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Disaster Management
Park's Textbook of Preventive and Social Medicine
Definition of Disaster
A disaster is defined as a serious disruption of the functioning of a community or society involving widespread human, material, economic, or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources.
A hazard is defined as a dangerous phenomenon, substance, human activity or condition that may cause:
- Loss of life, injury, or other health impacts
- Property damage
- Loss of livelihoods and services
- Social and economic disruption
- Environmental damage
India, due to its physiographic and climatic conditions, is one of the most disaster-prone areas in the world, with an average of 8 major natural calamities per year.
Types of Disasters
Disasters are primarily triggered by natural hazards, are human-induced, or result from a combination of both.
A. Natural Hazards
Classified into five major categories (DesInventar 2016):
- Geophysical - Earthquakes, volcanoes, tsunamis, mass movement (dry)
- Hydrological - Floods, mass movement (wet), wave action
- Climatological - Extreme temperature, drought, wildfire
- Meteorological - Storms, cyclones
- Biological - Epidemics, insect infestations, animal incidents
B. Human-Induced Disasters
Divided into three categories:
(a) Sudden disasters:
- Examples: Bhopal Gas Tragedy (Dec 3, 1984) - methyl isocyanate leak, Union Carbide Pesticide Plant, ~3,000 dead, 2 million exposed
- Chernobyl nuclear accident (April 26, 1986) - largest accidental release of radioactive material; deposited >7 million curies of iodine-131, caesium-134/137, strontium-90 across the northern hemisphere
(b) Insidious disasters:
- Long-term chemical/radiation exposure (nuclear factories, labs releasing radioactive substances into air/soil/water)
- Global warming (greenhouse effect) - from burning fossil fuels
- Ozone layer depletion - chlorofluorocarbons
(c) Wars and civil conflicts:
- Since WWII: ~127 wars, 21.8 million war-related deaths, >50% civilians
- Chemical, Biological, Radiological, Nuclear (CBRN) disasters
Disaster Management - Definition
The UNISDR defines disaster risk management as:
"The systematic process of using administrative decisions, organizations, operational skills and capacities to implement policies, strategies and coping capacities of the society and communities to lessen the impacts of natural hazards and related environmental and technological disasters."
It comprises all forms of activities including structural and non-structural measures to:
- Avoid (prevention)
- Limit (mitigation and preparedness)
adverse effects of hazards.
Three Fundamental Aspects of Disaster Management
- Disaster Response
- Disaster Preparedness
- Disaster Mitigation
These three aspects correspond to different phases of the Disaster Cycle (Fig. 1):
Fig. 1 - Management Sequence of a Sudden-Onset Disaster (Park's Textbook)
1. Disaster Impact and Response
Search, Rescue and First Aid
- After a major disaster, the need for search, rescue and first aid is so great that organized relief services can meet only a small fraction of demand
- Most immediate help comes from uninjured survivors
- Most injuries are sustained during the impact - greatest need for emergency care in the first few hours
Field Care
- Most injured persons converge spontaneously to health facilities using available transport
- Health service resources must be redirected to this new priority
- Maximize bed availability and surgical services
- Provisions for food and shelter
- Establish a centre to respond to inquiries from patient's relatives
- Priority to victim identification; provide adequate mortuary space
Triage
Triage is the cornerstone of mass casualty management.
Triage consists of rapidly classifying the injured on the basis of the severity of their injuries and the likelihood of their survival with prompt medical intervention.
Principle: "First come, first treated" is NOT followed in mass emergencies.
Priority system:
| Priority | Category | Description | Colour |
|---|
| 1 | Immediate (T1) | Life-threatening but salvageable with simple interventions | Red |
| 2 | Delayed (T2) | Serious but can wait without immediate life risk | Yellow |
| 3 | Minor (T3) | Walking wounded, minor injuries | Green |
| 4 | Expectant (T4) | Moribund/unsalvageable; require massive resources with questionable benefit | Black/Blue |
- Triage should be carried out at the site of disaster to determine transport priority
- Reassessment occurs on arrival at hospital/treatment centre
- Higher priority is granted to victims whose immediate or long-term prognosis can be dramatically affected by simple intensive care
- Moribund patients requiring enormous attention with questionable benefit have the lowest priority
- Persons with minor/moderate injuries should be treated at home to avoid draining resources
- Seriously injured should be transported to hospitals with specialized treatment facilities
Tagging
All patients should be identified with tags stating:
- Name, age, place of origin
- Triage category
- Diagnosis
- Initial treatment given
Care of the Dead
- Care of the dead is an essential part of disaster management
- Large numbers of dead can also impede rescue activities
- Steps: (1) Removal from scene → (2) Shift to mortuary → (3) Identification → (4) Reception of bereaved relatives
- Health hazards from cadavers are minimal if death was from trauma
- Bodies may contaminate water sources in floods, potentially transmitting gastroenteritis or food poisoning
- The dead bodies represent a delicate social problem
2. Relief Phase
Begins when assistance from outside starts to reach the disaster area.
