Case Studies on Flash Flood Risk Management in the Himalayas
Chitral, Pakistan
Flash flood risk assessment, capacity building, and
awareness raising
Wali Mohammad Khan and Salman Uddin, Focus Humanitarian Assistance (FOCUS) Pakistan
FOCUS Pakistan partnered with Agriculture is the main source of livelihood for the
people of Chitral. Approximately 60 per cent of
communities in Chitral District to develop a
the area is a single cropping zone. Some parts of
flash flood early warning system consisting Upper and Lower Chitral are in a double cropping
of announcements in mosques and other zone. Maize, wheat, and barley are the main crops.
gathering places and via mobile phones, Fruit and vegetable sales contribute to the income
and to build community response skills of several families. Almost 40 per cent of Chitral’s
population is engaged in government service, private
through a dedicated team of volunteers.
jobs, trade, or some form of entrepreneurship.
This approach could be scaled up to
greatly minimize vulnerability across the Chitral is situated in a multi-hazard prone zone.
Every year, life, property, and hard-earned means
whole district.
of livelihood are lost as a result of different kinds
of natural and human-induced disasters. Flash
Introduction floods, glacial lake outburst floods, earthquakes,
avalanches, landslides, debris flows, droughts, heavy
Chitral District is located in the Koh Hindu Kush rain and snow, soil erosion, and riverbank collapses
range in Khyber-Pakhtunkhawa Province of Pakistan. are common natural hazards in the district. In 2007,
It shares a border with Afghanistan to the west and massive snowfall led to the loss of 78 lives and
north and with Gilgit-Baltistan, the northernmost part caused widespread devastation and disruption of
of Pakistan. Geographically, it is one of the largest infrastructure, with recovery efforts costing around
districts in Khyber-Pakhtunkhawa Province, covering USD 12 million. About 90 per cent of Chitral District
an area of around 14,800 km2 with a population of is at risk of flash flooding.
over 450,000 people.
There are limited contextualized policies in place
Administratively, Chitral District has two tehsils at the national level in Pakistan to deal with flash
(Chitral and Mastuj), 24 union councils, and 523 floods as a separate category of flood. The majority
villages. Around 4.8 per cent of the land is covered of organizations, including disaster management
by forest and 76 per cent is mountains and glaciers; authorities, rely on materials and plans proposed by
barely 4 per cent of the total land area is viable for international agencies like ICIMOD.
cropping. The literacy rate is 59 per cent (men 77
per cent; women 40 per cent) and the population In 2008, FOCUS Pakistan, in collaboration with
growth rate has been estimated at 2.5 per cent per ICIMOD, implemented a community-based project
annum. The people of Chitral belong to over a dozen on reducing flash flood risk in Chitral District. The
different cultures and speak more than 14 languages. project aimed to assess the risk of flash floods, raise
As a result of its unique location and historical awareness about flash flood risk, and strengthen the
links with Central Asia, the culture of Chitral bears capacity of local people to manage such risk.
traces of Greek, Iranian, Mongolian, Tatar, and Turk
influences.
18
Chitral, Pakistan
Flash Floods in the Study Area As in other parts of Chitral District, the villages in
the study area are surrounded by mountains and
Four villages in Chitral were selected for study: do not receive significant monsoon rain. The Drosh
Charun, Koragh, Zaith, and Reshun (Figure 6). Valley and Chitral town, both located in Lower
These villages are situated in Mustuj Tehsil, on the Chitral, receive rainfall of approximately 650 mm
west side of the Yarkhun River, 70 km from Chitral and 500 mm per year, respectively, falling mainly in
town, and fall into a double cropping zone. Of the spring and winter. During summer and autumn these
four villages, Zaith is the most flash flood hazard areas are mostly dry, receiving barely 10–25 mm of
prone. Two streams flow into the village from different rain per month. Temperatures are very hot in summer
directions and meet at the centre of the village. Many and extremely cold in winter, with snow falling at
other tributaries also flow into the main stream and higher altitudes.
increase the volume of water, frequently causing bank
collapse and eroding fertile lands into the stream. Methodology
The combined population of the villages in the study
area is 8,650 distributed in 1,015 households. Every The project initiated a community-level dialogue
year these villages are affected by flash floods. Major at the start of the project with government
flash floods have occurred in 1973, 1984, 1997, representatives, local support organizations,
1998, 2004, and 2005, causing the loss of hundreds Community Emergency Response Team (CERT)
of lives and affecting houses, agricultural production, volunteers, and local leaders. The study objectives
infrastructure, and livestock. The recurring trend of and pilot phase were explained to the communities
disasters has forced villagers to move numerous times in the study area. The methodology and processes of
to different places within the village. project implementation were also shared and agreed
upon at the implementation stage.
