Government of the Peoples Republic of Bangladesh

Consolidated Damage and loss Assessment,

Lessons Learnt from the Flood 2007 and
Future Action Plan

(Executive Summary)

Report prepared by:

Disaster Management Bureau
Ministry of Food and Disaster Management
With the assistance of
Comprehensive Disaster Management Programme (CDMP)
November 2007
 Consolidated Damage and loss Assessment, Lessons Learnt from
the Flood 2007 and Future Action Plan
Introduction

This Executive Summary has been produced as an interim report pending the
completion of the detailed Damage and Loss Report in late November. Although it was
originally planned to have the report completed by late October, 2007, this could not be
achieved owing to the unavailability of assessment team members for EID holidays in
October. The executive summary does capture the key issues and damages associated
with the floods and can be utilized to initiate consultations with development partners and
other stakeholders.

The primary focus of this report is to provide an overview of the damage that occurred as
a direct result of the flooding. It should be noted however, that in a number of cases a
more thorough analysis has been undertaken by some districts and departments to
incorporate the full extent of damage to infrastructure whether it was caused by the flood
or not. This is a very necessary approach, as the failure to make good all repairs will no
doubt continue to place communities in a vulnerable situation for future floods.

The number of deaths, extent of health related problems and scope of relief required was
higher than in previous floods and this can be directly linked to the significant failure of
the flood protection systems and particularly embankments. The failure of key agencies
to apply rigorous risk assessment and risk mitigation from both a single sector and cross
sectoral basis when designing previous post flood reconstruction as it is another factor
for the extent of damage. This applies directly to the construction of embankments, main
highways, bridges and culverts. For example a number of embankments were breached
before the flood through riverbank erosion. Prediction models and risk mapping is
available and should have provided early warning to agencies on the risk of this damage
occurring.

Similarly, critical infrastructure such as government buildings, schools, health clinics

remain situated in high risk locations and will be continuously at risk to damage and flood
inundation unless risk mitigation works are undertaken.

Warnings issued from the Flood Forecasting Warning Centre were extremely accurate
and timely. These were widely disseminated with the assistance of the Disaster
Management Information Centre (DMIC) of DMB that remained operational for the
duration of the floods. Approximately 90 situation reports were disseminated to over 500
recipients on a daily basis during the period June through September. While there was
an observed high level of government activity within each of the affected districts, it was
clear that more needed to be done to strengthen the capacity of disaster management
committees to enable them to translate information contained in warnings (i.e. river level
is 30cm above danger level) into on-ground scenarios.

The Floods

The 2007 floods came in two waves. The first wave commenced around the 24th July
2007 and initially affected Nilphamari, Lalmonirhat and Kurigram, Sherpur, Jamalpur,
Sylhet, Sunamgonj districts. In following days Rangpur Gaibandha, Bogra, Sirajgonj
were flooded, and subsequently the other districts were inundated up until about the 6th
August. This represented about 39 districts. The second wave commenced on the 5th
September and continued up until the 15th September 2007 when some new districts

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 2
 apart from the previous 39 were flooded. A total of 46 districts were affected to varying
degrees during both flood waves. Refer to the attached map.

The flood inundated about 32000 Sq Km including the char areas of 6000 sq km
affecting almost 16 million people in around 3 million households. Thousands of people
also suffered from flood related health hazards.

Eighty five thousand (85,000) houses were completely damaged, while almost one
million suffered partial damages. 649 persons were reported to have perished either as a
direct impact of the flood or through flood related causes including bridge collapse or
boat capsizing. A number of children drowned as a result of swimming in flood areas. A
number in addition to this perished as a result of diseases caused by contaminated water
and poor sanitation.

The process

The assessment of damage was undertaken through a number of strategies including

the collection of information/damaged data from the Head of the agencies/departments
located in Dhaka and from the respective district administration. On the 9th October a
consultation workshop was conducted with the heads/representatives of agencies to
analyze agency wise damage assessment data. One of the objectives of the workshop
was to enlighten agencies on risk reduction/prediction models to strengthen their
capacity to improve design of post flood reconstruction.

