Jammu And Kashmir Disaster Management Plan 2022-23

Policy Update

Vishal Kumar

Background

The Union Territory of Jammu and Kashmir (J&K) is characterized by a unique and complex topography, ranging from the high-altitude Himalayan valleys to the Pir Panjal range. While geographically distinct, this position makes the region exceptionally vulnerable to diverse natural and human-induced hazards. The territory is classified primarily under Seismic Zones IV and V, signifying a very high risk of high-intensity earthquakes. Historically, J&K has been scarred by devastating events, including the 2005 Waltengu Nad snowstorm that claimed over 175 lives, the October 2005 earthquake that killed approximately 1,350 people in the UT, and the September 2014 floods, which resulted in nearly 460 deaths and billions of dollars in infrastructure damage (NOAA).

The statutory foundation for managing these risks is the National Disaster Management Act, 2005, which requires every state and UT to formulate a comprehensive roadmap. Under Section 23(1) of this Act, the Jammu and Kashmir State Disaster Management Plan (SDMP) 2022-23 was established to facilitate a paradigm shift from a reactive, relief-centric approach to a proactive, holistic strategy focused on Disaster Risk Reduction (DRR). This 2022-23 framework aligns with the global Sendai Framework (2015-2030) and the Prime Minister’s 10-Point Agenda, aiming to integrate risk mitigation into all levels of developmental planning to ensure long-term strategic resilience.

Functioning

The SDMP 2022-23 operates through a robust, multi-tiered institutional mechanism that ensures coordinated governance from the Union Territory level down to the individual tehsils.

Institutional Framework: At the apex is the J&K State Disaster Management Authority (JKDMA), chaired by the Lieutenant Governor, which is responsible for laying down policies and approving plans. The State Executive Committee (SEC), headed by the Chief Secretary, coordinates the implementation of these policies across departments. At the local level, District Disaster Management Authorities (DDMAs), led by Deputy Commissioners, act as the primary bodies for planning and implementing measures within their respective districts.
Universal Postulates and Incident Response System (IRS): Under the Jammu and Kashmir Disaster Management Plan 2022-23, the “Universal Postulates” represent the core stages of the disaster cycle, while the Incident Response System (IRS) acts as the statutory administrative engine to execute these stages effectively during a crisis. Five Universal Postulates of Disaster Management are:

Prevention: Measures to avoid disasters or prevent manageable risks from becoming major catastrophes through planning, regulation, and risk reduction.
Mitigation: Long-term structural and non-structural measures to reduce disaster impacts, such as resilient infrastructure and public awareness.
Preparedness: Advance planning, training, early warning systems, and Emergency Operation Centres (EOCs) to ensure an effective response.
Response: Immediate actions during or after a disaster to save lives, provide relief, conduct evacuations, and coordinate emergency services.
Recovery: Restoration and reconstruction using the Build Back Better (BBB) approach to improve resilience after disasters.

Incident Response System (IRS)

Pre-Designated Accountability: Roles and responsibilities are assigned in advance to ensure clear accountability and avoid duplication.
Hierarchical Management: A unified command led by the Incident Commander (IC) enables coordinated decision-making and resource deployment.
Grassroots Extension: The IRS functions down to the tehsil level, allowing local authorities to manage Level 1 (L1) disasters effectively.
Inter-Agency Coordination: Provides a common framework for civil administration, security forces, and NGOs to coordinate rescue, relief, and logistics.
Activation Triggers: Incident Response Teams are activated immediately after warnings or disasters, with responses scaled according to disaster severity (L1–L3).

Emergency Support Functions (ESF): The SDMP identifies critical services—such as early warning, evacuation, medical care, and search and rescue—and assigns primary and secondary departments to each. For example, the Revenue Department serves as the nodal agency for relief and rehabilitation, while the SDRF and NDRF lead specialized search and rescue operations.
Technological and Digital Integration: The plan integrates advanced tools like the Digital Risk Database (DRDB) and the Integrated Operational Forecasting System (IOFS). It also prioritizes the use of the Common Alerting Protocol (CAP) and mobile applications such as SACHET, Damini, and Mausam for the rapid, last-mile dissemination of weather alerts and early warnings to the general public.

Performance

As of early 2026, the performance of J&K’s disaster management framework is evidenced by significant financial mobilizations and the completion of major infrastructure projects intended to modernize the UT’s response capacity.

Financial Commitment and Action Plans: The J&K administration has approved a ₹3,340 crore action plan to strengthen disaster preparedness through improved early warning systems, modern emergency response infrastructure, and enhanced institutional capacity. In addition, the Ministry of Home Affairs has sanctioned over ₹1,500 crore for recovery, reconstruction, and rehabilitation following recent extreme weather events. These investments have resulted in measurable improvements, such as faster emergency response times, wider coverage of early warning systems, stronger institutional coordination, and reduced disaster-related losses.
Infrastructure and “Nerve Centres”: A major milestone is the construction of the State Emergency Operation Centre (EOC) at Budgam, expected to be fully operational by August 2026. Equipped with redundant communication systems, real-time monitoring, and coordination facilities, it will function as the central command hub for disaster management across Jammu and Kashmir.
Community Capacity Building: More than 97,000 Aapda Mitras have been trained across disaster-prone districts in first aid, evacuation, search and rescue, and community awareness.² The administration has also enlisted and trained local divers in flood-prone districts to strengthen water rescue operations and improve the availability of local first responders.
Pilgrimage and Crowd Management: Disaster preparedness for major religious pilgrimages has been strengthened through RFID-based pilgrim tracking, regular mock drills, and dedicated emergency response plans. Special preparedness measures at Shri Mata Vaishno Devi, which receives an average of around 26,000 pilgrims daily (with numbers exceeding 40,000 per day during peak periods such as Navratras), and the seasonal Machail Mata Yatra, where authorities regulate the movement of up to 8,000 pilgrims on foot and 700 by helicopter each day, aim to improve crowd management, emergency evacuation, communication, and response to landslides and other hazards in high-altitude terrain (SMVDSB).
Early Warning and Preparedness: The government has expanded multi-hazard early warning systems by integrating weather forecasts, communication networks, and digital alert platforms. Regular mock exercises, inter-agency coordination drills, and public awareness campaigns have improved preparedness and response readiness at the district and local levels.
Institutional Strengthening: District Emergency Operation Centres (DEOCs) with one established in each of Jammu and Kashmir’s 20 districts, and Incident Response Teams (IRTs) have been strengthened through updated disaster management plans, improved coordination mechanisms, and capacity-building programmes. These initiatives have enhanced the ability of district administrations to respond quickly and effectively to emergencies.

