Porag Shome is an Assistant Professor at Azim Premji University with 12 years of experience in academics and another 12+ years of experience in Social Change and Impact Management.
Based on community-sourced insights, this case study collates the impact on people’s life following the Barak river flood in June 2022, the relief and humanitarian aid process while (re) emphasising the need for timely and time-bound disaster response and the importance of HRVA-based local DRR plans. The paper also assesses the disaster management strategies and approaches adopted by the community, local citizen associations, NGOs and state agencies to comment on the future DRR strategies essential for Silchar (Assam) and geographies with similar hazard profiles.
Globally, it is well recognized that natural and man-made disasters and the associated losses have increased manifolds in the last two decades. The increasing frequency and intensity of disasters have led to tremendous loss of life, property, and ecosystem while undoing and eroding the gains from Development interventions. While there is widespread loss of life and property after disasters, the long-term impacts (economic loss, psychological and social breakdown) are more damaging for any community.
The international frameworks [See: Hyogo Framework for Action 2005–2015 and its successor document, the Sendai Framework for Disaster Risk Reduction, adopted in Japan in March 2015, and The Paris Agreement on Climate Change, 2015] and the National Policy of India on Disaster Management emphasize institutionalizing community-led disaster risk reduction to make all stakeholders disaster resilient and significantly reduce the loss of lives and assets while being prepared for the post-disaster situation. The increased inability to recover from the over-lapping disasters reinforces the need for a two-pronged disaster management strategy at the National and local levels. A strategy committed to institutionalizing and mainstreaming DRR into development intervention on the one hand and a robust response mechanism if any disasters happen on the other is urgent.
Based on community-sourced insights, discussions with CSO representatives, and sitreps by State agencies, this paper collates the process and impacts of relief and humanitarian aid following the Barak river flood in June 2022 while emphasizing the need for timely and time-bound disaster response and the importance of HRVA-based local DRR plans. It also brings out the dynamics of State and non-State actors engaged in the relief operations.
Background: Silchar Floods (2022)
Due to incessant rains in the upper catchment area, the water level of the Barak river was rising steadily. On June 19, in the late evening, the Betkundi dyke on the river collapsed, resulting in the Silchar’s complete inundation and marooning. The sudden surge of water left the people scrambling for dry land and saving themselves. By June 20, Silchar was rendered helpless with no electricity and disrupted communication with no rail, road, or air connectivity. Water in several places was reportedly neck-deep, while the rest were submerged up to waist level.
Initial Rescue, Response, and Aid
The inundated situation continued to be grave for the next ten days, with water gushing in from the broken dyke on the Barak river. The situation of people worsened with no access to water, food, medicine, electricity, or communication. The mobile phones and water purifiers became useless because of no electricity supply.
The people of Silchar (themselves) were the first responder to this condition, along with different citizen groups and civil society organizations (CSOs), on June 20, 2022. The CSOs focussed their limited resources on such people who were struggling in the standing water, especially families with elderly and children. A handful of CSOs and citizen groups with access to boats rescued people from inundated situations and transferred critical patients and pregnant women to hospitals. Many people were rescued and moved to higher grounds, local hotels, or administrative buildings.
The roads, railways, and air connectivity were severely impacted, and little could have been done to operationalize those in the standing water. The Silchar airport was operational and provided an opportunity to ensure a speedy inflow of supplies and evacuation of the most vulnerable or who required tertiary level medical care. The challenge was to reach the airport. Many who traveled during these days mentioned that they had to wade through standing water for more than 2-3 km to reach the nearest taxi point or bus point (Sadarghat was where people could get a taxi or ASTC bus to the airport). Wading through flowing water along with the elderly and children, and luggage became challenging and risky for all who had the scope of leaving the city.