Twelve workshops were carried out in pre-selected districts including 6 severely affected,
4 moderately affected and 2 less affected. District Disaster Management Committee
(DDMC) members participated in an exercise that was focused on “ground truthing”
damage assessments in order to improve the accuracy of damage and also to try and
ascertain the reasons why damage occurred (other than the obvious). The primary
objectives of the field visits were to understand the methodology of damage data
collection by the district authority, collect qualitative data on the causes of damages, and
to record some important lessons learned and to gain a better understanding of coping
strategies.

Following the workshops, the team visited the affected areas and flood exposed
elements. The members were accompanied by concerned departmental officials of the
Government of Bangladesh. The officials of concerned departments at districts level
were interviewed. Focus group discussions were also held at the field level using semi-
structured questionnaires of informal and formal discussion also took place in the
workshop about the present situation of the flood affected people.

Brief Overview of Sectoral Damage

Primary infrastructure (considering Flood Management): The structures related to water

management are considered in this section. This includes the levee, embankment,
drainage channel, irrigation canal, sluice gate, regulator, bridge culvert and approach
road to bridge. The water development board consolidated report on cumulative
damages of the structures is BDT 5549.7 (USD 81.6 million). Some of the major
damaged elements on 2007 are the Brahmaputra right embankment have damaged in
some areas partially (Rangpur and Bogra districts), in some areas fully (Sirajgonj and
Gaibandha). Ragpur Town protection Embankment, Sirajgonj town protection
embankment. Ntrokona Kalmakanda embankment of 500 meter. East side of Gaokanda
embankment. Lakhar char to Betua bazaar road cum embankment, Some of the critical
damage structures Flood 2007 identified by the field team is presented in table 1.

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 3
 Secondary infrastructures: Office building, markets, schools, roads (paved roads, earth
roads, carpeted roads, feeder roads), bridge and culverts, tube-wells, latrines, health
centers, handlooms. According to Roads and Highways department, about 55% of roads
were affected by the 2007 flood which is in length of 2,344 km. A total 52 bridges were
damaged (1811 meter in length). The LGED reported a total of 14,294km roads (paved
and unpaved) were damage in 46 districts. The flood washed away 849 bridge and
culverts and 14 Union council buildings and 8 growth centers. A total of 70,367 tube-
wells were inundated and contaminated. According to directorate of Primary Education
8,668 primary schools were partially damaged and 205 primary schools need to be
rebuilt. The education engineering department reported that a total 15 schools were fully
damaged and 3,559 were partially damaged.

Food and agriculture sector damage: A total about 1.12 million ha of cropland were
either partially or fully damaged in this flood which accounted the 42165.8 (million Taka
(BD 22270.63 in 1st spell flood and 19895.25 in 2nd spell flood). These looses are from
the private farms of the standing crops (Taman, seeding, broadcast aman, jute and
vegetable). The death of livestock which estimates was BDT 5.8 million. Considering the
losses accounted for milk, meat, egg, infrastructural damage of the total livestock sector
is 608.55 million (Table 2). The fisheries sector losses are BDT 1,965 million which
included the losses from fish fingerlings, fishes, shrimp, and fisheries infrastructures. The
forestry sector estimated the damage and losses is Taka 37.80 million which includes
damage of trees, nursery and infrastructures.

DAMAGE DATA COLLECTION AND COMPILATION PROCEDURES:

Data provided by the District administration: Damage data is primarily collected by

concerned department(s) and compiled by District Authorities through District Relief and
Rehabilitation Offices. In some cases Upazila Nirbahi Officers (UNO) collected data
(area of damages) from the union council chairmen and members and
verified/crosschecked by the officials. It was observed that data collected by concerned
departments was more reliable since the departments have available information about
infrastructures.

Data collection at the field level is difficult as the mode of data processing is not the
same which resulted in compilation difficulties. Less manpower and limited time also
affected the assessment process.

