India - Maharashtra Emergency Earthquake Rehabilitation Project

Report No. PIC745 Project Name India-Maharashtra Emergency Earthquake Rehabilitation... Project Region South Asia Sector Rehabilitation and Recovery Project ID INPA34162 Implementing Agency Program Management Unit Department of Relief and Rehabilitation Government of Maharashtra Mantralaya Bombay 400032 Tel: 91-11-2023039/2854165 Fax: 91-11-20289 Date PID Prepared March 1994 Projected Board Date March 31, 1994 1. Background. Maharashtra is the third largest state both in terms of land area (308,000 square kilometers) and population (78,700,000). It is the Union's most heavily industrialized state with the highest percentage (35.7%) of state revenues coming from the industrial sector and a relatively low percentage coming from the agricultural sector (21.3%). The region where the earthquake occurred is agricultural with primary crops of mustard, sunflower oil, grapes and sugar cane. 2. On Thursday 30th September, at 3.56 am, a series of earthquakes of a magnitude of about 6.4 on the Richter scale shook the south eastern region of the State of Maharashtra. The epicenter was located at Killari in the Latur district, about 500 km east of Bombay. Major damage was limited to the destruction of houses in a 40 km radius of the epicenter. In the three worst affected districts of Latur, Osmanabad and Solapur, 67 villages were severely damaged with an estimated 8,000 persons killed and 16,000 injured. Approximately 52,600 families were left without homes about 180,000 other houses were damaged. Apart from extensive damage to public buildings including offices, schools and health buildings, there was generally limited damage to other infrastructure. However, water supply was disrupted (in some areas water table is said to have fallen and in other areas it has risen), and electricity and telecommunication systems have suffered some damage. 3. The deaths were mainly caused by the collapse of traditional village houses which were of an extremely heavy construction. Typically, the walls were 2-3 ft. thick and made of small stone boulders (about 1 ft. in diameter) and bonded with dirt/clay. The stones were irregular in shape, therefore having relatively little binding and bearing capacity. The roofs were constructed with heavy wooden beams and a light framing covered with about 12 to 18 inches of dirt. During the quake, the walls shattered and the heavy roofs collapsed, crushing the sleeping residents below. 4. Government response. The combined response of the GOI and GOM to the disaster was rapid and effective. The GOM has also been commendably fast at initiating plans for reconstruction and they have managed to  retain much of the momentum established by the relief operations. In addition to drawing up a program for IDA funding, they have persuaded a number of commercial and charitable organizations, non-governmental organizations (NGOs) and other donors to sponsor the reconstruction of a number of the smaller villages, totaling over 5000 houses. Several of these organizations have made a quick start on the construction of their designated villages. 5. Seismicity of the region. The northern portion of the Indian sub- continent is seismically active and the causes are well understood. The Himalayas form a belt of very high seismic activity, where two continental plates collide. Further to the south, in the alluvial region to the south of these mountains, earthquakes are considered to be caused by fractures in major faults. However, the causes of earthquakes in the stable crust of the Indian Peninsular Shield is less clearly understood. Some faults that in the past had been associated with seismic events were well demarcated, while the presence of others could only be inferred. Although smaller tremors have been registered in this region, available records show that relatively long periods of no earthquake activity, alternating with short periods of activity. 6. The Killari earthquake, of September 30, 1993, is the largest earthquake to have been recorded in this general area, and one of the most devastating earthquakes of its kind. High intensity tenors were concentrated in a well defined area of about 10--15 km across. In this early stage of analysis, when seismological information from the aftershocks is still being gathered, only preliminary geological data are available. No evidence of pre-earthquake faulting was found, nor the evidence of prehistoric deformation in the morphology. Neither geology nor historical seismicity offer clues to this earthquake. 7. Project Objectives. The objectives of the project are: (a) to assist with reconstruction in the earthquake affected area (restoration of assets and basic services); (b) to increase the earthquake resistance of buildings and infrastructure through the development of improved standards for design and construction; and (c) to develop the ability of the State of Maharashtra plan for and manage disasters. 