Figure 6: Map of Chitral District showing target villages for flash flood mapping
Project villages
Main town
Road network
19
Case Studies on Flash Flood Risk Management in the Himalayas
Project Activities Social hazard mapping: Social hazard mapping
was conducted in three of the study sites –
The study had three main components: Reshum, Koragh, and Zaith (Figure 7).
Risk assessment: Hazard, vulnerability, capacity, Training needs assessment and target
and risk assessments were undertaken through group profile: A training need assessment and
the documentation of indigenous flash flood target group profile were conducted to select
management mechanisms in the community. participants and assess their training needs for
Capacity building: The project built the capacity capacity building on flash flood response.
of CERT volunteers as first responders for flash Training of trainers for community-based
flood management and to develop community- flash flood risk reduction: A community-
based flash flood response and evacuation plans. based flash flood risk reduction workshop
Awareness raising: The project conducted was conducted to develop the capacity of the
awareness raising at the community level through local CERT volunteers in flash flood response.
an awareness-raising walk, quizzes, and a lesson Theoretical and practical sessions were held for
sharing workshop. all volunteers on hazard awareness, light search
and rescue, first aid, and evacuation.
Project activities included the following: Awareness raising: Disaster risk reduction
Technical studies: Technical studies were sessions were conducted in schools and for
conducted by FOCUS Pakistan’s Hazard CERT leaders (CERT leadership workshop and
Vulnerability Risk Assessment Team and used refreshers). A quiz on flash floods was held to
for evacuation planning. Flash flood mapping share information on flash floods. The quiz
was conducted to identify where flash floods contained questions on preparedness and
may occur and where additional evaluation is measures to be taken during a flash flood event.
needed to assess the hazard and recommend Communities also participated in awareness walks
mitigation measures. FOCUS Pakistan’s Regional to raise mass awareness about flash flood risk
Programme Office in Chitral, in collaboration with management, particularly among female CERT
ICIMOD, completed flash flood hazard and risk volunteers (Figure 8).
mapping of Charun, Koragh, and Zaith. These
maps can be used to develop an early warning
system and for land use planning, village disaster Figure 7: Social hazard map of Charun village
management plan (VDMP), and to compile an
inventory of scientific and indigenous knowledge
on flash floods in the area to enhance the
response at the community level to reduce the
impact of flash floods.
Hazard and risk assessment: Hazard and
risk assessment was one of the key activities
conducted by the project. Building on the
technical assessment of hazard and risk conducted
by the Hazard Vulnerability Risk Assessment Team,
household surveys and focus group discussions
were conducted with the help of questionnaires
and pre-defined checklists to obtain data on
community and government assets, gather
historical data, and ensure community
involvement. Community members were provided
with satellite images to develop their own risk
and hazard maps. Community-based risk and
hazard map transect walks were conducted in the
hazard prone areas identified by communities.
Communities also identified evacuation routes
and safe locations on the maps.
20
Chitral, Pakistan
Figure 8: Awareness walk in Koragh village Figure 9: Simulation exercise in Reshun village
Simulation exercises: Simulation exercises such as overgrazing in the upper catchment and
were conducted in Reshun village to enhance deforestation, compound the problem as lack of
community response in a flash flood disaster vegetation causes direct runoff which can trigger
situation (Figure 9). One-hundred-and-twenty a flash flood. This, together with climate change,
CERT volunteers were given skills training on is contributing to increases in the frequency and
how to react in an actual flash flood situation. magnitude of flash floods in the study area.
The readiness of these teams is constantly tested
Up to 13,428 km2 of land is at risk of flash floods in
through drills and simulation exercises.
these four villages, and siltation caused by frequent
Lesson-sharing workshop: A lesson-sharing
flash flood events has reduced local agricultural
workshop was conducted to share key findings
production. Livestock are also at risk: about 200
and lessons learnt on flash floods with relevant
animal sheds in the four study villages are exposed to
stakeholders, i.e., government representatives,
flash flood hazard of high intensity. While community
members of the Aga Khan Development Network,
members are aware of flash flood hazard, extreme
members of NGOs, representatives of civil
poverty and population growth is forcing villagers
society organizations, local leaders, and CERT
to build in hazard prone areas, exacerbating their
leaders. This workshop had two main objectives:
vulnerability and risk.