Critical health supplies needed immediately:
- Treatment of casualties
- Prevention of communicable diseases
Subsequent supplies needed:
- Food, blankets, clothing, shelter
- Sanitary engineering equipment and construction material
Four principal components in managing humanitarian supplies:
- Acquisition of supplies
- Transportation
- Storage
- Distribution
A rapid damage assessment must be carried out to identify needs and resources.
3. Epidemiologic Surveillance and Disease Control
Disasters increase transmission of communicable diseases through:
- Overcrowding and poor sanitation in temporary resettlements → acute respiratory infections
- Population displacement → introduction of communicable diseases (migrant or indigenous populations may lack immunity)
- Disruption and contamination of water supply, damage to sewerage and power systems
- Disruption of routine control programmes (funds/personnel diverted to relief work)
- Ecological changes favouring vector breeding and increased vector population density
- Displacement of domestic and wild animals carrying zoonoses (leptospirosis, rickettsiosis, rabies, equine encephalitis)
- Emergency food, water and shelter from new sources may themselves be sources of infection
Most common post-disaster disease: Gastroenteritis (related to water contamination, overcrowding, poor sanitation).
Principles of communicable disease control after disaster:
- (a) Implement public health measures as soon as possible to reduce disease transmission risk
- (b) Organize a reliable disease reporting system to identify outbreaks and initiate control measures
- (c) Investigate all reports of disease outbreaks rapidly
Vaccination Policy After Disasters
WHO does NOT recommend mass typhoid and cholera vaccination in routine use in endemic areas post-disaster, because:
- Mass vaccination requires large numbers of workers who could be better employed elsewhere
- Poor supervision of sterilization and injection techniques may cause more harm than good
- Mass vaccination creates a false sense of security and leads to neglect of effective control measures
Recommended instead: Supplying safe drinking water and proper disposal of excreta remain the most practical and effective strategies.
Tetanus: Significant increase in tetanus after natural disasters is uncommon. Mass tetanus vaccination of the population is usually unnecessary. Best protection: maintenance of high pre-existing immunity + adequate wound cleaning. A booster is indicated if immunization was >5 years ago in a patient with open wound.
Vaccinations recommended specifically for health workers.
4. Rehabilitation
The final phase - restoration of pre-disaster conditions.
Rehabilitation starts from the very first moment of a disaster.
In the first weeks, health needs shift rapidly from casualty treatment to routine primary health care, then to environmental health measures.
Key rehabilitation priorities:
Water Supply
- Survey all public water supplies (distribution system + source)
- Priority: chlorination (residual chlorine 0.2-0.5 mg/litre)
- Low water pressure increases risk of pollutant infiltration into water mains
- Protection measures for water sources: restrict access (fencing/guard), ensure safe excreta disposal at safe distances, prohibit upstream contamination activities
Food Safety
- Poor hygiene is the major cause of food-borne disease in disaster situations
- Kitchen sanitation is of utmost importance in shelters/camps
- Monitor personal hygiene of food handlers
Basic Sanitation and Personal Hygiene
- Prompt attention to excreta disposal and personal hygiene
- Defecation fields at safe distance from living areas, water sources, and food preparation areas
5. Disaster Mitigation in Health Sector
Emergency prevention and mitigation involves measures designed to prevent hazards from causing emergencies or to lessen their effects.
Measures include:
- Flood mitigation works
- Appropriate land-use planning
- Improved building codes
- Reduction or protection of vulnerable populations and structures
The direct responsibility of the health sector in mitigation is limited to:
- Ensuring safety of health facilities
- Ensuring continuity of public health services (water supply, sewerage systems)
6. Disaster Preparedness
Definition: "A programme of long-term development activities whose goals are to strengthen the overall capacity and capability of a country to manage efficiently all types of emergency. It should bring about an orderly transition from relief through recovery, and back to sustained development."