Eight NDRF teams consisting of 207 personnel and an army unit of 120 personnel were deployed from June 21 for immediate rescue operations and aid distribution. The Assam government had also requisitioned the IAF to airlift petrol, diesel, and geo-bags to Silchar to address the flood situation. Dry foods, water, and other essentials were air-dropped by IAF in several places of the city, bringing required respite to the people without food and water for 3-4 days. The State’s humanitarian response was in tandem with the initial response by the citizen group and civil societies. Mr. Nabarun Purakayastha, President of Bangalore Sreehatta Samellani (BSS), says, ”we are from Silchar but residing in Bengaluru currently. BSS bought a small boat with the help of partnering NGOs of Silchar on the first day of the flood. We used the boat to rescue people who were entirely in water. We were able to rescue many elderlies, ailing and pregnant women, and helped them to reach safe places and hospitals.”
The reports from local volunteers and people revealed that many families did not have access to food and potable water for 3-4 days and had no means to boil or purify the water for drinking. Many restored to collecting rainwater for drinking. The condition of the children was very deplorable, with no food, water and medicines. Over time, these civil societies (such as BSS, Team Milaap, Rising Youth Society, Khalsa Aid, Marwari Yuva Manch, Hemkunt Foundation, Eco Alarmist, Jubashakti, and Robinhood Army, to name a few) provided dry food, potable water, medicines, and sanitary napkins. Most of these CSOs were present on the ground ZERO from day one. Due to closed markets, flooded godowns, and strong water currents flowing through the city, it was challenging to access relief materials and distribute them to every corner of the town.
Water, Sanitation, and Hygiene
It is a well-established fact that public health is seriously disrupted in disasters and more so in floods due to lack of clean water, absence of sanitation and the filth left by the receding water. Silchar now faces the enormous challenge of clearing the debris, mud, silt, and dead bodies as the stagnant water recede. Several families discharged dead bodies in the flood water with severe inundation and no access to the cremation ground and dry woods. The contamination of water bodies has made water quality questionable and increased the risk of water-borne diseases in the city and nearby areas. The State pressed 13 water pumps into service to clear the water-logged areas. Another challenge as the water started receding was restoring the water supply and ensuring proper sanitation in public places. Most water sources were contaminated with debris, and toilets were rendered useless due to standing water and later silt deposition. All the relief agencies provided packaged drinking water to the people. However, provisions for temporary toilets were not reported by any respondents. The administration provided drinking water through tankers in localities adjacent to main roads (after the third and fourth day of the flood). While the administration was able to distribute water on main roads through tankers, the volunteers from different NGOs reached the interior areas from day one of the floods.
Food, Nutrition, and Health
Access to food and potable water was severely disrupted during the flood and further accentuated due to closed roads, railways, and a marooned airport. Food storage units were also inundated, and the stored grains were damaged. The only source of food and water was the supplies made by the administration, CSOs, and the Indian Army in the initial days. As the water recedes, there is a high risk of food shortage and malnutrition, especially amongst the poorer section of society. With most of the vegetables and crops destroyed, tillable lands covered with flood residues, sludges, and loss of other livelihood means, access to food and proper nutrition will be a big challenge in the near future.
Along with possible food insecurity, there is a high risk of water-borne diseases and other ailments, while the danger of widespread Covid-19 infections looms large. The human and animal dead bodies washed away in the flood water might contaminate the water bodies and underground water. Another immediate challenge (in the first 4-5 days) was access to prescribed medicines, as most of the pharmacies were closed. Those functional could only partially meet the demands as the leading distributors’ storehouses were inaccessible. Many could not reach these medical shops because of standing water. The Silchar Medical College and Silchar Civil Hospital were functional but on less staff. The service providers, in many cases, could not reach their duty location. Several CSOs used boats and braved standing water to distribute medicines in the initial days and later organized medical camps in the most underserved localities. There was an urgent need to prevent disease spread due to widespread debris, contaminated water, rotting plants, animals, and human bodies.
