NDMA ROAD AHEAD

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ROAD AHEAD FOR NDMA FOR MITIGATION AND CAPACITY BUILDING

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NDMA ROAD AHEAD

  1. 1. SUNIL KOHLI INDIAN DEFENCE ACCOUNTS SERVICE JOINT SECRETARY AND FINANCIAL ADVISER NATIONAL DISASTER MANAGEMENT AUTHORITY, MINISTRY OF HOME AFFAIRS, INDIA 1
  2. 2. NDMA: ROAD AHEAD • 13TH FINANCE COMMISSION RECOMMENDATIONS • 11TH PLAN DOCUMENT • 12TH PLAN 22 TALK TOPIC
  3. 3. NDMA: ROAD AHEAD Implications and Action Plan on 13th Finance Commission Report 3
  4. 4. Outline • Terms of Reference to 13th Finance Commission on DM • Review of Existing System • Existing System & Disaster Management Act • Recommendations • Action Plan for Implementation 4
  5. 5. Terms of Reference to 13th Finance Commission on DM • ‘…review the present arrangements as regards financing of disaster management with reference to the National Calamity Contingency Fund and the Calamity Relief Fund and the funds envisaged in the Disaster Management Act, 2005’ 5
  6. 6. Review of Existing System Current schemes of CRF and NCCF have served their purpose ( Para 11.61) Since the objective of CRF is to meet expenditure on relief only, therefore size of it is decided determined on the basis of past expenditure of the states on calamity (Para 11.62) 6
  7. 7. Existing System and Disaster Management Act The Act specifies separate funds for response and Mitigation ( Para 11.67) The Act provides for clear administrative structures from the central to the district level in terms of disaster management authorities and executive committees (para 11.68) 7
  8. 8. Recommendations Financing Arrangements Mitigation Reserve Funds for Pooled Procurement Administrative Mechanism Capacity Building List of Natural Calamities Risk Transfer and Insurance Revamping Fire & Emergency Services 8
  9. 9. Disaster Mitigation  Mitigation and reconstruction activities to be kept out of the schemes funded through FC grants and be met out of overall development plan funds of the Centre and the states (Para 11.83) –Other Salient Points of Recommendation Funding for existing/ current mitigation schemes left to be decided by NDMA and Planning Commission 9
  10. 10. Funds for Pooled Procurement National Inventory of Equipment and Material for providing immediate relief Grant of Rs. 250 Crores in form of revolving fund to NDRF (Para 11.103) • Other Salient Points of Recommendation Cost or rent if items can be reused, to be booked to the overall cost of relief operations incurred by the concerned state government and inventory replenished on regular basis 10
  11. 11. Funds for Pooled Procurement • Action Plan  Recasting of items  Operative Mechanism Fixation of rent  Revolving Fund ?  CNE for procurement  Notification of scheme for National Disaster Response Reserve Concept Capabilities Flexibility 11
  12. 12. Administrative Mechanism  The administrative mechanism for disaster relief to be as prescribed under the DM Act, i.e., the NDMA/NEC at the Centre and the SDMA/SEC at the state level  Financial matters to be dealt with by the Ministry of Finance as per the existing practice (Para 11.105 and 11.106)  Operation of NDRF under overall direction of NDMA  JS(M)/ Director (M) to be part of Impact Assessment Committee  Hon’ble VC to be part of HLEC 12
  13. 13. List of Natural Calamites The list of disasters to be covered under the scheme financed through FC grants to remain as it exists currently ( Para 11.100) • However, manmade disasters of high-intensity may be considered for NDRF funding once norms have been stipulated and requisite additional allocations made to the NDRF (Para 11.100) 13
  14. 14. Risk Transfer and Insurance • A premium based insurance scheme to cover calamities would not be viable (Para 11.71) • At present juncture, insurance schemes do not provide an adequate alternative to government funding for disaster relief ( Para 11.73) 14
  15. 15. 1 5 ISSUES AND GUIDELINES •NDRF Notification •Classification of 13th FC Grant •Disaster Response Fund •Guidelines for National Disaster Response Fund (NDRF) •Guidelines for State Disaster Response Fund (SDRF) •Capacity Building •Guidelines of Capacity Building for Disaster Relief • Revamping Fire & Emergency Services •Guidelines of Local Bodies with Utilisation Certificate
  16. 16. 1 6 GUIDELINES • NDRF Notification •Guidelines for National Disaster Response Fund (NDRF) •Guidelines for State Disaster Response Fund (SDRF) •Guidelines of Capacity Building for Disaster Relief •Guidelines of Local Bodies with Utilisation Certificate •Classification of 13th FC grant • Guidelines are also accessible on the website of Ministry of Finance: •http://finmin.nic.in/TFC/guidelines.asp
