Lalit Mohan Mishra
Floods are phenomena that affect more people than any other type of natural disaster. Studies reveal that about 21 million people around the world are affected by flooding of rivers each year. World Resource Institute found that 15 countries, topped by India and followed by Bangladesh, China, Vietnam, Pakistan and some other developing nations, account for about 80 per cent of people affected by floods annually.
In India, GDP to the tune of $14.3 billion is exposed to floods annually. Climate change and careless socio-economic development in vulnerable regions are expected to hike the number of flood-affected people to 54 million by 2030.
Orissa has 11 major rivers, of which the Mahanadi is the longest and Bahuda the shortest. These rivers are rainfed, and with 80 per cent of annual rainfall concentrated over three months, the state is highly vulnerable to floods.
High population density in deltaic regions, encroachment of floodplains, poor socio-economic conditions and weak infrastructure make the state more vulnerable. Of the state’s 15.75 lakh hectares, 1.4 lakh hectares are flood prone.
Post Independence the state had reported flooding in 1960, 1971, 1980, 1982, 1994, 1995, 2001 and 2003. Floods have become almost an annual occurrence since 2006.
While some of the flooding is caused by the monsoon, cyclonic systems lead to others. And floods are no longer confined to coastal areas. The worst-affected areas are in deltaic coastal region of Mahanadi, Brahmani and Baitarini.
Urban flooding has emerged as a new challenge for Puri, Bhubaneswar and Cuttack.
Historically, governments have focused on flood relief and management than finding solutions to the problem. The first generation approach to management of floods was to build dams and to distribute relief material.
Hirakud, the dam raised across the Mahanadi in 1957, was chiefly aimed at flood control; so was Salandi dam built in 1965 across Salandi river in Keonjhar; the latter also serves as an irrigation project. Hirakud has become less efficient today as it is caught in conflicting interests of flood control, power generation and water supply.
The old ‘rule curve’ was replaced with one that suggests keeping water level between 619 and 627 feet in the beginning of September against an FRL of 630 feet. This means the dam has less space to accommodate flood water in August or September.
Siltation, too, has reduced storage of Hirakud. Proposals for new dams at Manibhadra to tame the Mahanadi have run into trouble. Dams across other flood-causing rivers and tributaries of Mahanadi are also being discussed.
The Union government has suggested linking of rivers of Orissa with those in neighbouring states to mitigate floods and to improve irrigation potential. But it will be foolish to join the bandwagon without detailed study of its implications.
Besides building dams and repairing embankments, relief distribution is the other component of first generation flood management practices. It is governed by the State Relief Code. Relief politics is unique in Orissa, too.
The second generation approach to natural disaster management was adopted in Orissa after the supercyclone of 1999. The state government shifted its thinking from relief to disaster preparedness. The UN, World Bank and Red Cross were prime movers of this change.
The state formed a special body named Orissa State Disaster Management Authority, formulated a disaster management policy, and created a special police wing, Orissa Disaster Rapid Action Force (ODRAF), as part of its efforts.
Massive cyclone shelters and flood shelters were built. The government also funded dwelling units for the poor and raised pucca buildings for schools. It also carried out a block-wise vulnerability and risk mapping and created preparedness plans.
But are we prepared enough to face a flood effectively this monsoon? The answer is a big ‘NO’.
Flood zones in the state can be placed under three categories: urban floods, deltaic coastal floods and hilly region flash floods. Neither governments nor people is taking any measure to prevent urban floods by clearing drains and preventing development of residential apartments in flood zones.
Flash floods in the hills cannot be stopped, but “preparedness” and mechanisms to cope with them need to be created. People of coastal plains have to be trained to live with floods and to restructure their farming system, habitations and infrastructure.
For example, gheri fishing has to be eliminated as this practice chokes drains. The government should designate the period from Akhaya Tritiya to Raja Sankranti for flood preparedness and create vulnerability and risk reduction plans at panchayat and block Levels. Data concerning population, number of households, and crops should be generated.
Blocks should be made units of flood management and insurance should be promoted. Also, public facilities such as cyclone shelters should be taken away from agencies and converted to “Kalyan Mandaps”.
The state also requires a Floodplain Zoning Act just as Manipur and Rajasthan which would prevent human activity in such areas and allow water to flow into the sea without causing harm. Quick assessment of damage and reports to the central government for assistance are also important. This won’t happen unless a database is generated by July each year. Much remains to be done to reduce Orissa’s vulnerability to flood.
The author is a development and political columnist.
