The Comptroller and Auditor General of India (CAG) recently presented a report on Kerala’s preparedness and response to floods in the Kerala assembly. This report, which takes its context from the catastrophic Kerala floods of 2018, highlighted that 45 years after the Union Government proposed a model draft bill for flood plain zoning legislation, the state has yet to enact it.
Understanding the Concept of Flood Plain Zoning
Flood plain zoning essentially aims to regulate land use within flood plains to minimize damage caused by floods. The strategy is not designed to remedy existing situations but to prevent further damage in new developments. It outlines zones where development should either be limited or restricted altogether, adding limitations on both unprotected and protected areas based on potential damage if protective measures fail.
Flood Plain Zoning’s Role in Urban Areas
Beyond floods triggered by rivers, flood plain zoning can mitigate the damage caused by drainage congestion, particularly in urban areas. In the case of India, the country’s susceptibility to flooding is notable, with 40 million hectares out of a geographical area of 3290 lakh hectares being flood-prone.
The Model Bill for Flood Plain Zoning
The model bill for flood plain zoning includes provisions for flood zoning authorities, surveys and delineation of flood plain areas, prohibition of the use of flood plains, and compensation. Its most significant provision, however, involves removing obstructions to enable the free flow of water. The bill identifies low-lying residential areas as major targets for conversion into parks and playgrounds, suggesting that the absence of human settlement in these areas would lead to fewer losses of life and property.
Challenges in Implementing Flood Plain Zoning
State governments have resisted various aspects of floodplain management, including potential legislation. This unwillingness is primarily attributed to population pressure and the lack of alternative livelihood systems. A tepid response towards the enactment and enforcement of floodplain regulations has incited a significant increase in encroachments into flood plains, sometimes even authorized by town planning authorities.
Constitutional Provisions and Other Measures
Flood control falls under state government jurisdiction, with the central government’s role being advisory in nature. The National Disaster Management Authority (NDMA) issued guidelines for states regarding floodplain zoning, recommending that areas susceptible to 10-year frequency floods be reserved as green areas. These zones should refrain from constructing concrete structures, paving the way for parks and gardens instead. NDMA also discussed other zones in the floodplain and suggested corresponding planning measures.
The Need for Integrated Basin Management Plan
Given the substantial annual damage caused by floods to life and property, it is essential for both central and state governments to formulate a comprehensive long-term plan. An all-encompassing basin management plan involving all river-basin sharing countries and Indian states would be significantly more beneficial than isolated, piecemeal measures such as building embankments and dredging to control floods.
