NIDM

Kerala
National Disaster Risk Reduction Portal

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Map showing boundary and road network (Source:

http://www.mapsofindia.com/maps/kerala/keralaroads.htm)

1. STATE PROFILE 1
1.1

General

Kerala lies along the coastline, to the extreme south west of the Indian peninsula, flanked by
the Arabian Sea on the west and the mountains of the Western Ghats on the east. This land of
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Parasurama stretches north-south along a coastline of 580 kms with a varying width of 35 to
120 kms. Cascading delicately down the hills to the coasts covered by verdant coconut
groves, the topography and physical characteristics change distinctly from east to west. The
nature of the terrain and its physical features, divides an east west cross section of the state
into three distinct regions-hills and valleys, midland and plains and the coastal region.
Located between north latitudes 8018' and 12048' and east longitudes 74052' and 72022', this
land of eternal beauty encompasses 1.18 per cent of the country.
Kerala State at a Glance 2
Date of Formation
Location

Capital
Area
Principal Language
Districts
Taluks
Villages
Statutory Towns
Census Towns
Grama Panchayats
No. of Community Development Blocks
District Panchayats
Municipalities
Highest Populated District
Lowest populated District
Largest District
Smallest District
Longest river
Highest peak
Largest Lake

1.2

1 November 1956
South West tip of the India's main land/
North latitude between 8o 18` and 12o 48`
East longitude between 74o 52` and 77o 22`
Thiruvananthapuram
38,863 sq. km.
Malayalam
14
63
1018
59
461
978
152
14
53
Malappuram
Wayanadu
Idukki
Alappuzha
Periyar
Anamudi
Vembanadu Lake

Physiography2, 3

Physiographically the state can be divided into four domains from east to west, viz., the
Western Ghats, the foothills, the midland and the coastal low- land.
The Western Ghats, bordering the eastern boundary of the State, form an almost continuous
mountain wall, except near Palakkad where there is a natural mountain pass known as the
Palakkad Gap. The average elevation of the Ghats is about 1500 meters above sea level,
occasionally soaring to peaks of 2000 to 2500 m. From the Ghats, the land slopes to the west
on to the plains, into an unbroken coastline.
The foothills of the Western Ghats comprise the rocky area from 200 to 600m.above MSL. It
is a transitional zone between the high -ranges and midland. The strip of hills and valleys on
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the eastern edge, close to the Ghats, comprises of steep mountains and deep valleys, covered
with dense forests. Almost all the rivers of the state originate here.
In the Midland Plains of central region, the hills are not very steep and the valleys are wide.
This forms an area of gently undulating topography with hillocks and mounds. Laterite
capping is commonly noticeable on the top of these hillocks. The low, flat-topped hillocks
forming the laterite plateau range in altitude from 30-200m and are observed between coastal
low-land and the foothills. The valleys have been developed as paddy fields and the elevated
lands and hill slopes are converted into estates of rubber, fruit trees and other cash crops like
pepper, arecanut and tapioca. Tea and coffee estates have cropped up in the high ranges
during the last two centuries.
Coastal low-land is identified with alluvial plains, sandy stretches, abraded platforms, beach
ridges, raised beaches, lagoons and estuaries. The low- land and the plains are generally less
than 10m above MSL. The Coastal Belt strip is comparatively plain. Extensive paddy fields,
thick groves of coconut trees and picturesque backwaters, interconnected with canals and
rivers, are the features of this region. No wonder, Alappuzha an old sea port town of this
region is known as the 'Venice of the East'. In the southern and northern parts of the state, the
coastal belt also has some small hillocks.
There are 44 rivers in the state, of which 41 originate from the Western Ghats and flow
towards west into the Arabian sea. Only three tributaries of the river Cauvery originate in
Kerala and flow east into the neighbouring States. These rivers and streams flowing down
from the Western Ghats either empty themselves in to the backwaters in the coastal area or
directly into the Arabian Sea. As the Western Ghats are nowhere more than 120 kms from the
sea, all these rivers are comparatively short.

1.3

Geology 4

Geologically, Kerala region is a part of south Indian Precambrian terrain. Bulk of the rocks of
Kerala, especially the granulites and associated gneisses belong to Precambrian. Sporadic late
Precambrian-Early Palaeozoic granites and associated pigmatites, and Meso-Cenozoic dykes
intrude these rocks (Soman, 2002). The following figure presents generalized geology map of
Kerala. The Precambrian crystallines consist chiefly of garnet-sillimanite gneisses,
charnockite, pyroxene granulites, hypersthene-diopside gneisses, granites, garnetiferous
leptynite, and garnet-biotite geneiss. The onland sedimentary formations are confined to
Neogene period only. It includes pebble beds, sandstone, grit, clay with shells, marl and lime
stones. All the rock types (crystallines and sedimentaries) are lateritised at variable depth.
Duricrust formations are marked in places. Recent and sub-recent sediments cover the low
lying areas, coastal plain and river valleys.
Rock types, their composition and degree of weathering influence landform development.
Rugged terrains are mostly on hard rocks and radial drainages characterize the areas affected
by granite intrusion. Structural control on drainage pattern and morphology is well
pronounced. Lineaments in Kerala are oriented in the directions of NW-SE, WNW-ESE,
NNW-SSE, N-S, NE-SW and E-W. The NE-SW to ENE-WSW trending lineaments can be
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considered as the youngest (Nair, 1990). River capture, presence of beheaded streams and
elbow shaped right angle turning along river course and unpaired terraces are probable
evidences of neo-tectonic activities.

Map showing Geological map of Kerala

(Source: http://cess.res.in/wp-content/uploads/2013/08/Glimps-of-kerala.pdf)

Soils 5

1.4

Kerala is endowed with a variety of soils thanks to the climate, topography, and vegetation
characteristics. Laterite and loams form the major soil types of Kerala. The other soil types
developed as a result of agro climatic variations include riverine and coastal alluvium, black
soils, and problem soils like acid saline, hydromorphic, and greyish Onattukara.

