The Sri Lankan Parliament Select Committee to Recommend Steps to Minimize the Damages from Natural Disasters

The Mandate

When the tsunami hit people in Sri Lanka were not ready. In the light of the fact that the people of Sri Lanka were not prepared to face an event of this nature and the unpredictable and destructive nature of the tsunami event, on a motion moved in Parliament on 10.02.2005 the Parliament Select Committee consisting of 21 members from all political parties represented in Parliament was appointed with a mandate to:

Investigate whether there was a lack of preparedness to meet an emergency of the nature of the Tsunami that struck Sri Lanka on 26th December, 2004 and to recommend what steps should be taken to ensure that an early warning system be put in place and what other steps should be taken to minimize the damage caused by similar natural disaster’.

By unanimous choice of Parliament, Hon. Mahinda Samarasinghe, Chief opposition Whip of Parliament was appointed the Chairman of the Committee and the committee commenced its proceedings on February 11, 2005 and had 28 sittings up to the date of submitting this Report. The Committee heard the evidence of relevant personnel, went on field visits and participated in several local and foreign study tours.

Members of the Committee:

Hon. Mahinda Samarasinghe, MP Chief Opposition Whip

Other Members

Hon. (Mrs.) Ferial Ismail Ashraff, MP Minister of Housing and Construction Industry, Eastern Province Education and Irrigation Development

Hon. Lakshman Kadirgamar, MP Minister of Foreign Affairs

Hon. Dinesh Gunawardena, MP Minister of Urban Development and Water Supply

Hon. D. E. W. Gunasekera, MP Minister of Constitutional Reforms

Hon. Douglas Devananda, MP Minister of Agricultural Marketing Development, Co-operative Development, Hindu Affairs and Assisting Education and Vocational Training

Hon. Jeyaraj Fernandopulle, MP Minister of Trade, Commerce and Consumer Affairs

henHon. (Prof.) Tissa Vitharana, MP Minister of Science & Technology

Hon. Mangala Samaraweera, MP Minister of Ports & Aviation and Information & Media Deputy Minister of Education

Hon. Maithripala Sirisena, MP Minister of Mahaweli and River Basin Development and Rajarata Development

Hon. Muthu Sivalingam, MP Minister of Estate Housing, Infrastructure and Community Development

Hon. Bimal Rathnayaka, MP Deputy Minister of Agriculture, Livestock, Land and Irrigation

Hon. Vajira Abeywardena, MP

Hon. John Amaratunga, MP

Hon. Mohamed Musthaffa, MP

Ven. Athuraliye Rathana Thero, MP

Hon. Sagala Ratnayaka, MP

Hon. Nadarajah Raviraj, MP

Hon. Mahinda Wijesekera, MP

Hon. Rajavarothiam Sampanthan, MP

Hon. Rauff Hakeem, MP

Secretary Ms. Priyani Wijesekera Secretary General, Sri Lanka Parliament

By unanimous choice of Parliament, Hon. Mahinda Samarasinghe, Chief opposition Whip of Parliament was appointed the Chairman of the Committee.

This committee commenced its proceedings on February 11, 2005 and had 28 sittings up to the date of submitting this Report. The details of committee deliberations and presentations made are all uploaded on the committee website:

http://www.srilankanparliamentonnaturaldisasters.org . This is updated regularly.

Deliberations of the Select Committee, Local and Foreign Study Tours

The Committee heard the evidence of experts in the relevant fields, public officers, senior officers and commanders of the armed forces, Police and officers of the relevant government and private agencies; civil society organizations; and provincial, district and division authorities. The Committee also along with media personnel went on a field visit to the Geology Centre in the University of Peradeniya, the Pallekele Seismological Centre and Kuliatta, an identified landslide prone region in Kandy. The committee also visited the Tsunami-hit areas of Galle, Matara, Hambantota, Ampara districts and one of the worst affected areas of Kalmunai in Ampara district. The Committee Members also participated in several local and foreign study tours. The agencies represented, a list of those who made presentations and participated at the deliberations are appended at the end of this report. Some very important information gathered during foreign visits too is appended as appropriate.

These have been taken in to consideration in compiling the recommendations in this report.