Data from the Head of the agencies/departments

The data provided by the Head of the concerned agencies/departments are the compiled
data of whole country received from the field office of the department/agencies. In most
of the cases the agencies have prepared rehabilitation plan considering the damage but
no exact damage data and information about damaged element were provided. In some
cases the damages caused in previous years was not repaired but was still also included
in the rehabilitation plan for this year. It was clear that there was not a great deal of
consultation with communities when preparing damage assessments and more
specifically the cause of damage.

General Observations

1. Damage caused by the flooding could be categorized as direct and consequential.

For example the failure of the flood protection system (direct impact) resulted in far
reaching consequential impacts in the household, health and food security.

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 4
 2. About 70-75% of the total damages and losses where in the crop, livestock, fisheries
and forestry sectors. People in general were aware of the floods, but they were
caught unaware because of the sudden embankment breaching which claimed more
lives (human and animal) and damages.

3. It was found that regular and routine maintenance activities of the embankments
were not addressed for a long period. This increased the breaching of embankments.
Additionally damages to embankments by dwellers and rats were identified as a
major problem. Communities, department of agriculture, fisheries, livestock were not
involved in embankment planning, implementation and monitoring process.

4. Critical infrastructures and means of communication were disrupted. People lost food
grains, domestic animals, homesteads, and lives and options for livelihood were
paralyzed. They remained marooned without food and drinking water until relief
arrived.

5. The Jamuna River widened about 8 km to 12 km, other rivers showed the same
tendency without stopping. Bangladesh lost more than 1,000 km² of land along the
major rivers during the last 30 years. The land would have provided living space for
about 1million people. Identification/investigation of the factors which contribute to
these devastating floods. The major river-beds are rendered shallow by heavy
deposits of alluvial soil each year and tend easily to cause inundations. (The
quantum of silt carried by the river systems into Bangladesh is estimated to be 2.4 ×
109 tones/yr).

6. The insufficient opening (bridge/culverts) interrupted the natural water flow resulted in
disruption of roads and damage to the adjacent areas.

7. Many food surplus districts can not achieve the target because of the devastating
flood which had severe impact on Aus, T. Aman and B. Aman. Less water outlet of
small river and canals and poor drainage system is another cause of disrupting water
flow which ultimately caused more extensive flooding. Improper water management
causes the river erosion which increases in the vulnerability of the community;
especially those are residing near in the Brahmaputra, Meghna and Jamuna basin.

8. Many of the roads, buildings (schools, health centre and others) have been designed
and constructed without complying with building codes. Similarly many of the
construction works were not completed prior to the floods which suggests that the
planning of construction needs to consider the monsoon,

9. The roles and responsibilities outlined in the Standing Orders on Disasters (SOD)
were not fully followed by concerned officials and lack of coordination among
stakeholders and within the departments in the field level were observed. Despite
this, District Disaster Management Committees (DDMC) or Upazila DMC held many
meeting in the lead up to the floods and this enhance early warning and relief
management operations. In many places, the under-utilization of the equipments
(computer to use email transmission) were observed.

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 5
 Key Recommendations

Priority reconstruction should be focused on addressing the direct impact areas such as
embankments, roads and culverts. It is essential that this work be undertaken before the
onset of the 2008 monsoon otherwise flooding will again be significant as will damage.

Work based safety-net programme including VGF, VGD, food for work, Test Relief,
Gratuitous Relief should be used to establish/construct the embankment. Employment
opportunities of the flood-affected people should be identified and introduced.

Risk analysis and risk mitigation should be a mandatory element of any new construction
or replacement programme design. This should involve both single sector and cross
sector risk analysis. If this is not undertaken there can be no guarantee that
reconstruction work will survive the next wave of flooding.

There should be standard damage and loss assessment format along with the guidelines
and capacity building to improve efficiencies and coordination between agencies, district
administration, UN Agencies and NGOs.

Severely affected districts (by households, area and croplands) should be given
immediate attention for risk reduction.