8. Project Framework. Concurrent with the development of the rehabilitation program, GOM prepared the program framework which comprises of: (a) Rehabilitation Policy: The policy framework for the rehabilitation program prepared by the GOM provides a clear statement of objectives of the rehabilitation program by villages, household, and individual. It defines the criteria for selecting which villages would be relocated, and those where houses are to be reconstructed on their original site. It also determines how and which households and individuals would benefit from the program and clarifies the entitlement of the more vulnerable groups in society including tenants, the landless, as well as women and orphan children. The policy provides for the affected persons to be resettled in socially, culturally and economically self-sustaining communities with an emphasis upon their social and kinship relations. It includes provisions for tenants and encroachers who do not pay house-tax but whose houses have been damaged, and the landless whose houses have not been damaged (as they lived in huts which survived the earthquake). It would be accepted that this - 2-  group is an integral part of the community upon which they depend for socio-economic and cultural support; (b) Rehabilitation Action Plan for those Affected by Land Acquisition. The GOM has prepared a rehabilitation action plan to mitigate any adverse effects of land acquisition for the relocation villages and the GOM plans to implement this plan in a timely manner for each relocation village. Specifically, this plan provides the following: (i) a list of all individuals from whom land was acquired; (ii) a list of their respective land holdings, before and after the acquisition program; (iii) a list of all those who have been rendered landless or marginalized; (iv) a commitment to undertake a survey to identify any others who may be affected by the land acquisition program; (v) a list of benefits which affected individuals are entitled under the Rehabilitation Policy with an expected timetable for their distribution; (vi) list of other GOM and GOI programs which are available in each village and a timetable for their application; (vii) the budget for the rehabilitation action plan; and (viii) a description of the proposed organizational structure for implementing the plan, including appropriate grievance procedures; and (c) Community Participation: To implement successfully both the rehabilitation policy and program, the active participation of the affected communities would be solicited. Ironically, in most countries, democratic structures rarely allow full participation by all sections of the community. Typically, elected leaders and representatives would not consult all sections of the community, especially the most marginalized groups. During the life of this project, community participation would extend beyond obtaining consent from Sarpanchs, and would ensure that the views of all sections of the community are sought, understood and acted upon. The involvement of communities in the rehabilitation program would ensure that the people's concerns and needs are better understood and incorporated in the plans. It would also permit the communities to develop a stake in the rehabilitation process, rebuild their self confidence and empower them to shape their own lives rather than their remaining helpless victims of a disaster. 9. Project Description. This project would finance selected components of the comprehensive rehabilitation program of the Government of Maharashtra (GOM). The bulk of the expenditure would be for housing reconstruction, repair and strengthening with more limited support for infrastructure rehabilitation. Smaller but essential components are to provide for social and economic rehabilitation and disaster management. The project would also finance an earthquake monitoring and research for the Government of India (GOI). (A) GOM components include: 10. Housing. Relocation of 49 villages, comprising about 17,500 houses, to replace those totally destroyed or substantially damaged by the earthquake, reconstruction of about 29,500 houses in-situ which have been totally destroyed in villages where relocation not envisaged, the repair of about 180,000 partially damaged houses, construction of 500 model houses to demonstrate the alternative methods of house construction, and the pilot strengthening of 5000 vulnerable houses to provide models for strengthening between two to four million houses in neighbouring districts of a similar design and construction to those destroyed by the earthquake. In the relocation villages, all families -3 -  would be provided a plot of land and a core house of 0 square feet usable area. Those with larger land holdings in the villages would be entitled to a larger houses of either 400 or 750 square feet. The additional floor area over 0 square feet would be financed by GOM and treated as a loan. The respective plot sizes for three houses would be 1575 square feet, 3000 square feet and 5000 square feet. Housing designs and village layouts have been developed, in consultation with the beneficiaries. Infrastructure: Repair and reconstruction of public buildings including schools, health centers and social service facilities; and repair and strengthening of infrastructure including roads, bridges and irrigation facilities; Social and Economic Rehabilitation: A program of social, community and economic rehabilitation, with a particular emphasis on the needs of women and children; Disaster Management: Development of a disaster management program for the State of Maharashtra; and Technical Assistance for design, supervision and monitoring of project components, other consultancy services and equipment. (B) The project would support Government of India to develop a seismic monitoring and research program; 11. Project cost and financing. The total project cost including contingencies is US$328 million (including taxes and duties of US$15 million). The IDA Credit of US$246 million would finance 78t of the total rehabilitation program. The GOM's contribution of US$40 million will finance 12t of the project. NGOs and other donors are also contributing an estimated US$41 million for the program. These include 10 million Pounds Sterling cofinancing by the British Government, which has been agreed in principle. The Asian Development Bank will contribute US$0.6 million in parallel financing for implementation support. GOI contribution is US$1.0 million. 