  17. 17. Financing Arrangements (Para 11.75-11.82) • Recommendations The existing NCCF to be merged into the NDRF (Para 11.78) Past trends of Outflows to be the basis for appropriations. Alternate source of financing in lieu of cess to be identified ( para 11.78) No action taken as yet The existing CRF to be merged into SDRF. Merger to ensure continuity in the existing schemes of relief financing 17
  18. 18. Financing Arrangements (Para 11.75-11.82) • Recommendations Aggregate size of all SDRF as Rs. 33,581 Crores (Para 11.92) Provisions relating to the DDRF in the DM Act may be reviewed and setting up of these funds left to the discretion of the states (Para 11.96) Prescribed accounting norms to be adhered to for the continuance of central assistance to the SDRFs (Para 11.95). 18
  19. 19. Financing Arrangements (Para 11.75-11.82) • Recommendations SDRFs should be funded by Centre and State Governments in a ratio of 75:25 for general category states and in a ratio of 90:10 for special category states (Para 11.82) NDRF may be operated by The National Executive Committee as provided in the act, under overall directions of the NDMA (Para 11.105) Financial matters to be dealt by Ministry of Finance under overall structure mandated by DM Act ( Para 11.106) 19
  20. 20. Financing Arrangements (Para 11.75-11.82) • Recommendations Notification of the Scheme by the Min of Finance Guidelines to be prepared by the MHA as per the recommendations of the 13FC  NDMA vide DO No 20019/218/09-10 dated 13/4/10 conveyed its comments on above draft guidelines regarding constitution and administration of NDRF/SDRF as sent by DM division of MHA 20
  21. 21. NDRF NOTIFICATION 27.09.2010 2 1
  22. 22. Classification of Grant in Aid 2 2
  23. 23. NDRF ORDERS 2 3Operational Guidelines for constitution and Administration of national Disaster Response Fund (NDRF)
  24. 24. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 2 4
  25. 25. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 2 5
  26. 26. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 2 6
  27. 27. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 2 7
  28. 28. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 2 8
  29. 29. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 2 9
  30. 30. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 3 0
  31. 31. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 3 1
  32. 32. Operational Guidelines for constitution and Administration of National Disaster Response Fund (NDRF) 3 2
  33. 33. SDRF ORDERS 3 3Operational Guidelines for constitution and Administration of national Disaster Response Fund (NDRF)
  34. 34. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 34
  35. 35. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 35
  36. 36. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 36
  37. 37. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 37
  38. 38. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 38
  39. 39. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 39
  40. 40. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 40
  41. 41. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 41
  42. 42. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 42
  43. 43. Operational Guidelines for constitution and Administration of State Disaster Response Fund (SDRF) 43
  44. 44. Capacity Building Guidelines of Capacity Building for Disaster Relief 4 4
  45. 45. Capacity Building • Recommendations  An additional grant of Rs. 525 Crores has been provided for capacity building ( Para 11.102)  Amount to be used for preparation of State and District level Disaster Management Plans and for building capacity  NDMA vide Do No 1-15/2010-P dated 31/3/10 conveyed its above draft guidelines to MHA for issue of guidelines to states and for sending it further to department of Expenditure for release of said allocation. 45
  46. 46. Capacity Building • Issue of Guidelines for release and utilisation of grant-in-aid for Capacity Building for Disaster Response. • Guidelines issued vide No. F 23(32) FCD/2010 Dated 5th October, 2010 by Ministry of Finance, Department of Expenditure, Finance Commission Division 46
  47. 47. Capacity Building • Scheme for release and utilisation of grant-in-aid recommended by the Thirteenth Finance Commission (FC-XIII) for Capacity Building for Disaster Response • 1.FC-XIII has observed that effective disaster response requires trained manpower to deal with complex situations where effective and speedy handling reduces the impact of a disaster on human life and property. Therefore it is necessary to continuously undertake measures to build capacity amongst those responsible for disaster response and augmenting public awareness. Accordingly, FC-XIII has recommended a grant of Rs. 525 crore for building capacity within the administrative machinery for better handling of disaster response and for preparation of district and state level disaster management plans as envisaged under the Disaster Management Act of 2005 (DM Act). 47
