR) emphasized on the issue that meager money is spent in the
country on the flood mitigation. We as a country spend more money on relief measure than the
mitigation. In the response of this, Member (RC), Water Resources, NITI Aayog stated that this
time 15th Finance Commission under Disaster Management head has made recommendation in
two parts- 20 percent (5797 Crore) of the total fund is allocated under Disaster Mitigation and
80 percent (23186 Crore) is allocated under disaster response for states. He further suggested
that Ministry should evaluate the existing schemes, point out that whether these schemes should
continue and suggest new schemes/guidelines.
The Vice Chairman, NITI Aayog instructed to constitute a sub- committee under Secretary
(D/o WR, RD & GR), Ministry of Jal Shakti, wherein Adviser (WR&LR) will be a member
other member including the States representatives may be decided by the Secretary WR as per
requirement. The group will evaluate the ongoing schemes and suggest prioritized schemes, new
guidelines for RMBAP, structural measures (FMP and FMBAP) and non-structural measure for
flood management in country. The committee will submit its report in next 15 days.
The next presentation was made by Joint Secretary, NDMA on the guidelines prepared by NDMA
for the flood management in urban areas and whole country. Vice Chairman, NITI Aayog
instructed the officials from NDMA to submit the guidelines, any suggestive changes and new
areas of work to the committee for consideration.
Next presentation was made by Central Water Commission on non-structural measures for flood
mitigation and management. In the presentation CWC emphasized the efficacy of non-structural
measures like Flood plain zoning, flood forecasting in mitigation of flood. Flood Plain Zoning
reduces the flood risk by 30-40 percent. There have been Global examples like Japan and US
which have used flood plain zoning and other non- structural measures to manage floods. CWC
is also collaborating with M/s Google Inc., to provide inundation maps and alerts based on the
Flood Forecast available in CAP platform using high quality Digital Terrain Models available
with Google using Artificial Intelligence and Machine Learning. The system started functioning
from 2018 when inundation alerts were provided for Patna Gandhighat forecast stations. This 97
has expanded to around 11,000 sq.km. covering 7 FF stations (Patna Gandhighat & Kahalgaon
in Bihar, Neamatighat, Tezpur, Guwahati & Goalpara in Assam and Ayodhya in Uttar Pradesh)
during 2019. This is likely to be covered to all level forecast stations during the next few years.
CWC further indicated that there is 90 percent accuracy in the flood forecast and duration of
forecast has increased from 24 hrs to 72 hrs. Also, now we have 325 flood forecasting stations and
1600 hydrological stations in India.
Secretary (D/o WR, RD & GR), Ministry of Jal Shakti indicated that India has multipurpose dams
which are not categorized into the flood control dams or irrigation dams as per the practice in
developed nations. Therefore, it is very difficult for the states to prepare emergency action plans
for these dams. On this point Vice Chairman NITI Aayog instructed CWC to categorize the all
5500 large dams in India according their use in flood control, irrigation and other purposes so
that emergency action plans can be prepared by the states accordingly.
State of Assam in its presentation to the committee stated that Assam is the worst flood affected
state in the Nation and even then, since 2014 no new scheme has been sanctioned. Structural
measures are very much necessary for Assam to save it from the destruction of floods; therefore,
central assistance to Assam should increase significantly.
State of Himachal Pradesh in its presentation requested to the committee to clear some very
important projects of the state under FMBAP.
Dr. Biswa Bhattacharya, Professor, Delft Institute Netherland indicated globally countries provide
flood forecasting 3-4 days prior to the event. CWC has increased its duration from 24 hrs to 72
hrs but still we need to move ahead to 14 days flood forecasting to mitigate maximum losses
from the flood also Digital Elevation Models can be developed and he will happy to assist CWC
in this regard.
Member (RC), Water Resources NITI Aayog indicated that inputs should be taken from states and
other experts to form an inclusive strategy for flood management in India. He further suggested
that tree horticulture should also be adopted in flood plains to minimize the loss due to floods.
Suggestions in this regard may be taken from Agriculture Ministry. He also emphasized on the
importance of lake and wetlands in both rural and urban areas for flood management and water
security. He further suggested the proposed sub - committee may consider, National Bureau
of Soil Survey and Land Use planning (NBSS&LUP) maps and explore the possibility of using
their work in flood zone identification and creation of inundation maps.
After detailed discussions, the following decisions were taken:
1. Commissioner (FM) Mo Jal Shakti will provide a tabular comparison of the existing
guidelines and the revised guidelines and reasons for the change in guidelines under the
River Management Activities in Border Area Programme to the committee headed by
secretary DoWR,RD&GR.(Timeline: 10th June 2020)
(Action: D/o WR, RD & GR, Ministry of Jal Shakti) 98
2. Constitute a Sub- committee under Secretary (D/o WR, RD & GR), Ministry of Jal Shakti
with Adviser (WR&LR) NITI as member and other Members as per the requirements
from the States, CWC, other Central organisations etc. Sub-committee will evaluate the
ongoing schemes and suggest (1) Prioritised schemes both FMP and FMBAP for funding
during 2020-2023. Also, sub-committee will suggest new guidelines for RMBAP,
structural measures and non-structural measure for flood management in country.
(Timeline: 20th June 2020)
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
3. CWC is to categorize the all 5500 large dams in India according to their use in flood
control, irrigation and other purposes so that emergency action plans can be prepared
by the states accordingly. (Timeline: 15th June 2020)
(Action: CWC, Ministry of Jal Shakti)
4. Expert Consultation will be held under the chairmanship of Secretary (D/o WR, RD
& GR), Ministry of Jal Shakti and inputs to be submitted to the committee. (Timeline:
15th June 2020)
(Action: D/o WR, RD & GR, Ministry of Jal Shakti)
5. Inputs (explicit suggestions and lessons from the past) will be collected from the states
to form the strategy (Timeline: 15th June 2020)
(Action: D/o WR, RD & GR, & WR&LR, NITI Aayog)
6. National Bureau of Soil Survey and Land Use planning’s (NBSS&LUP) should be contacted
and possibility should be explored of using their work in flood zone identification and
creation of inundation maps. (Timeline: 15th June 2020)
(Action: CWC and Commissioner FM Mo Jal Shakti)
7. NDMA will submit its guidelines related to flood management, any suggestive changes
in the guidelines and new areas of work to the committee for consideration. (Timeline:
15th June 2020)
(Action: NDMA)
The meeting ended with vote of thanks to the chair. 99
List of participants in the second meeting of the committee constituted for formulation of
strategy for flood management works in entire country and river management activities and
works related to border areas (2020 – 23)
S.No.NameDesignation and Organization
1.
Dr. Rajiv Kumar, Vice Chairman,
NITI Aayog
In Chair
2. Dr. Ramesh ChandMember, NITI Aayog
3. Shri. U.P. Singh
Secretary, DoWR, RD & GR, Ministry of Jal
Shakti
4. Shri. Sandip KumarJoint Secretary, NDMA
5. Shri Avinash MishraAdviser, WR & LR, NITI Aayog
6. Shri Atul Jain
Commissioner (FM), DoWR, RD & GR, Ministry of
Jal Shakti
7. Shri HazarikaAdditional Chief Secretary Assam
8. Shri Rakesh Toteja
Joint Commissioner, DoWR, RD & GR, Ministry of
Jal Shakti
9. Shri G. Srinivasa RaoAssociate Director (DRR), ISRO
10. N kumar VelScientist D NITI AAYOG
11. Sh Padma Kant JhaSE Bihar WRD
12. Ms. Arunima ChandraYP, NITI Aayog