12. Implementation. The project would be implemented over a three year period. The project would be implemented by a Program Management Unit (PMU), headed by the Secretary and Commissioner (Earthquake Relief and Rehabilitation) who would also be the nominated Project Director. The Project Director will be assisted by a team of management consultants and other experts to ensure the outputs are delivered in the manner planned and within the targeted completion date. The Project Director has been delegated substantial administrative and financial powers to facilitate speedy implementation. The Project Director will also be supported by a Chief Engineer and other technical staff seconded to the PMU from government departments. The PMU will use consultant services extensively for detailed preparation and supervision of works. The PMU will be overseen by the Central Implementation Group (CIG) under the chairmanship of the Chief Secretary. Policy directives will be provided by Cabinet subcommittee headed by the Chief Minister of Maharashtra. 13. Environmental Impact. This project would raise the quality of the environment in the new villages above standard of to be found in the older villages in the region. The more generous provision of standpipes for drinking water and the twin pit latrines in every dwelling unit would make a major contribution to the health and welfare of the local population. However, no project which involves the relocation of such a large number of people to have only positive environmental impacts. - 4 -  To examine the potential environmental affects of each new village, GOM will provide an environmental impact statement, and to demonstrate how any impacts would be mitigated. The issues to be addresses would include surface water drainage; water supply; sanitation; and any reduction in the land available for agriculture. 14. Social Issues. To minimize any negative impacts of the resettlement program the GOM has prepared and published a rehabilitation policy and program, and has made arrangements for implementation plans to be discussed in each village. Appropriate appeals procedures have also been built in. The agreed planning process is community-based so as to ensure, as far as possible, that the designs of the new houses and villages are acceptable to the people who would live in them. 15. Training of Construction Pesonnel. A primary objective of the housing program is the transfer of technology to small contractors and local artisans so as to promote the use of earthquake-resistant building technology and the safe use of local building materials, particularly stone. The program would develop three approaches to meet this objective: (a) establishment of building centers by the Housing and Urban Development Corporation (HUDCO) for training village builders and artisans of various profiles; (b) introduction of new least-cost building materials; and (c) provision of training programs organized by a PMU. The structured program of training by the PMU would include the use of specialists to train the trainee instructors who would, in turn, train local artisans and NGOs. The training would cover hands-on building works, educational materials and training classes throughout the 13 districts where stone masonry has been used to build the traditional village houses. The PMU would organize the training through individual specialists or through an appropriate qualified institution. Proposals would be developed by the PMU for review and approval by the Association. 16. Benefits and risks. The project would bring immediate and sustained economic and social benefits to the region affected by the earthquake. It would build upon the foundations provided by the relief measures of the GOI and GOM and benefit from the continued momentum of the rehabilitation program. It would rebuild the housing destroyed by the disaster and give an important boost to the local economy and provide economic and social support to disadvantaged sections of the community, particularly women and children. Longer term benefits would be generated from the strengthening of infrastructure and housing in the region, and the development of comprehensive disaster management and seismic research and monitoring programs. 17. Rebuilding in a proven earthquake zone can never be risk free. However, the expert advice available within India is of a very high quality and the Association is confident that the design standards and technology proposed will be appropriate for the level of seismic risk. The major risk for the project is that the GOM will fail to implement the project in a timely fashion. If it were to take much more than three years to implement, many of the benefits of an emergency project would be dissipated. The GOM has already taken steps to mitigate this risk through the establishment and staffing of the PMU, and the - 5 -  preparation of a detailed implementation program. In addition procedures have been introduce which should ensure the timely provision of funds, the prompt award of contracts and effective contract management. Contact Point: Public Information Center The World Bank 1818 H Street N.W. Washington D.C. 20433 Telephone No.: (202)458-5454 Fax No.: (202)522-1500 Note: This is information on an evolving project. Certain components may not necessarily be included in the final project. - 6 -