Contingency planning and capacity building is required at the field level to strengthen
early warning, evacuation, rescue, relief management and damage assessment
capabilities and interagency coordination.

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 6
Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 7
Table1: Primary critical infrastructure damages in Flood 2007 identified by Review Team

Districts Structure and area

Kurigram Nageswari Kaligonj road, and bridge; Kurigram Ulipur embankment and road

Gaibandha Breaching of WBD, bramaputra right embankment (BRE) at Ratanpur of Fulchari

Upazila; Road maintenance & breached portion of 40 meter in the road from
Gaibandha to Blashi ghat; Road maintenance work from Gaibandha to
Kamarjani;
Regular routine maintenance of Gaibandha Town protection embankment.
Rangpur Rangpur Town protection and Teesta flood protection embankment in
Gangachara and BRE in Kaunia;
Bogra Routine maintenance of BRE in Bogra; Sarikandi hard point of BRE;
Sirajgonj Khokshabari Flood protection embankment; Bramaputra Right embankment,
River bank protection embankment; Nailchapari to Bhanga orad
Jamalpur Tarakandi-Bhuapur road protection embankment
Netrokona Gaokandi Bazar East Side Embankment - About 500m; From Teribazar ferryghat
up to newly constructed bridge-approach road with block/protection wall-about
1.5km; From Shibganj bazar to Kullagara –paved road-about 3.0km; Primary
School at Killagara UP/Bill Kakarakanda vill, could be used as flood Shelter;
From Birishiri -Shibganj ferry ghat to Gaokandi paved- About 4km.

Manikgonj Damages of Dhaka-Aricha road

Faridpur Mirakanda Bridge in Nagarkanda upazila I; part of the embankment ; Chagaldi
Bridge in Nagarkanda was totally abolished along with embankment. Now the
gap is more that 3 times of the actual bridge. Embankment near Charchagoldi
is washed away nearly 100 yards of the embankment; Boutipara bridge
damaged and replaced by baboo bridge by the local authority to cross the river;
Road near Benokdia-Laskerdia under Nagarkanda is totally damaged, more
than 200 feets; Bhawakdia-Mia Bari bridge in Nagarkanda bridge damaged.

Shariatpur Dularchar-Shakhipur road and three bridges.

Comilla Gumti river embankment; Batakandi jahapur road
Chandpur Partially damaged Meghna-dhangoda Irrigation project;
Sylhet Road between Sylhet and Golabganj; Damage of Dyke by the bank of river
Kushiara river right embank and road; Damage of Embankment at Dakkhin
Chara of Shaola Union under Biani Bazar Upazila of Sylhet district;

Sunamgonj Waiskhali of Sunamgonj road

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 8
 Table 2: Summary of Initial Flood Damage Estimates of Flood 2007