  48. 48. Capacity Building • Scheme for release and utilisation of grant-in-aid recommended by the Thirteenth Finance Commission (FC-XIII) for Capacity Building for Disaster Response • 2. This grant will be released in five equal annual instalments, in accordance with the State wise allocation in Annex 11.3 of FC-XIII’s Report-Vol.2, reproduced as Annex-I to these guidelines. • 3. Under section 20 of the DM Act, every state is required to constitute a State Executive Committee (SEC) to coordinate action in accordance with the guidelines laid down by the State Disaster Management Authority (SDMA). The SEC is chaired by the Chief Secretary to the State Government and has as its members four Secretaries of the State Government. • Each State may use the grant amount on activities approved by the SEC in a perspective plan covering the period 2010-15 and action plans for each financial year. 48
  49. 49. Capacity Building • Scheme for release and utilisation of grant-in-aid recommended by the Thirteenth Finance Commission (FC-XIII) for Capacity Building for Disaster Response • 4. These plans would, inter alia, provide essentially for training/capacity building of stakeholders and functionaries in States, preparation of Disaster Management plans based on hazard, risk and vulnerability analysis, and setting up/ strengthening of Emergency Operation Centres (EOCs) in States. • 5. Conditions for release of grant: • (i) The grant will be released in one instalment by May every year. • (ii) The grant for the year 2010-11would be released unconditionally. • (iii) Grants from 2011-12 onwards would be released on receipt of SEC approved working plans and utilisation of previous instalment released as per format at Annex-II (MHA to provide format). 49
  50. 50. Capacity Building • 5. Conditions for release of grant: • (iv) States would send the SEC approved perspective plan for 2010-15 to the Ministry of Finance and Ministry of Home Affairs, by March 2011, and annual plans for each year thereafter before the end of each financial year. • (v) This grant will supplement the existing scheme/budgetary allocation of the Central and State Government as well as any externally aided project for capacity building on disaster management. • (vi) This grant is not to be used for land acquisition or construction activity. • (vii) No permanent liability should be created through the use of this grant. In case there is any such liability extending beyond March 31, 2015, the State Government concerned would be liable to provide for it from its own resources. 50
  51. 51. Capacity Building • 6. This grant would be released by Ministry of Finance (Department of Expenditure) from Demand no.35. • 7. Utilisation of the grant at the State level would be monitored by the SEC. At the centre a review committee, headed by Secretary in charge of disaster management, Ministry of Home Affairs, will be constituted to review the release and utilisation of the grant. The Committee will include a representative from the Ministry of Finance (Department of Expenditure). The Committee shall meet at least once in a year. • 8. The Comptroller and Auditor General of India would undertake audit of expenditure of this grant every year. The State Government shall send a copy of the audit report of the Comptroller and Auditor General of India to the Ministry of Finance and to the Ministry of Home Affairs. • ROLE OF NDMA? • NDMA to put in place monitoring mechanism? 51
  52. 52. Grant for Capacity Building for Disaster Response 52
  53. 53. Revamping Fire & Emergency Services Guidelines of Local Bodies with Utilisation Certificate 5 3
  54. 54. Revamping Fire & Emergency Services • All municipal corporations with a population of more than 1 million (2001 census) must put in place a fire hazard response and mitigation plan for their respective jurisdictions. Publication of these plans in the respective State Government gazettes will demonstrate compliance with this condition (Para 10.160(ix) 54
  55. 55. Revamping Fire & Emergency Services • NDMA argued for allocation of grants worth Rs. 7,000 crore to the states to meet these shortages. • We accept the need to restructure fire and emergency services across the urban and rural areas of the country and recognize that the stipulation in • Para 10.161(ix) is merely a first step. 55