Red soil: The red colour is due to the presence of Fe2O3.Localised in southern parts of
Thiruvananthapuram. The soil is almost homogeneous. Acidity ranges from 4.8 to 5.9.
The gravel content is comparatively less. Low in essential nutrients and organic
matter.
Laterite soil: Majority of area comprises this type of soil. Heavy rainfall and high
temperature are conducive for laterisation. Laterites are poor in available N and P.
Low in Water Holding Capacity and CEC is low.
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Coastal alluvial soil: Seen in the coastal tracts along the west. They have been
developed from recent marine deposits. Permeability is more. Low organic matter
content. Low CEC. Water Holding Capacity is less.
Riverine alluvial soil: Seen along the banks of rivers. Shows wide variation in physiochemical properties depending on the nature of alluvium and the characteristic of the
catchment area through which the river flows. Organic Matter, N and K are moderate.
Greyish Onattukara soil: Sandy soil confined to the Onattukara region. They occur as
marine deposits and extend to the interior up to the laterite soil. Extremely deficient in
plant nutrients. CEC is also poor.
Brown hydromorphic soil: Localized in river valleys. Mostly confined to the valley
bottoms of undulating topography in the mid lands and low lying areas of coastal
strips. Exhibits wide variation in physico-chemical and morphological properties.
Drainage is the major problem. Moderately supplied with organic matter, N and K.
Deficient in lime.
Hydromorphic saline soil: Found in the coastal tracts of Ernakulam, Thrissur and
Kannur districts. During rainy season the fields are flooded leaving the area almost
free of salt. Maximum accumulation of salts occurs during summer.
Acidic saline soil: Seen in Kuttanad region covering about 875 sq.km. Soil face with
serious problems of hydrology, flood, acidity and salinity. Typical water logged soils
o Kayal soil: It comprises reclaimed areas of Kottayam and Alappuzha districts.
Slightly acidic. Medium in organic matter content. Poor in available nutrients
but rich in Ca.
o Karappadam: Distributed over a large area of upper Kuttanad. River borne
alluvial soil 1-2 m. below the sea level. Generally clay loam in texture, high
acidity, fair amount of organic matter, poor in available nutrients particularly
P. Deficient in lime.
o Kari soil: Acidity is due to the presence of different forms of S. Kari soil
resemble Peat soil.
Black soil: Seen in Chittur area of Palakkad district. Low in Organic matter,
calcareous, moderately alkaline, and high in clay content. CEC is high. Medium in P
and K content and low in N.
Forest soil: A product of weathering of crystalline rocks under forest cover. Rich in
organic carbon. PH acidic. Rich in N and poor in P.
Major problems of Kerala soils are acidity, salinity, water logging and poor physical
properties. 88% of soils are acidic. 60% of the area is medium in available N, 65% of
the area is low in available P and 75% is low in available K.

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Map showing soil types in the State

Source: http://cess.res.in/wp-content/uploads/2013/08/Glimps-of-kerala.pdf

1.5

Climate 6

Kerala, located in the humid tropics, is known for green landscape, evergreen forests, serene
water bodies, rolling mountains and narrow valleys. With high rainfall, chains of backwater
bodies, many rivers, reservoirs, lakes, ponds, springs and wells, the State is considered by
many as the land of water. South west monsoon (June to September) and North east monsoon
(October to November) are the two monsoon seasons of the State of which South west
monsoon is more predominant. About 85% of the annual rainfall receives during the
monsoon period between June and November (70% during South west and 15% during the
North east monsoon) and the remaining 15% only during the non-monsoon period between
December and May as summer showers.
Table showing monsoons in the State 7
Winter Season

Average Temperature

Summer Season

Average Rainfall
Average Temperature
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Maximum: 28C
Minimum : 18C
25 mm
Maximum : 36C

South West Monsoon

Average Rainfall
Average Temperature

North East Monsoon

Average Rainfall
Average Temperature
Average Rainfall

1.6

Minimum : 32C
135 mm
Maximum : 30C
Minimum : 19C
2250-2500 mm
Maximum : 35C
Minimum : 29C
450-500 mm

Rainfall 6, 8

Kerala is the land of monsoons. It is also one of the wettest places in the world, where annual
rainfall is of the order of 3000 mm. About 68 per cent of the rainfall is obtained during
southwest monsoon while 16 per cent in post monsoon and the rest from summer (14 per
cent) and winter rainfall (2 per cent).
The occurrence and distribution of rainfall in the State also shows high spatial variations. The
Western Ghat regions of Wayanad district receives rainfall higher than the State average
(about 3588mm) whereas, it is 2329 mm only in Palakkad district. The regions like
Attappady in Palakkad district receives rainfall less than 1000 mm. Due to the steep
topography, a major portion of the high rainfall received in short duration drained to sea very
fast (within 48 hours), not much to retain on the ground surface. Kerala State in the humid
tropics receives an annual average rainfall of about 3062 mm, which is about 2.5 times more
than that of national average.