This Committee wishes to place on record its appreciation of the valuable assistance rendered by the United Nations Development Programme, International Organization for Migration, Government of Australia and AUSAID, US State Department and the Governments of India, Italy, Japan, South Korea, Turkey, Germany and Indonesia.

The Committee in the course of deliberation agreed that the Parliament should appoint a Select Committee to examine and report on man-made disasters which the present Select Committee was unable to look into as a result of the Terms of Reference limiting its work to Natural Disasters. This should be followed up.

Foreword
Towards a “Safer Sri Lanka”

It has been my pleasure to chair this Select Committee constituted by the Sri Lankan Parliament to ‘investigate whether there was a lack of preparedness to meet an emergency of the nature of the Tsunami that struck Sri Lanka on December 26, 2004 and to recommend what steps should be taken to ensure that an early warning system be put in place and what other steps should be taken to minimize the damage caused by similar natural disasters’.

This Select Committee has adopted a truly bipartisan approach, consisting of senior ministers in the government and other senior members of parliament, who participated actively in the deliberations and study visits, despite their busy schedules. The proceedings of the various deliberations have been conducted in a very fair and impartial and constructive manner, leading to some very important recommendations.

I take this opportunity to thank the experts, officials, various organizations- government departments, universities, national/ international NGOs, media and various individuals too numerous to be named, for their valuable contributions in the proceedings of the select committee and for their submissions.

I also wish to acknowledge the invaluable support provided by various governments and international agencies for arranging eye-opening, invaluable study visits to different countries. Most of these countries visited have highly effective mechanisms for mitigating disasters and for reducing their impacts on lives and economy and the experiences from these study visits have contributed a lot towards the select committee’s recommendations.

I also wish to put on record the valuable contribution of the UNDP and IOM in supporting the committee with technical inputs and assisting the select committee with this report.

The Committee also wishes to express its sincere appreciation for the assistance and cooperation extended by the Parliament Staff.

It is also my sincere belief that since the recommendations have been arrived at, by consensus, and considering the bipartisan approach of the committee, any government would be in an excellent position to implement these recommendations towards a ‘safer Sri Lanka’

Mahinda Samarasinghe, MP
Chief Opposition Whip
Chairman- Sri Lankan Parliament Select Committee on Natural Disasters