  56. 56. Revamping Fire & Emergency Services • A portion of the grants provided by us to the urban local bodies be spent on revamping of the fire services within their respective jurisdictions. These bodies could provide financial support to the State Fire Services Department towards this objective. In this process, • They could draw upon the expertise of state agencies and the National Disaster Management Agency, as required. 56
  57. 57. Guidelines of Local Bodies with Utilisation Certificate • Guidelines released vide No. 12(2) FCD/2010 Dated 23rd September, 2010 by Ministry of Finance, Department of Expenditure, Finance Commission Division • Recommendations of the Commission contained in paras 10.141 to 10.167 of the report of FC XIII (Vol. I). • The first tranche of the grant has been released on the 14th July, 2010 as provided for in the report of the Thirteenth Finance Commission. • This was released pending issue of guidelines on the above grant and State Government were advised to utilise the first instalment for the year 2010-11 in conformity with the recommendations of the Commission contained in paras 10.141 to 10.167 of the report of FC XIII (Vol. I). 57
  58. 58. Guidelines of Local Bodies with Utilisation Certificate • 6.4.10 Service Delivery Benchmarks: • (i) State Governments must gradually put in place standards for delivery of all essential services provided by local bodies. • For a start, State Governments must notify or cause all the Municipal Corporations and Municipalities to notify by the end of a fiscal year (31 March) the service standards for four service sectors: water supply, sewerage, storm water drainage, and solid waste management proposed to be achieved by them by the end of the succeeding fiscal year. • This could be in the form of a declaration of a minimum level of service for the indicators mentioned against each of these four service sectors in the ‘Handbook on Service level Benchmarks’ published by the Ministry of Urban Development. 58
  59. 59. Guidelines of Local Bodies with Utilisation Certificate • 6.4.10 Service Delivery Benchmarks: • (ii) For example, a State Government may notify before 31 March 2011 that by 31 March 2012, all Municipalities and Municipal Corporations in the State will provide a specified minimum level of service for each of the indicators for the four service sectors of water supply, sewerage, storm water drainage and solid waste management. • These levels may be different for different Municipalities. • The fact of publication of a notification in the State Government gazette in this regard will demonstrate compliance with this condition. 59
  60. 60. Guidelines of Local Bodies with Utilisation Certificate • 6.4.10 Service Delivery Benchmarks: • 6.4.11. All Municipal Corporations with a population of more than 1 million (2001 census) must put in place a fire hazard response and mitigation plan for their respective jurisdictions. • Publication of these plans in the respective State Government Gazettes will demonstrate compliance with this condition. 60
  61. 61. Guidelines of Local Bodies with Utilisation Certificate • Annex – VI • INFORMATION REGARDING COMPLIANCE OF CONDITIONS FOR DRAWAL OF PERFORMANCE BASED GRANT FOR LOCAL BODIES UNDER THE THIRTEENTH FINANCE COMMISSION (2011-12 TO 2014-15) - AS ON 31 MARCH _______ 61 Conditions Corresponding paras in guidelines Status of Compliance (Documents/ Certificates to be enclosed wherever required in support of the compliance Disaster Management Para 6.4.11
  62. 62. Our Comments • NDMA has not been assigned any role in formation and Operationalisation of NDRF/SDRF. 62
  63. 63. Pending Issues • Establishment of National Disaster Response Fund – Rs 250 Cr, as suggested in 13 FC to NDRF for maintaining disaster response reserve, and as provided under Ministry of Finance Grant No 35, under Major Head 3601,Grant -in-Aid for state Govt. is to be allocated to NDMA/NDRF under relevant head. • Establishment of National Disaster Mitigation Fund – Section 47 of Disaster Management Act seeks to provide for constitution of National Disaster Mitigation Fund. 63
  64. 64. Pending Issues • Declaration of Capacity Building for Disaster Resilience” as Separate Sector for Planning Purpose: 12th Plan Point • Capacity Building for Disaster Management should be considered as a separate sector by Planning Commission and Finance Ministry to give proper impetus and due thrust on DM. • This will enable Budget allocation for DM activities at National and State level. 64
  65. 65. Pending Issues • Declaration of NDMA as a Focal Point for Disaster Management 65

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