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Map showing rainfall pattern in the State

Source: http://cess.res.in/wp-content/uploads/2013/08/Glimps-of-kerala.pdf

1.7

Agro-climatic zones 5, 9, 10

Kerala is characterised by the resource richness such as rainfall, fertile soil, good sunshine
and humidity. It also possesses different climatic conditions like tropic, sub tropic and semitemperate.
Based on altitude, rainfall, soil and topography, the state has been delineated into thirteen
agro-climatic zones. Block Panchayat has been taken as the unit for purposes of delineation.
All the Blocks, Municipalities and Corporations have been grouped into appropriate agroecological zones. Whenever a Block or Municipality was found to fall in more than one agroclimatic zone, it was assigned to that zone which has the largest area. Though 13 agroclimatic zones (shown in the table below) have been identified, no Block was assigned to one
zone viz. the Riverbank alluvium as it is found scattered in several blocks. This zone is found
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generally all along the banks of the major rivers. It is found relatively extensively in the
lower basins of the Periyar and Pampa river systems. Further, such alluvium deposits are
generally found in the paddy fields that form the valley portions of the undulating landscape,
which is interspersed with mildly sloping hills.
The agro-climatic conditions in Kerala suit the cultivation of both cash crops and food crops.
Under the colonial initiative, however, given an enabling legislative framework and market
conditions, cash crops came to predominate. Agriculture forms the raw material base for a
number of agro-processing industries, such as coir, cashew, wood and edible oil. These
industries continue to occupy an important place, especially in terms of employment. A small
segment of large modern industries based on minerals, chemicals and engineering have also
come up, along with an increasing segment of small and medium industries, some based on
modern technology and management.

Map showing Agro-ecological zones in the State5

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Table showing the agro-ecological zones of Kerala 5

Sl No.
1.
2.
3.

Name of agro- Altitude type *

ecological zones
Onattukara
I
Coastal Sandy
I
Southern midlands
I

4.
5.
6.

Central midlands
Northern midlands
Malappuram type

7.
8.
9.
10.
11.
12.
13.

Rainfall Pattern *
I
I
I

Topography
model *
I
I
III

I
I
I

I & II
II
II

IIa
IIb
IIc

Malayoram

III

Palakkad plains
Red loam
Chittoor black soil
Kuttanad
Riverbank alluvium
High ranges

I
I
I
I
I
II

II
I
II
I
II
I & II

II
III
IIa
I
II
III

Soil type*
Sandy loam
Sandy loam
Laterite
without Bhorizon
Laterite
Laterite
Laterite
Laterite
without B
Red loam
Red loam
Black soil
Peat (kari)
Alluvium
Red loam

*5
Parameter

Level
Type I

Altitude
Type II
Pattern I

Rainfall

Soil types

Topography

Pattern II

1
2
3
4
5
6
7
8
9
Model-I
Model-IIa

Description
Up to 500 m above MSL (Low altitude zone- hot humid tropics,
spread over the entire state)
More than 500 m above MSL
Both the southwest and northeast monsoons are active and
moderately distributed. Southwest monsoon with June maximum
(South of 11N latitude).
Poorly distributed rainfall; southwest monsoon with July
maximum and concentrated in 3-4 months. Northeast monsoon
relatively weak (North of 110N
Latitude).
Alluvial soil (Spread over river banks)
Sandy soil (Coastal areas)
Sandy loam soil (Coastal areas)
Laterite soil with well defined B horizon (Natural midlands)
Laterite soil without B-horizon (Natural highlands).
Red soil (Southern-most Kerala)
Black soil (Chittur thaluk of Palakkad district)
Peat (kari) soil (Kuttanad)
Acid-saline soil (Pokkali and Kaipad areas)
Extensive valleys with level but raised garden lands
Valleys less extensive, Hills with moderate gradients and Slopes
having mild gradients

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1.8

Socio-Economic Profile 8, 10, 11, 12, 13

Kerala has high population density along the coastal villages along with equally high density
of open wells. The climate induced changes are going adversely affect livelihood options of
the people of Kerala, which has a 590 km long coastline. This clearly indicates the
vulnerability of the coastal population of Kerala even to a few millimeter rise in sea level.
Kerala has a fragile and closed eco-system. There are both threats and opportunities for
Keralas sustainable development. Threats include the following. State has the third highest
population density in India. Acute food insecurity and import of food grains. Land hunger in
the state for housing and lively hood leads to encroachment of forests and low lying wetlands.
Out of a total area of 38.86 lakh ha, net sown area is about 56 per cent. Forest occupies about
28 per cent. Agriculture and forest sectors together account for more than 84 per cent of the
land area. The food crops comprising of rice, pulses, miner millets and tapioca occupy only
11.86 per cent, out of a gross cropped area of 26.69 lakh ha in 2009-10. The State of Kerala
which has low base in food production is facing serious challenges in retaining even this
meagre area. Agricultural economy of the State is undergoing structural transformation from
the mid seventies by switching over a large proportion of its traditional cropped area under
rice and tapioca to more remunerative crops like coconut and rubber. The area under rice has
been declining consistently over the last few decades while the area under commercial crops
in general has increased considerably during the last two decades. There was a phenomenal
incremental growth in the case of rubber since last one decade. Kerala accounts for 78% of
the area under rubber in the country. The increasing trend in productivity continued during
2008-09. Kerala has a substantial share in the plantation crops in the four plantation crops of
rubber, tea, coffee and cardamom. These four crops together occupy 6.89 lakh ha, accounting
for 31.58% of the net cropped area in the State and 43% of the area under these crops in the
country. Keralas share in the national production of rubber is 91%, cardamom 75%, coffee
22% and tea 5% during 2008-09.
Agriculture and allied sectors are the most crucial sectors of the Kerala economy as
they provide livelihood to approximately two-third of the population and contribute a fourth
of the GDP. The population pressure on land is very high in Kerala and the land has become
shifted from the position of a resource for production to the level of an asset. This made the
situations more complex and the farmers are started shifting from cultivation and the practice
of putting the most valuable and to other purposes than farming began. Many farmers were
forced to stop agriculture due to these reasons and farming became a non-lucrative vocation.
If the present trend is allowed to continue, the state of Kerala would become the most food
insecure part in the country. Kerala agriculture is mainly dominated by small, marginal and
homestead farmers.
Out of the total geographical area of 38.86 lakh hectares, net area sown is 20.71 lakh
hectares which comprises of 53.3% of the total area. The net area has decreased by
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0.35% when compared with the 2009-10 statistics. Out of the gross cropped area of 26.47
lakh hectares; food crops, comprising rice, pulses minor millets and tapioca occupy only
12.05 % (Agricultural Statistics 2010-11). Kerala is facing serious challenges in retaining
even this meagre area. Even though Kerala has the least waste land available when compared
to the rest of India, (2.01 lakh hectares) area, which can be put in agricultural purposes is still
to be exploited.
Homestead farming is most common in Kerala. Coconut constitutes the base crop in almost
every homestead, intermixed with other seasonal, annual and perennial crops. Vegetables and
tuber crops are important mixtures in homestead farming. Keralas major sources of exports
are agro based. In spices, pepper is the single most important product, with Kerala being the
largest producer and exporter of black pepper.
Socio-economic profile at a Glance 2 (Based on Census 2011)
Population
Male
Female
Sex
Ratio
(Females
Per
1000 males)
Population
density
Urban Population
Rural Population
Decadal Growth
rate
Literacy Rate %