Dr. Sanhita Nath (one of the doctors who volunteered for the several medical camps organized by BSS) says, “ we are providing both curative and preventive medicines on a case-by-case basis. Most people complain of gastric issues, skin irritation, fever, cold, and loss of appetite. Fever and scabies are common among children”. The women across the age groups specifically faced severe challenges in maintaining personal hygiene. Several women said they could not relieve themselves due to limited or no access to private or covered toilets. This has furthered health issues among many. Dr. Sulagna Roy adds, “It was tough for the pregnant women considering the special care required at this time. Many women reported UTI, tingling sensations, weakness, loss of appetite, and menstrual problems. Many reported upset menstrual cycle of the extreme mental stress.” Besides addressing the physical ailments, it would be pertinent to address the increased risk of mental stress and post-traumatic disorders, especially amongst the vulnerable sections of the city. Identifying post-traumatic disorder symptoms and indicators would be a daunting task that requires immediate attention. Along with medical camps, awareness camps for understanding and identifying trauma and mental stress would be an immediate health need.
Livelihood and Economy
The discussion with the flood-affected families reveals that there is widespread loss of productive assets, employment, and income sources, and widespread loss of resources to restart livelihoods. Agriculture, one of the prominent livelihoods of the area, is badly affected. The entire investment in land preparation was lost, and the farmers were unsure of sowing crops after the water receded. Many lost their entire vegetable crop (such as ridge gourd, lady’s finger, chilly, etc.), which was ready to harvest.
Mr. Amit Das (a volunteer with local CSO and general secretary of Hari Naam Kirtan Committee, Phulertal) informed that as the water started entering Silchar city, people on the outskirts started evacuating their animals to higher grounds or left them on national highways. However, many animals died from hunger as they were stranded on higher grounds and roads for a long time. A poultry farmer said, “as we came to know water level in Barak is reaching the danger level, we started selling our birds at substantially low rates. We will not be able to recover the input cost.” Farmers practicing pisciculture reported that all the fishes have moved out of the ponds along with the flood water. Mr. Amit adds, “it will be tough for people into pisciculture and poultry to bounce back and restart their livelihoods.”
It is pretty early to provide an estimate of the total loss and the impact on the economy as well as the life of the people; however not hard to predict that the economy of the area would be severely affected due to the flood and bouncing back to normalcy would take humungous effort from the State and time. In the coming days, the failed crops and uncertainty will push people into poverty and add to the food crisis discussed earlier.
Mr. Tapan Das (AVP, IMF Growth Initiative, Max Life, Bangalore) adds, “The people should learn from such disaster. They must take insurance (life, assets, health, crops, and general categories) to protect their livelihood resources, life, and houses. Such financial vehicles help people to tide over such crises with less difficulty.” A comment which reemphasizes the importance of crop and other insurances for people living in high disaster risk zones and highlights the role of the State in ensuring the social security of the citizens, especially those who are particularly poor and vulnerable.
Way Forward
The author’s close association with different CSOs in Silchar and the interactions with the community have offered several vital lessons on the potential DRR strategies essential for Silchar (Assam) and geographies with similar hazard profiles.
Although it is challenging to anticipate floods of this nature and scale, it is not entirely impossible considering the history of the region’s disaster. The Assam State Disaster Management Authority (ASDMA) has access to advanced technology (FRIMS and flood inundation mapping by NRSC) for a real-time flood reporting system. Such advanced technology could be instrumental in developing disaster preparedness plans and reducing the impact on the historically poor and marginalized people’s lives, livelihoods, health, education, and financial assets. Such advanced technology can provide strategic information to local government agencies for appropriate action.