	Contents
		Pg. No.
	Executive Summary	09-13
	Key Recommendations	14-19
	Acronyms and Abbreviations	20-21
PART I - BACKGROUND AND INSTITUTIONAL FRAMEWORK Chapter 1
1	Background	23
	1.1 Tsunami of 26.12.2004	23
	1.2 The Geo-physical Perspective	24
	Earthquakes	24
	Tsunamis	25
	1.3 Appointment of the Parliament Select Committee (PSC)	26
	1.4 Deliberations of the Select Committee, Local and Foreign Study Tours	27-28
Chapter 2
2	Proposed National Mechanism for Disaster Risk Management	29
	2.1 Linkage with the disaster management bill	29-30
	2.2 Legal Powers of each level of Government – National, Provincial, District, Divisional, Local and Village Levels	31
	2.3 Institutional framework at the national, provincial, district, division, local and village levels	31
	- Disaster Management Centre (DMC)	32
	- Organizational Structure of DMC	33
	- Multi-disciplinary approach	33-34
	2.4 Approach for Setting Up a National Disaster Risk Management System	35-37
PART II - ESTABLISHING THE NATIONAL DISASTER MANAGEMENT SYSTEM
	Chapter 3
3	Systematic Multi-hazard Mapping Disaster Risk Assessment	39
	3.1 Disasters Prevalent in Sri Lanka	39
	3.2 Multi-hazard Mapping	40
	- Hazard Information	40
	- Hazard Mapping	41
	3.3 Multiple Hazard Risks	41-44
	3.4 Hazard Mapping and Risk Assessment Centre within DMC	44
	3.5 Planning Multi-Hazard Disaster Risk Assessment	45-46
Chapter 4
4	Systematic Data Collection, Research and Analysis	47
	4.1 System for Disaster related Data Collection	47
	4.1.1 Seismic Monitoring Equipment (SME) in Peradeniya	47
	4.1.2 Seismic Monitoring Station at Pallekelle (PALK)	48
	4.2 A National Data Collection Centre within the DMC	48
	4.3 Research	49
	4.4 Disaster Risk Information Systems & Inventory of past disaster impacts	49-50
	4.5 DRM Website	50
Chapter 5
5	Countrywide Disaster Early Warning System	53
	5.1 Mechanism for Coordination and Working with Relevant Early Warning Agencies – International, Regional and Local	53
	5.2 Capacities of Relevant Local Agencies	53-54
	5.3 Early Warning Systems	55
	- Early warning for weather related hazards	55
	- Early warning on riverine floods	56
	- Early warning on possible flooding downstream of reservoirs	57
	- Early warning on possible landslides	58
	- Early warning on coastal flooding and storm surges	58
	- For earthquakes and tsunamis/sea surges	58-59
	5.4 Early Warning Dissemination Systems	60-61
Chapter 6
6	Natural Disaster Mitigation Strategy for each level of Government	62
	6.1 Disaster Mitigation Strategies	62-64
	6.2 Mitigation Approaches	64-65
	6.3 Mitigation Planning and Implementation	65-66
Chapter 7
7	Systems for integrating disaster risk concerns in development	67
	7.1 Integrating DRM in the National Development Process	67
	7.2 Activities required by programmes of UN Agencies	68
	7.3 Codes and Guidelines for Planning and Construction in Disaster Prone Areas	69
	7.4 Land Use Zoning Based on Hazard Maps	70
	7.5 Coastal Area Buffer Zone for Post Tsunami Reconstruction	71
	7.6 Data Base of Lands indicating proneness to various hazards	72
	Development Controls by Different Agencies	73
Chapter 8
8	Natural Disaster Preparedness and Response Planning for each Level of Government	74
	8.1 Disaster Response Organizations	74
	8.2 Decentralization and Devolution of Disaster Management - Experiences from India	74-76
	8.3 Responsibility of Preparation of Disaster preparedness and Response Plans	76-77
	8.4 Emergency Response	77-78
	8.5 Emergency Response by Local Authorities	79
	8.6 Disaster Victim Identification (DVI)	79
	8.7 Scope to be addressed in plans at different levels	79-80
	8.8 Stakeholder Involvement in Disaster Preparedness	80-81
	8.9 Arrangements for Equitable Distribution of Relief and Recovery	82
	8.10 Special Community Recovery Modules	82
Chapter 9
9	Protection of Public Infrastructure from Impacts of Natural Disasters	83
	9.1 Using Information on Multi-Hazard Risks to reduce Vulnerabilities of Infrastructure	83
	9.2 Risk Reduction Strategies	84
	9.3 Existing Infrastructure	84-85
	9.4 Future Development of Infrastructure	86-87
Chapter 10
10	A National Public Education, Training and Community Awareness Programme	88
	10.1 School Education - Incorporating Natural Disaster Risk Management in School Curriculum	88-89
	University Education - Incorporating Disaster Risk Management in University Education	90-91
	10.3 Training	91-92
	10.4 Public Awareness	93-95
	10.5 The Mechanism for Implementing Training and Awareness	95-96
Chapter 11
11	Role of different Stake holders	97
	11.1 Private Sector	97
	11.2 Volunteers	98-99
	11.3 Role of Media in Natural Disaster Management	100
	11.4 Non-Governmental Organizations	101
Chapter 12
12	Conclusions and Summary of Recommendations	102
	12.1 A Five-year Programme for Strengthening Disaster Risk Management System in Sri Lanka	102-103
	12.2 Resource mobilization and Partnership Strategy	103-105
	12.3 Concluding Remarks	105