3,34,06,061
1,60,27,412
1,73,78,649
1,084

860/sq.km
1,59,34,926
1,74,71, 135
4.9%
94.0

Male
literacy 96.1
Rate (%)
Female Literacy 92.1
Rate(%)

2. DISASTER RISK PROFILE

2.1

Vulnerability of the State

Kerala known for its advancement in the field of literacy, education, health, women
empowerment and panchaythraj initiatives is also vulnerable to a multitude of disasters and it
is categorized as a multi hazard prone state. Located at the extreme southern tip of the Indian
subcontinent, Kerala lies near the centre of the Indian tectonic plate; hence, most of the state
is subject to comparatively little seismic activity. The state falls under earthquake Zone III
making the state moderately vulnerable to earthquakes of magnitude 6.5 or more. The state is
becoming increasingly prone to disasters and experiences various kinds of disasters of
recurrent nature which results in loss of life, livelihood and property and disruption of
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economic activity and causing immense misery and hardship to the affected population.
Kerala suffered a series of natural disasters over the years, but the tsunami of 2004 has added
a new dimension to the disaster scenario of the state. The state experiences heavy rainfall and
resultant floods during the monsoon, with subsequent damage to life and property. Coastal
erosion along the coastal areas is very frequent and severe, necessitating evacuation and
rehabilitation of the coastal people. Vulnerability Profile are also very high in the state. The
State is also vulnerable to cyclone and experiences high winds due to the westward
movement of cyclonic storms crossing Tamil Nadu coast. Landslide or landslip is another
hazard of the hilly regions of the state. Drought conditions have also become more frequent
in the state with the failure of monsoon. The deterioration of environment is also leading to
disasters on the health front also. Incidences of biological disasters such as epidemics dengue fever, Chikungunia and pest attacks are on the rise. Fatalities in road accidents,
lightning and boat capsizing, possibilities of chemical and industrial disasters and disasters
like dam burst also cannot be ruled out. The threat of Global Warming and its resultant
climatic variations and environmental issues such as inter seasonal variations in rainfall
increase the vulnerability of the state.

3. INSTITUTIONAL SETUP 16, 17, 24

3.1

Kerala State Disaster Management Authority (KSDMA)

The State Government, in line with National Disaster Management Act, 2005, has notified
Kerala State Disaster Management Rules, 2007 (vide G.O (P) No. 71/2007/DMD dated
01/03/2007). The State has constituted State Disaster Management Authority (vide G.O (P)
No. 154/2007/DMD dated 04/05/2007) and District Disaster Management Authorities (vide
G.O (P) No. 303/08/DMD dated 09/09/2008) laying down clarity of roles and responsibilities
for State and District authorities. The State Executive Committee of State Disaster
Management Authority has also been constituted.
The Kerala Disaster Management Authority was formed as stipulated in the National Disaster
Management Authority Act of 2005 with the Chief Minister as Chairman and the Revenue
Minister as Vice-Chairman. In exercise of the powers conferred by sub-section (1) of section
14 of the Disaster Management Act, 2005, (Central Act 53 of 2005) read with rule 3 of the
Kerala State Disaster Management Rules, 2007, the Government of Kerala hereby establish
the Disaster Management Authority for the State of Kerala, by the name The Kerala State
Disaster Management Authority, with the following members, namely:- the Chief Minister
of Kerala, Chairperson; The Minister for Revenue, Vice-Chairperson; The Chairperson of the
State Executive Committee, namely the Chief Secretary to Govt. of Kerala, member; The
Principal Secretary, Revenue Department, Member; The Principal Secretary, Home
Department, Member; etc.
Kerala State Disaster Management Authority shall function as the apex decision-making
body and shall facilitate, co-ordinate, review and monitor all disaster management related
activities in the State. The State Authority will lay down policies and plans for disaster
management in the State. The State Authority will coordinate the implementation of State
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Disaster Management Plan and recommend provision of funds for various disaster
management activities, particularly mitigation and capacity building.
The State Authority will approve the disaster management plans prepared by departments of
the Government of the State and will lay down guidelines to be followed by the departments
for the purpose of integration of measures for prevention and mitigation of disasters in their
development plans and projects. The State Authority shall also review the development plans
of the departments to ensure that prevention and mitigation measures are integrated therein
and review the measures being taken for prevention, mitigation, preparedness and capacity
building in the State.
It has a State Executive Committee. Formulation of a state policy, identification of disaster
prone areas and planning of disaster management programmes incorporating the services of
various departments comes under the purview of the State Executive Committee. District
Disaster Management Authority was constituted with the District Collector as Chairman in
each district.