Immediate and quick response during any disaster is critical for effective disaster management, and an empowered community can considerably reduce the response time. This is a critical lesson for the local civil administration and the health system to have a community-led response plan in readiness along with institutionalized community-based risk reduction mechanisms. Timely response from NDRF, Army, CSOs, and citizens also (re) emphasizes the criticality of the inter-agency cooperations for search, rescue, and extending humanitarian aid. Such inter-agency coordinated effort should result in a local “Rapid Disaster Response Team” comprising of professionals (healthcare, firefighters, and rescue), civil administration and police, representatives of the local community, panchayat/corporation, and CSOs. Nevertheless, such actions must agree with the guidelines and protocols on disaster preparedness, disaster response, and DRR issued by the NDMA of India.
The Silchar flood experience also calls for conducting Hazard Risk and Vulnerability Analysis (HRVA) systematically and frequently. It is pertinent to identify and analyze the region’s hazards and risk data, differential exposure, community’s coping mechanisms and resilience, and vulnerability at the granular level to work toward dynamic disaster risk reduction strategies for the region and the State. Moreover, it must be considered a part of the region’s regular development initiatives. Along with conducting HRVA, educating the community on risk reduction and an early response would be equally essential. The experience of the 2022 flood reestablished the fact that the community if empowered adequately, can be the first agency to respond to any disaster. They can respond immediately in the initial critical period and, if adequately capacitated, will not require any external aid immediately. The empowerment and education process can start at various levels and reemphasize the need for DRR education at the school level. The State Education Department with ASDMA can plan for the appropriate inclusion of DRR at the school level or special drive at the school level to raise awareness of flood preparedness and response. In the long run, such efforts will eventually lead to an empowered set of citizens ready for effective and immediate flood response.
The third critical aspect would be built in appropriate preparedness plans and capacities within the health system at the district level. Availability of emergency medical support within a few hours or days (as may be the case) is crucial for the people. While the system ought to be prepared for immediate first aid and medical care, it should also be prepared for communicable and water-borne diseases, a common phenomenon after the water recedes. Continuous capacity building for the health professionals and community members on aspects such as rescuing, administration protocols during emergencies, mass casualty management, appropriate communication, and medical care during disasters are essential and non-negotiable. Finally, the State and non-State agencies providing medical services should also look into the immediate and long-term psychological impacts. The agencies should be well-prepared to provide such services as a policy in geographies prone to annual disasters.
The fourth critical consideration is to strengthen disaster risk governance. The NDMA and SDMAs are committed to strengthening disaster risk governance in every part of the country (see Disaster Management Act of 2005 and the National Policy on Disaster Management, 2009). Connected to this is the investment and political will required to enhance the resilience of communities and promote effective DRR. Such investments should not only focus on infrastructural resilience but also on strengthening community-level reliance through appropriate training and developing adequate social capital. The practice of preparing ‘district-level preparedness assessment scorecards’ by ASDMA should be institutionalized and regularly reviewed to identify critical gaps and strengthen the flood preparedness of all stakeholders.
The next critical lesson from the Silchar flood is understanding human behavior. The panicky and lawless behavior of the affected population, which is widely discussed academically, was observed in Silchar. Several cases were reported where relief materials were snatched away, or boats carrying relief materials were diverted. Several localities reported attempted burglary cases. Though such experiences were few, yet highlight crucial considerations for disaster preparedness.
On the other hand, the Silchar flood also brings forth the overwhelming prosocial and altruistic behavior of citizen groups and CSOs aimed at promoting the welfare and protection of fellow citizens. Such experiences again highlight the importance of investment in bolstering social capital, reciprocity, and resilience within the community. The presence of formal and informal networks at the disaster site results in an instant trigger of the support mechanisms and thus calls for an investment in a more organized formal citizen’s disaster management group at a granular level, structured disaster risk education and training, and appropriate decision-making capacity vested at the local level.
Finally, academic research and practitioners’ experiences have continuously revealed that the impact of any disaster on individuals, households and societies is multidimensional. And any attempt to reduce the impacts would include conscious interventions towards understanding vulnerabilities, reducing risk, enhancing resilience, and strengthening community preparedness, while mainstreaming disaster risk reduction (DRR) measures into development thinking and planning.