Sl No Sector Department/Agency, Damage elements Damage remarks

Ministry (Data Source) cost
(Million
BDT)
Food and Agriculture
1. Agriculture Department of Agricultural Crop (Transplanting 42165.44 Private land and farms.
st
(crop) Extension (DAE), Ministry of aman seedlings, jute, BD 22270.63 in 1 spell
nd
Agriculture vegetables, T aman, flood and 19895.25 in 2
B. Aman and other spell flood. These losses
crops) are from rehabilitation
budget 1064.8.
2. Livestock Department of Livestock Cattle, buffaloes, 608.55 Included housing
Services, (DLS) , Ministry of sheep, goats, damages of 2794 farms of
Fisheries and Livestock chicken, ducks, large ruminants and 5412
forages and straw poultry firms. Rehab
budget 643.55.
3. Fisheries Department of Fisheries Fish fingerlings, 1964.95 This data included 7 govt.
(DoF), Ministry of Fisheries freshwater fishes, fish farms
and Livestock shrimps/prawns, pond
embankments
4. Deep and Barind Multipurpose Pump house and 509.40 While visiting field the
Shallow tube Development Authority Deep tube-well damage of Deep Tube-
well (BMDA), Ministry of machineries and wells were observed and
Agriculture irrigation canals reported but no data.
5. Seeds & Bangladesh Agriculture Pump house, 10.00 BADC
irrigation Development corporation underground pipe Faridpur-Gopalgonj-
(BADC), Ministry of line, water pump, Rajbari irrigation area
Agriculture control structure and development project (II
connecting roads phase)
6. Forest Forests Department, Forests, nursery, 37.80 Office of the Chief
Ministry of Forest and roads and buildings in Conservator of Forest
Environment forests
Infrastructures- Health
7. Public health Department of Public Health Tube-wells (TW) and 137.22 70,367 TWs contaminated
Engineering (DPHE), platforms and damaged (Tk @
Ministry of Local 1950) was calculation
Government and factor collected from field
Cooperatives (Gaibandha)
8. Department of Health, Health infrastructures 344.40 Rehabilitation budget
Ministry of Health and (Health Centers, considering the damages
Family Planning clinics, medicine and
other items damages
9. Department of Family Health sub-centers, 34.42 Director General,
Planning, Ministry of Health community clinics Department of Family
and Family Planning Planning
Transport, Communication and public works
10. Local Government and Roads, bridges and 11425.35 The value is for
Engineering Division culverts and other rehabilitation plan of the
(LGED), Ministry of Local infrastructures, damaged structures and
Government and approach roads, estimated value for
Cooperatives (MOLGRD) drain, UP Building, reconstruction.
growth centre,
embankments
11. LGED, MoLGRD Flood Shelters 45.00 Cost for reconstruction,
repair and maintenance of
the damaged shelters
12. Departments Roads and Highway, Roads, 6904.90 Estimated value of
Highways, Ministry of bridges and other damage element.
communication infrastructures
13. Bangladesh Water Embankment, bridge 5549.74 Chief, Monitoring
Development Board, culvert, roads and Bangladesh Water
Ministry of Water resources building, sluice gate, Development Board
regulator, inlet, outlet
etc.

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 9
 14. Bangladesh Handloom Handloom 282.26 No damage data, but a
Board, Ministry of rehabilitation plan
15. Bangladesh Small and Building, roads, 17.00 No damage data, but a
Cottage Industries (BSCIC) culverts and drain rehabilitation plan
16. Telephone and Telegraph) Infrastructures 6.15 The amount was spent
T&T (Cabinet, telephone already to repair.
pole, cables, Offices)
17. Power Development Boards Infrastructures 94.05 Rehabilitation plan
(PDB) (meters, polls, and considering damage
transmitter) element
18. Rural Electrification Board Electricity related 29.13 Rehabilitation plan
(REB) infrastructures considering damage
element
19. Directorate of Relief and Disaster Shelters 73.00 DRR; Cost estimates to
Rehabilitation (DRR), reconstruction and repair
Ministry of Food and of the shelters
Disaster Management
20. Directorate of Relief and Bridges/Culverts 13.20 DRR; cost for
Rehabilitation (DRR), reconstruction
Ministry of Food and
Disaster Management
21. Bangladesh Railway Railway 370.97 Rehabilitation plan
infrastructures (rail considering damage
line and bridges, element
22. Bangladesh Inland water Infrastructures like 367.38 Rehabilitation plan
transport authority, Ministry Pontoon considering damaged
of Shipping element
Education
23. Primary Directorate of Primary Primary School 1114.20 Rehabilitation plan. 8668
Education Education buildings and other primary schools were
related damaged. 205 new
offices/infrastructures schools were planned
books and furniture
24. Secondary and Directorate of Education Schools, colleges and 430.23 15 fully and 3659 partially
higher Engineering Madrashas buildings damaged (non-govt. and
and other related govt.) school, college and
offices/infrastructure, Madrasha.
books, laboratory and
furniture
Total BDT 72,534.74
Total USD (1 USD=68 BDT) million 1,066.69

Executive Summary: Consolidated Damage and Loss Assessment, Lessons Learnt from the Flood 2007 10