Structure of Kerala State Disaster Management Authority

Objectives of KSDMA 16

Prepare the State's Disaster Management policy

Co-ordinate the activities of various departments connected with
disaster
management
Awareness generation on disaster management
Capacity building and training of personnel and coordination of such training for
effective management of disasters
Prepare action plan for prevention of danger or threat of any disaster and mitigation or
reduction of risk of any disaster
Increase Preparedness of the community to deal with various disasters
Page 15 of 28

3.2

Assess the magnitude & severity of effects of any disaster

Rehabilitation and reconstruction

State Executive Committee (SEC) 18

In exercise of the powers conferred by sub-section (1) of section 20 of the Disaster

Management Act ,2005 ( Central Act 53 of 2005), read with rule 11 of Kerala State Disaster
Management Rules, 2007, the Government of Kerala constituted a State Executive
Committee vide G.O(P) No.339/2007/DMD dated 19.9.2007 with the following members:The Chief Secretary to Government, Chairperson; The Principal Secretary, Revenue
Department, Convener; The Secretary, Finance Department, Member; The Secretary, Home
Department, Member; and The Secretary, Health Department, Member.
The State Executive Committee assists the State Authority in the performance of its functions
and to co-ordinate action in accordance with the guidelines laid down by the State Disaster
Management Authority and ensure the compliance of directions issued by the State
Government, under the Act.

3.3

District Disaster Management Authority (DDMA) 19, 20, 24

As per sub- section (1) of section 25 of the Disaster Management Act, 2005 Every State
Government shall establish a District Disaster Management Authority for every district in the
State. The District Disaster Management Authority with the following members for the 14
districts of the State has been constituted vide G.O (p) No 303/08/DMD dated 09/09/2008.
The District Collector, Chairperson; The President, District Panchayat, Co-Chairperson;
Additional District Magistrate, Member; The Superintendent of Police, Member; The District
Medical Officer, Member; and two district level officers.
The District Disaster Management Authorities notified and established by the State
Government in all fourteen districts will act as the district planning, coordinating and
implementing body for disaster management and take all measures for the purposes of
disaster management in the district in accordance with the guidelines laid down by the State
Authority. The District Disaster Management Authorities will prepare District specific
District Disaster Management Plans and coordinate and monitor the implementation of State
and District Plans. The District Collector shall facilitate and coordinate with local bodies to
ensure that pre-disaster activities in the district are carried out successfully and ensure
appropriate linkage between disaster management activities and regular development
activities. The District Collector shall facilitate training and awareness programmes for
communities and ensure that relevant officials in the district are properly trained in handling
possible disasters in the district.

Page 16 of 28

3.4

Institute of Land and Disaster Management 21, 24

Institute of Land and Disaster Management (ILDM) is an autonomous body constituted under
the Revenue Department, Govt. of Kerala to impart professional training, including induction
training, in-service training and refresher training to personnel of the Land Revenue and
Survey Department of Kerala State since 1996. The Disaster Management Centre came into
existence in the year 2000 along with other administrative training institutes in the UT
Administrations and State Governments, in the Institute of Land and Disaster Management.
ILDM has evolved constantly since its inception and is currently a multi-faceted institution
with capability for imparting theoretical and practical courses on land management, land
administration and disaster risk management for administrative and non-administrative
personal. Further, it is capable of conducting comprehensive research and establishing
technically complex early warning systems for disaster risk reduction. This institute will
promote sharing and dissemination of specialised knowledge on disaster management among
various implementation agencies, NGOs, private sector and the community in the state.

3.5

Disaster Management Centre 22

The Disaster Management Centre is acting as a focal point at the State level for imparting
training in the field of disaster prevention, mitigation, preparedness, response, relief,
rehabilitation etc, undertaking research, studies, documentation, development of database,
organizing State level/Regional Conferences/Workshops and to actively liaison with the State
Department of Revenue and Disaster Management / Home department or any other
department of the State Government which has been entrusted with the nodal responsibility
for disaster management in the State, to facilitate discharge of the responsibility given to the
State Government under the DM Act, 2005. Originally called the Institute of Land
Management (ILM) the scope of the institute widened in the year 1999 when the Government
of Kerala decided to establish a Disaster Management Centre within Institute of Land
Management based on the direction from the Ministry of Home Affairs, Government of
India. This resulted in the renaming of the institution as Institute of Land and Disaster
Management. The far sighted decision to integrate both land administration and disaster risk
management trainings under one umbrella enabled the state government to ensure transparent
land administration and effective disaster risk reduction, both being mutually inclusive.
Eventually, by the year 2005, the Department of Revenue was renamed as the Department of
Revenue and Disaster Management and thus, revenue officials became inter alia responsible
for disaster risk management

3.6

State Disaster Response Force 24

Kerala State has constituted State Disaster Response Force with headquarters at Peerumedu
Taluk in Idukki District for the purpose of specialised response to threatening disaster
situations. A Regional Response Centre of National Disaster Response Force is also set up in
Kozhikode, in addition to the Seasonal Response Centre in Idukki.
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3.7

Emergency Operation Centres 24

A State Emergency Operation Centre (EOC) is set up under the nodal department of Revenue
and Disaster Management linked with the office of State Disaster Management Authority. Its
system and procedures are designed in such a way that information can be promptly assessed
and relayed to concerned parties as rapid dissemination contributes to quick response and
effective decision making during the emergency. EOC will function round the clock and will
maintain direct linkage with district control rooms through phone, fax, wireless and internet.
The State Disaster Management Authority will ensure that a comprehensive information
network is available for timely collection of hazard-related information and rapid
dissemination of relevant information and alerts/warnings.
Emergency Operation Centres are set up in each district headquarters under the control of
District Collectors for day to day monitoring of preparedness measures and to coordinate
rescue and relief operations.
State Nodal Departments will also establish Emergency Operation Centres and will assign
Nodal Officers for disaster management.

3.8

State Disaster Response Fund 24

The Calamity Relief Funds which was in operation till March, 2010 to meet the expenditure
for providing immediate relief was merged in to State Disaster Response Fund vide
notification G.O (P) No. 498/2010/DMD dated 03-12-2010 on the recommendation of 13th
Finance Commission. The fund is maintained in the public account of the state for providing
immediate relief. The State Government will also claim on the National Disaster Response
Fund (previously NCCF) through memorandums for central assistance for relief and
rehabilitation in the event of any calamity of a larger proportion.