advocacy and the capacity development of
stakeholders. It also served as a platform for The project’s contributions to flash flood risk
discussing ways of mitigating flash flood risk reduction in the study area can be summarized as
and how to develop institutional mechanisms to follows:
minimize hazards with community participation at CERTs established in each study village;
various levels. community-based flash flood response and
evacuation plans developed for each study
village;
Results
120 CERT volunteers trained as first responders
The study found that short-duration intensive and in community-based flash flood risk
rainfall and cloudbursts are the main causes of management;
flash floods in the study area (as identified in group community stockpiles of materials and equipment
discussions with community members and verified provided for flash flood preparedness and
by technical analysis). The surface topography of response in Charun and Reshun;
the upper study area and its composition of very awareness raised among community members of
loose, unconsolidated soil, which is highly unstable flash flood risk and preparedness strategies;
and non-cohesive in nature, make the area prone early warning system set up through CERT
to flash floods during intensive rainfall. Human volunteers who provide early warning to
activity and interference with the natural environment, downstream people using mobile phones and
21
Case Studies on Flash Flood Risk Management in the Himalayas
through announcements in mosques and other Box: Building community resilience: CERT volunteers
gathering places; respond to flash flood events
non-structural mechanisms implemented including
the formation of natural resource management In 2010 and 2011, CERT volunteers in the study area
committees and strengthening of indigenous responded to several flash flood events. They provided
social organization system; and shelter and relief to affected families and conducted
structural mitigation programme implemented in damage assessments, which they shared with FOCUS,
collaboration with the government and NGOs the government, and responding agencies. CERT
including the construction of protective walls and volunteers have also been involved in re-construction
check dams. work with families that lost their homes and other
valuable asset. CERT volunteers are seen as ‘blessing
In addition, improved irrigation channels have also squads’ in the study villages and their valuable
been constructed by the Aga Khan Rural Support contribution has been acknowledged at all levels.
Programme and the government.
The results of the project can be summarized as
follows:
Improved capacity of CERT: The project
The following lessons were learnt from the project
significantly improved the capacity of CERT
and may be relevant throughout the region:
volunteers as first responders during flash flood
A holistic approach and community participation
events. This brought with it a certain level of
is imperative for the success of any intervention.
awareness of how to mitigate flash flood risk
Structural mitigation is crucial and goes hand-in-
(Box).
hand with non-structural mitigation in reducing
Reduced flash flood risk and hazard: The
risk and ensuring safety. Non-structural measures
project activities have minimized the flash flood
alone are insufficient.
risk and hazard in the study. Communities are
Risk reduction is more complex than mitigation
now more prepared through CERT volunteers,
and requires the involvement of all stakeholders
the early warning system, evacuation plans, and
at the community level as well as district, and
community stockpiles, which have already proved
national levels to be effective.
useful in flash flood emergencies.
Social mobilization is needed at the grassroots
Informed decision making: The technical studies
level; for this, strong and motivated leadership at
conducted as part of this project have helped
the community level is important.
policy makers in planning and decision making.
Revitalization of local knowledge and community
Development initiatives are benefiting from the
organizations is important for risk management.
flash flood hazard and risk maps developed by the
Poverty compounds the vulnerability and risk
project, which are being used as a pathfinder and
faced by communities.
guideline for development practitioners.
Rapid population growth and overgrazing can
increase risk and vulnerability to flash flood,
Best Practices and Lessons Learnt particularly when settlements expand into unsafe
areas.
The practice of community-based flash flood risk
Community preparedness is pivotal for flash flood
management should be up-scaled and replicated at
risk reduction.
all levels, as well as in other parts of Chitral District,
which are equally at risk of flash floods. Harnessing
communities as a resource is imperative to disaster
management, which is a shared responsibility
between all stakeholders, and, therefore, all
stakeholders must be involved.
22
Chitral, Pakistan
Recommendations
Implement structural measures to mitigate flash flood risk such as protective gabion walls, which have been
identified as necessary to mitigate risks by the communities and through technical assessments.
Replicate and up-scale community-based flash flood risk management in other parts of Chitral, and
empower communities to withstand and minimize flash flood hazard.
Encourage afforestation and discourage deforestation. A sustainable plan should be developed by the
community, government, and other responsible agencies for dealing with the issue of deforestation and
balancing the needs of the community for fuelwood.
Strengthen indigenous social organizations and mechanisms as a way of controlling overgrazing and
deforestation, and develop an effective standard operating procedure for the local committees in each
village.
Integrate scientific knowledge with traditional knowledge and indigenous practices, and establish
communication channels with scientific technicians.
Develop effective insurance/micro-insurance and credit schemes to compensate local people for the
loss of crops, livelihoods, livestock, and other property as a risk sharing initiative. Government and non-
governmental organizations and stakeholders working in this field could be motivated to initiate such a
programme.
Use hazard maps for land use planning to ensure that houses, animal shelters, and crops are not in hazard
prone areas.
Prioritize and mainstream disaster risk management at all levels and systematically consider risk from
natural hazards for the sustainability of development activities.
Develop and introduce school-based flash flood risk management sessions for students, teachers, staff, and
management.
Promote the conservation and preservation of natural resources, with community participation as an
effective way to minimize natural disasters.
23