Annex No.	Annex Title
Annexure 2.1-I	Institutional Framework for National Disaster Management
Annexure 2.1-II	Structure of National Level Response
Annexure 2.3-I	Organization Structure of the Disaster Management Centre
Annexure 2.3-II	Specific existing agencies / stakeholders that would be associated in different phases
Annex 2.3-III	Disaster Risk Management (DRM) Functions and Responsibilities of Agencies
Annex 2.3-IV	An Institutional Capacity Assessment – Natural Disaster Management under the Stock Taking DM in Sri Lanka by UNDP
Annex 3.3-I	Disaster Risk Assessment Process
Annex 3.3-II	Technological Risk Assessment and Requirement Imposed in the US
Annex 3.5-I	Hazard zonation mapping, scientific studies and investigations related to river floods, landslides, reservoir dam safety and coastal floods, and work presently done by different agencies
Annex 3.5-II	Some Suggestions for Survey and research for future disaster mitigation
Annex 5.2-I	Functions of Agencies in relation to Early Warning (Some are already in effect)
Annex 5.2-II	Specific detailed activities for the agencies in early warning in different disaster situations
Annex 5-2-III	Establishment of a 24 hour Operational natural disaster Early Warning System for Sri Lanka including capacity building
Annex 5.3-I	Preparation of Emergency Action Plans including Early Warning Systems for Dams
Annex 5.4-I	National level Response Structure during Warning Stage
Annex 5.4-II	Provincial level Response Structure during Warning Stage
Annex 5.4-III	District Level Response Structure during Warning Stage
Annex 6.3-I	Action Plan for Natural Disaster Management for Nawalapitiya Urban Council Area
Annex 7.1-I	A Process for Mainstreaming of DRM in the National Development Process and some Possible Areas
Annex 8.1-I	Members of National Disaster Management Committees at national, provincial, district and divisional levels
Annex 8.3-I	Conformity of departmental, district, divisional, provincial and local level plans to the national level plans
Annex 8.3-II	Jean-Pierre Massue , Risk reduction and disaster management in Sri Lanka : Local level disaster preparedness and emergency response, Colombo , 4th May 2005
Annex 8.4-I	National Level Response Structure on Occurrence of a Disaster
Annex 8.4-II	Provincial Level Response Structure on Occurrence of a Disaster
Annex 8.4-III	District Level Response Structure on Occurrence of a Disaster
Annex 8.4-IV	District level example of Activation of EOC and Vigilance
Annex 8.7-I	Format of the Village Level Plan
Annex 8.7-II	Coverage of Disaster Preparedness Plans at Other Levels
Annex 8.8-I	Planning for Involvement of Community Based Organizations in the Initial Response
Annex 8.8-II	ACFID Code of Conduct For Non Government Development Organizations
Annex 8.9-I	Report on Internally Displaced Persons in Sri Lanka in the context of the Tsunami Disaster
Annex 9.2-I	Some Examples of Generic Mitigation Measures
Annex 9.2-II	Land Planning and Land Use Measures
Annex 9.2-III	Potential Impacts of Natural Hazards on Highways and Railways
Annex 9.2-IV	Mitigation Measures for Water Supply Systems
Annex 9.2-V	Mitigation Measures for Solid Waste
Annex 9.2-VI	Potential effects of natural hazards on electricity generation and distribution
Annex 9.2-VII	Mitigation Measures for electricity generation and distribution
Annex 10.1-I	Risk Culture: Proposals on education and training: Jean-Pierre Massue, Colombo , May 2005
Annex 10.5-I	Training and Awareness already conducted and Target Groups
Annex 11.3-I	Media Mobilization Guidelines, A – Long Term: natural disaster prevention, preparedness, post disaster recovery at national and local level
Annex 11.3-II	Media Mobilization Guidelines, B – Short Term: natural disaster event, immediate response, social mobilization at national and local level
Annex 12.1-1	Five-year Programme for Strengthening Disaster Risk Management in Sri Lanka

Additional Documents for reference Appendices
Appendix I:	Visits by the Parliament Select Committee – Local and Foreign
Appendix I-1	Foreign Visits
	1 (a) Study Tour to Indonesia	306-307
	1 (b) Study Tour to Australia	308-315
	1 (c) Study Tour to Turkey & Germany	316-331
	1 (d) Study Tour to Japan & Korea	332-348
	1 (e) Study Tour to United States of America	349-354
Appendix 1 – 2	Local Visits
	2 (a) Field Visit to Kandy	355-356
	2 (b) Field Visit to Balapitiya, Hikkaduwa & Matara	357-359
	2 (c) Field Visit to Ampara & Kalmune	360
Additional Appendices
A	Statistics on Impact of Tsunami from some districts	361-381
B	Agencies that attended and made submissions at the Select Committee Meetings	382-383
C	List of personnel with whom the Committee had Deliberations	384-387
D	Summarized Submissions of Representatives	388-400
	Poten	Poten