4. INITIATIVES
4.1

State Disaster Management Policy24, 25

Kerala State has established a Policy, Institutional and Techno Legal Frame Work for
disaster management in the State which creates an enabling regulatory environment and
compliance regime in the State and facilitates the activities of different phases of disasters.
The goal of the Kerala Disaster Management Policy is to institute structures and systems and
to establish directive principles for effective risk reduction and crisis management in order to
minimise human, property, environment and livelihood losses and to contribute to the
sustainability of development and better standards of living for poor and vulnerable sections.
The State Disaster Management Policy formulated by Department of Revenue and Disaster
Management and promulgated by State Disaster Management Authority acts as the guiding
principle for disaster management in the State. The goal of the Kerala Disaster Management
Policy is to institute structures and systems and to establish directive principles for effective
risk reduction and crisis management in order to minimise human, infrastructure, property,
Page 18 of 28

environment and livelihood losses and to contribute to the sustainability of development and
better standards of living for poor and vulnerable sections.
Objectives of the policy25

To develop and ensure Policy, Institutional and Techno Legal Frameworks for disaster
management in the State
To develop and maintain pro-active governance and systems, and promote research and
development for Disaster Risk Management through appropriate disaster prevention,
mitigation and preparedness measures and strategies.
To establish effective Crisis Management through the organisation and management of
resources and responsibilities for dealing with all aspects of emergencies, particularly,
response and immediate restoration.
To strengthen the capacities and resilience of vulnerable communities with special
emphasis on empowerment of women and establish community level systems for pre,
during and post disaster interventions through awareness generation and capacity
building.
To build capacities and promote changes in the administrative systems, procedures and
personnel that would facilitate efficient and effective pre and post disaster activities.
To institutionalise Disaster Management in government as envisaged in DM Act, 2005
and to mainstream Disaster Management in to developmental planning.

The Government of Kerala envisages Policy, Institutional and Techno Legal Frame
Works in the State to form the basis of disaster management to facilitate the activities in
different phases of a disaster and to create an enabling regulatory environment and
compliance regime.
The Disaster Management Policy acts as the guiding principle of the State for disaster
management and manifests the vision of the State. It aims to establish an optimal system for
dealing with disasters, ensuring continuity in developmental activities without damaging the
environment and avoiding disruption of economic activity. The policy framework is
structured in such a way that Kerala State Disaster Management Authority provides the
overall direction and guidance to various entities leveraging the resources and capability of
existing entities and building new capabilities without treating disaster management as a
separate sector or discipline.
The state government will follow national building codes and other codes as laid down by
Bureau of Indian Standards. Relevant departments / District administrations / local authorities
shall ensure that existing building bylaws, land use zoning regulations and development
control regulations correspond to the requirements for safe construction as laid down by
various agencies such as Bureau of Indian Standards (BIS) for seismic zone III. Transfer of
disaster resistant construction technology (Disaster resistant designs and construction
practices and retrofitting techniques) by capacity building of construction fraternity (town
planners, engineers, architects, builders and developers and masons) shall be promoted by the
state government.
Page 19 of 28

There are various initiatives undertaken as follows:

Early Warning / Emergency Communication System

Community Level Preparedness
Training & Capacity Building
School Suraksha Programme
Strengthening / Capacity Building of Search & Rescue Services
National Cyclone Risk Mitigation Programme
Government of India United Nations Development Programme Disaster Risk
Reduction Programme

The basic challenge of policy framework lies in designing effective tools to enhance
governance and accountability, and to promote integrated whole-of-government solutions.
Tremendous capacity creation is required within the government system along with technical
assistance for forging alliances, coordination, partnership and convergence. The State
Government shall establish mechanisms for empowering the Disaster Management
Institutions to effectively manage disasters and to work in cohesion with other State and
Central Government sponsored structures, policies, programmes and schemes.
The State shall strengthen the existing disaster management institutional mechanisms and
Centres by way of capacity building and modernization. Training shall be imparted to various
department officials, implementation agencies, NGOs, private sector and the community in
activities related to disaster management. Specialised trainings shall be imparted to the
relevant agencies to deal with special emergency situations and appropriate infrastructure
shall be developed for effective support.
Regional Response Centers of National Disaster Response Force, State Disaster Response
Force and Civil Defense Institute shall be established in the State with the support of
Government of India and National Disaster Management Authority.
Some of the major initiatives for reducing duration risks by adopting mitigation measures in
Kerala are as under 23:Type of sector
Infrastructure
development

Sub-sector
IEC
activities
(Information,
Education
&
Communication)

Mitigation measures
Distribution of leaflets, posters, & wall
paints,
Street plays
Village level awareness classes
Organize task force formation & training
Conduct mock drills

Road

Repair/reconstruction of vulnerable points

Page 20 of 28

on roads
Identification of alternative roads,
Conversion to pucca roads of all village
roads,
Strengthening and raising the height of
weak embankments or points
Repair of vulnerable points in river/canal
embankment during free flood period.
Bridge
Regular maintenance of bridges
Repair the vulnerable points on bridge
before unset of monsoon
Safe shelters
Ensuring proper maintenance of shelter
Identification of places for preparation of
mounds and cattle shelters
Communication
Ensure maintenance of telephone, Fax and
VHS
Ensure timely setting of wireless stations
or
early
warning
systems
in
districts/Taluks/Village offices
Installation of VHF/HAM Radio in
District/Taluk/Block head quarters
Drinking water and Assessing of running/defunctioning tube
sanitation
wells and Make necessary arrangements
Identification of scares water pockets and
installation of water supply system
Arrangement of Tanks/Syntax tank
Assessment of requirement of disinfectants
and ensure its regular use
Power
Immediate response for repair of electric
line and supply
Ensure the proper maintenance of electric
substation and power grids
Complete the electrification through
district
Install solar lamp near rehabilitation
centres and ensure its proper maintenance
Vaccination
Adequate stock piling of vaccines should
be ensured for vaccination before disaster
Insurance