Objective: Ensure that appropriate systems, procedures and resources are in place to provide prompt, effective assistance to disaster victims.
Why Community Preparedness is the Cornerstone
(a) Community members have the most to lose from vulnerability and most to gain from preparedness
(b) First responders come from within the community; external response may not arrive for days when transport/communications are disrupted
(c) Resources are most easily pooled at community level; failure to use community capabilities is poor resource management
(d) Sustained development is best achieved by allowing communities to design, manage, and implement assistance programmes themselves
Eight Key Tasks of the National Preparedness System
- Evaluate the risk of the country or region to disaster
- Adopt standards and regulations
- Organize communication, information and warning systems
- Ensure coordination and response mechanisms
- Adopt measures to ensure financial and other resources are available and can be mobilized
- Develop public education programmes
- Coordinate information sessions with news media
- Organize disaster simulation exercises that test response mechanisms
Policy Development in Disaster Preparedness
Policy "establishes long-term goals, assigns responsibilities, establishes recommended work practices, determines criteria for decision-making."
Six sectors required for response and recovery strategies:
- Communication
- Health
- Social welfare
- Police and security
- Search and rescue
- Transport
7. Man-Made Disasters - Public Health Response
The primary response is primary prevention - prevention of occurrence:
- Tighter regulations of chemical plants and hazardous facilities
- Build chemical plants away from densely populated areas
- Appropriate engineering and technological measures (building codes, dam designs, containment of toxic materials)
- Early warning systems
- Protection against human errors
8. Disasters in India
India is the highly disaster-prone country in Asia-Pacific region, averaging 8 major natural calamities per year.
| Region | Disaster Type |
|---|
| Northern mountains/foothills | Snowstorms, landslides, earthquakes |
| Eastern coastal areas (AP, WB, Odisha) | Severe floods and cyclones |
| Bihar, Assam, UP | Major floods almost every year |
| Western desert areas | Droughts |
Notable Indian Disasters:
- Bhopal Gas Tragedy (1984) - world's worst industrial disaster
- Odisha Super Cyclone (29 Oct 1999)
- Gujarat Earthquake (~16,480 deaths)
- Indian Ocean Tsunami (Dec 2004, >200,000 deaths)
- J&K Earthquake (7.4 RS, 2,100 dead, 30,000 injured)
- Uttarakhand cloudburst/floods, Kedarnath (June 2013, ~5,748 dead)
- Kashmir valley floods (2014)
Institutional Framework in India
| Body | Role |
|---|
| Ministry of Home Affairs (MHA) | Overall coordination of disaster management |
| Cabinet Committee on Security (CCS) | Top-level decision-making |
| National Crisis Management Committee (NCMC) | Key committee for disaster decisions |
| National Disaster Management Authority (NDMA) | Lead agency - prepares DM plans and executes DM functions at national level |
| State Disaster Management Authority (SDMA) | State-level disaster management |
| State governments | Responsible for execution of relief work in natural disasters |
| Government of India | Supplementary financial support to states |
Legal framework: The Disaster Management Act, 2005 provides for setting up of NDMA at national level and SDMA at state level.
Personal Protection Measures - General Rules (for all emergencies)
- Do not use the telephone except to call for help (keep lines free for emergency response)
- Listen to radio and media for official updates
- Follow official instructions given over radio or loudspeaker
- Keep a family emergency kit ready
Principle: "Be prepared rather than get hurt; get information to get organized; wait rather than act too hastily."
Summary: The Disaster Management Cycle
| Phase | Timing | Key Activities |
|---|
| Preparedness | Before disaster (risk reduction) | Planning, training, simulation exercises, warning systems |
| Mitigation | Before disaster (risk reduction) | Flood works, building codes, land-use planning |
| Response | Immediately after impact | Search & rescue, triage, first aid, relief supplies |
| Rehabilitation | Weeks after disaster (recovery) | Water/sanitation restoration, primary health care |
| Reconstruction | Long-term (recovery) | Rebuilding infrastructure, sustained development |
- Park's Textbook of Preventive and Social Medicine, pp. 898-903