IEC activities

Life & Livelihood

Training

Distribution of leaflets, posters & Wall

papers
Conducting
workshops,
orientation
programme to line departments, NGOs,
village level volunteers & to beneficiaries
on insurance scheme.
Insurance of life, livestock, crops & small
business units etc.
Formation of Disaster Management Task
forces and training should be programmed
for search and Rescue, Evacuation and

Page 21 of 28

Livelihood Sector

Rehabilitation, Health, Water, and

Sanitation and First Aid teams from village
level to district level
Creating awareness among public by way
IEC activities during normal time to
insured human life
Alternate cropping to reduce adverse
impact on agriculture farmers
Flood resistance crop plantation
Crop insurance
Early warning to fisherman
Arrangement of boats/vehicles etc for
evacuation
Providing fishery technology and training

Awareness

Agriculture

Fishing
Fishery

Disaster Management Plans 24

4.2

The Disaster Management Act, 2005 (section 23.4.C) states that the State Disaster
Management Plan shall include the manner in which the mitigation measures shall be
integrated with the development plans and projects. The Eleventh Five Year Plan also
emphasises the necessity of mainstreaming disaster management into development planning
and requires that every development plan of a department should incorporate elements of
impact assessment, risk reduction, and do no harm approach. The Second Administrative
Reforms Commission (SARC) has recommended that disaster plans should be included in the
development plans of the line departments of State Governments and local bodies.
Kerala State believes that disaster mitigation should be a part of the plan process and that the
expenditure therein should be met out of the plan resources of the respective departments of
the State. The State Disaster Management Plan Profile calls for a framework for
mainstreaming disaster management in the State and necessitates the departments of the State
Government to give priority to hazard identification and risk assessment in their plans and
schemes and allocation of a portion of plan funds for efforts that directly or indirectly help in
disaster management.
The State Disaster Management Plan envisages formulation of a strategy for mainstreaming
disaster management in the State which includes awareness generation, advocacy for political
commitment, legislation, training and technical support, development of tools and monitoring
and evaluation, and development of a set of indicators and assessment methodology.
Ways of mainstreaming Disaster Management

Structural Measures
Ensuring all new critical infrastructure projects like power, water,
communication etc compulsorily comply with the safety standards of disaster
reduction.
Implementation of techno-legal regime such as adoption of BIS codes.
Page 22 of 28

Ensuring all the existing infrastructure projects are retrofitted from future
disasters, to the extent possible.
Ongoing projects/programmes and already completed projects/programmes
need to be audited to ensure that resilience to specific disasters to which the
concerned locations are vulnerable.
Non Structural Measures
Amendment of Building by-laws, Land Use Regulations etc.
Master plans for Earthquake Proofing /Flood Management etc.
Flood Plane zoning
Specific Disaster Mitigation Programmes
Implementation of Cyclone Risk Mitigation Programme
Implementation of Earthquake Risk Mitigation Programme
Implementation of State/District/local mitigation projects
Develop appropriate guidelines for different sectors
Identify Key Programmes within each identified sector
Specific programmes such as Indira Avas Yojana, Sarva Siksha Abhayan
and JNNURM may be identified for mainstreaming.
Application of Checklists

The State Disaster Management Plan imposes that there is a plan for disaster management for
the district. The District Collector shall facilitate and coordinate with local bodies to ensure
that pre-disaster activities in the district are carried out successfully and ensure appropriate
linkage between disaster management activities and regular development activities. The
District Collector shall facilitate training and awareness programmes for communities and
ensure that relevant officials in the district are properly trained in handling possible disasters
in the district.
The departments of the State Government will prepare Departmental Disaster Management
Plans that involve programmes within the routine departmental works for disaster prevention,
mitigation and preparedness and strategies for its successful implementation. The
Departmental Plans will also describe the departmental responsibilities during various
disaster situations and department-level capacity building policy. The nodal departments will
prepare disaster specific DM plans for different types of hazards that keep integration with
the functioning of Crisis Management Groups and State EOC. The State departments shall
also formulate Disaster Management Cells within the departments and shall deploy a senior
officer as Nodal Officer for Disaster Management.

4.3

Emergency Support Functions (ESF) 24

A crisis situation demands the intervention and assistance of experts from different
departments / fields in order to ensure a quick and effective recovery. Keeping this aspect of
disaster management in view, Emergency Support Functions have been conceptualised to
take care of various response actions. Each Emergency Support Function is headed by a lead
department and the designated primary agency will be assisted by one or more support
agencies (secondary agencies) and will be responsible for managing the activities of the
Page 23 of 28

Emergency Support Function. Nodal officers of all the ESFs would constitute and employ
Incident Response Team who will accomplish the response actions at the field level.
Similarly supporting agencies would also assign their nodal officers and IRT members will
assist the primary officers during response.
The relevant departments/ agencies shall draw up Emergency Support Function Plans and
constitute Incident Response Teams and designate resources in advance. Pre contract/
agreement can be made for all disaster relief items so as to avoid delays in procuring relief
items after disaster situation.
Primary Functions are as follows:

4.4

Establishment of evacuation plans / Identification of fastest evacuation routes and all

alternative routes.
Coordinate search and rescue logistics during field operation
Immediate arrangement of food and relief materials during the crisis.
Ensure coordination of activities involved with the emergency provisions of temporary
shelters, emergency mass feeding and bulk distribution of relief supplies to the disaster
victims
Control quality and quantity of food for relief/ Ensure timely distribution
Provide adequate and appropriate shelter to all population / Locate relief camps close to
open traffic and transport links.
Develop alternate arrangements for population living in structures that might be affected
even after the disaster.
Encourage various voluntary agencies and organizations to depute the volunteers / Gather
general youth mass to volunteer / Operation wise categorize the volunteers / Identify any
specialized skills and area of interest among volunteers
Arrange of mass donations of monetary resource, food, clothes, medicines, essential
items, cattle feed, and cattle medicines.
Maintain a record of donations and its supply to the needy area.
In coordination with relevant depts. assess the Number of lives lost, Number of People
Affected, Number of Houses damaged (category wise), Damage of Infrastructures like
School, Hospitals, Govt. Buildings, Road, Electricity, Water Supply etc

Implementation of IRS 23, 25

The State Disaster Management Authority shall establish a proper chain of command for
effective management of disasters and coordination of all agencies responsible for disaster
management in the State. The Incident Command System will provide combination of
facilities, equipments, personnel, procedures and communications operating within a
common organizational structure, with responsibility for the management of resources to
effectively accomplish stated objectives pertinent to an incident.
The State has also initiated incorporation of IRS in its response mechanism.

Page 24 of 28

Chart showing the systemic Incident Command System

(Source: http://sdma.kerala.gov.in/images/1tvpmddmp.pdf)

Chart showing the structure of Incidence Command System at District level

(Source: http://sdma.kerala.gov.in/images/1tvpmddmp.pdf)

Page 25 of 28

Chart showing Emergency support functions in response mechanism at district level (Source:
http://sdma.kerala.gov.in/images/1tvpmddmp.pdf)

4.5

Early warning system25

Early warning mechanisms shall be instituted by the Department of Disaster Management to

give advance warning and alerts for cyclones, floods, tsunami etc. The Kerala State Disaster
Management Authority shall ensure a mechanism aligned with overall disaster management
plan of the State to receive early warning and forecasting from nodal agencies such as Indian
Meteorological Department, Centre for Earth Science Studies, Indian National Centre or
Oceanic Information Science, etc., and to disseminate the warning information to vulnerable
communities in the last mile. An alternative wireless based communication mechanism shall
be introduced for communication from State to districts and from districts to taluks and
villages.

4.6

Publications:

The State Government developed DM plan for different districts major ones are:
Thriruvananthapuram: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/1tvpmddmp.pdf
Kollam: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/2klmddmp.pdf
Pattanamtitta: District Disaster Management Plan (DDMP)
Page 26 of 28

http://sdma.kerala.gov.in/images/3ptaddmp.pdf
Kottayam: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/5ktmddmp.pdf
Idukki: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/6idkddmp.pdf
Palakkad: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/9plkdddmp.pdf
Kozhikode: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/kzkd.pdf
Wayanad: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/12wyndddmp.pdf
Kannur: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/13knrddmp.pdf
Kasargode: District Disaster Management Plan (DDMP)
http://sdma.kerala.gov.in/images/dmkasa.pdf
Abraham and Shaji, 2013. Landslide hazard zonation in and around Thodupuzha-IdukkiMunnar Road, Idukki District, Kerala: A Geospatial Approach.
http://link.springer.com/article/10.1007%2Fs12594-013-0203-7#page-1
http://www.kerenvis.nic.in/WriteReadData/UserFiles/file/49412317-Kerala-DisasterManagement-Plan-Profile-India.pdf

References
1

http://www.kerala.gov.in/index.php?option=com_content&view=article&id=3695&It
emid=126

http://www.kerala.gov.in/index.php?option=com_content&view=article&id=2818&It
emid=2263

http://www.portal.gsi.gov.in/gsiImages/information/misc_pub_30_kerala_2005_wm.p
df

http://cess.res.in/wp-content/uploads/2013/08/Glimps-of-kerala.pdf
Page 27 of 28

http://www.crd.kerala.gov.in/pdf2012/spsp_final280110.pdf

http://www.kerala.gov.in/docs/publication/2013/kc/mar_13/30.pdf

http://www.kerenvis.nic.in/Database/CLIMATE_811.aspx

http://dyuthi.cusat.ac.in/jspui/bitstream/purl/2940/1/Dyuthi-T0931.pdf

http://www.igidr.ac.in/conf/ysp/Kerala.pdf

10

http://www.keralaagriculture.gov.in/pdf/dap_e_15072013.pdf

11

http://www.niscair.res.in/jinfo/IJMS/IJMS%2040(4)%20(Research%20Report).pdf

12

http://sdma.kerala.gov.in/index.php?option=com_content&view=article&id=53&Item
id=133

13

http://farmech.gov.in/06035-04-ACZ12-15052006.pdf

14

http://sdma.kerala.gov.in/index.php?option=com_content&view=article&id=68&Item
id=147

15

http://www.keralacm.gov.in/images/stories/topnews/2013/august/Finalized%20Specia
l%20Package%20Monsoon%20Calamity%20Aug%202013.pdf

16

http://sdma.kerala.gov.in/index.php?option=com_content&view=article&id=64&Item
id=143

17

http://sdma.kerala.gov.in/images/image/gosdma.pdf

18

http://sdma.kerala.gov.in/index.php?option=com_content&view=article&id=65&Item
id=144

19

http://sdma.kerala.gov.in/index.php?option=com_content&view=article&id=66&Item
id=145

20

http://sdma.kerala.gov.in/images/image/ddmago.pdf

21

http://ildmkerala.in/

22

http://ildmkerala.in/dmcentre/

23

http://sdma.kerala.gov.in/images/1tvpmddmp.pdf

24

http://www.kerenvis.nic.in/WriteReadData/UserFiles/file/49412317-Kerala-DisasterManagement-Plan-Profile-India.pdf

25

http://sdma.kerala.gov.in/images/image/statepolicy.pdf

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