Impact

The execution of the SDMP 2022-23 and its subsequent intensifications are fundamentally shifting the Union Territory toward an anticipatory disaster management culture.

Transition to a Preparedness-Oriented Approach: The implementation of the State Disaster Management Plan (SDMP) 2022–23 has shifted disaster management in Jammu and Kashmir from a largely relief-centric approach to one centred on preparedness and risk reduction. District administrations are now required to undertake pre-monsoon preparedness drills, update contingency plans, and conduct mock exercises before the April–September monsoon season, improving institutional readiness for floods, cloudbursts, and landslides.
Mainstreaming Disaster Risk Reduction (DRR): Disaster Risk Reduction has increasingly been integrated into development planning across key departments such as Housing, Public Works (R&B), Jal Shakti, and Urban Development. Infrastructure projects now incorporate earthquake-resistant construction standards, floodplain mapping, slope stabilisation, and hazard assessments, reducing the likelihood that new development will create or exacerbate disaster risks.
Strengthened Institutional Coordination: The establishment of Joint Control Rooms, Emergency Operation Centres (EOCs), and the Incident Response System (IRS) has improved coordination between the civil administration, the Army, Central Armed Police Forces (CAPFs), the National Disaster Response Force (NDRF), and other emergency agencies. This unified command structure has enabled quicker decision-making, more efficient deployment of resources, and better coordination during multi-hazard emergencies.
Greater Community Resilience: Capacity-building initiatives such as the training of Aapda Mitras, village-level awareness programmes, school safety campaigns, and regular mock drills have strengthened community preparedness. These measures have enhanced local response capabilities, reduced dependence on external assistance during the initial hours of disasters, and promoted a culture of disaster awareness.
Inclusive Disaster Governance: The SDMP adopts an inclusive approach by recognising the specific needs of women, children, older persons, and persons with disabilities during preparedness, evacuation, relief, and rehabilitation. It encourages accessible shelters, targeted relief measures, and community participation to ensure that vulnerable groups are not disproportionately affected during disasters.
Environmental and Ecosystem Resilience: The plan recognises environmental degradation as a driver of disaster risk and promotes forest regeneration, watershed management, slope stabilisation, wetland conservation, and catchment area treatment. These ecosystem-based measures help improve water retention, reduce soil erosion, minimise landslide risks, and mitigate the intensity of flash floods and cloudbursts in vulnerable mountain regions.
Improved Early Warning and Response Capacity: Investments in modern communication systems, digital early warning platforms, and upgraded Emergency Operation Centres have enhanced the government’s ability to disseminate timely alerts and coordinate emergency responses. Faster information sharing and improved situational awareness have reduced response times and strengthened the overall effectiveness of disaster management across the Union Territory.

Emerging Issues

Despite these advancements, several systemic challenges and “breaking points” continue to threaten the region’s safety.

Natural “Bowl” Vulnerability: Srinagar and its adjoining areas are “bowl-shaped,” which causes natural drainage congestion. Water flows easily from high-altitude catchments into the central plain but has very few exit points, effectively turning the city into a flood trap during extreme rain.
Loss of Natural Sponges: Massive urbanization over the last four decades has erased the wetlands, floodplains, and marshes that historically acted as buffers. The Dal Lake, for example, has shrunk to a fraction of its original size and lost significant depth, leading to a reduced carrying capacity of the Valley’s water bodies.
Climate Change and “New Normals”: Analysis shows that the “return period” for extreme rainfall (exceeding 64.5 mm per day) is shortening. Deluges previously considered “rarest of rare,” like the 2014 flood, are projected to occur more frequently as climate cycles accelerate.
The Cloudburst and GLOF Threat: J&K witnessed nearly 168 cloudbursts (IMD) between 2010 and 2022. The region’s young, unstable mountains and loose soil make these events catastrophic, as they often trigger massive landslides and potentially Glacial Lake Outburst Floods (GLOFs).
Data and Research Gaps: Experts have highlighted a critical lack of a dedicated baseline data portal for environmental parameters in J&K. Additionally, much of the academic research conducted in local universities remains unapplied to the day-to-day administrative practices of disaster management.

Way Forward

To reconcile its developmental goals with its high-risk profile, the SDMP must evolve through a “science-based and sustainable” reset.

Scientific and High-Tech Interventions: The government should prioritize the deployment of Doppler Radars and high-precision sensors (piezometers) in high-risk zones to detect rock mass changes and provide warnings before landslides or dam breaches occur.
Strict Carrying Capacity Regulations: Authorities must conduct rigorous carrying capacity studies for high-altitude tourism and pilgrimages, regulating footfall and construction to match the ecological sensitivity of the terrain.
Enforcement of Policy Reforms: Long-term resilience depends on the strict enforcement of building bye-laws, land-use regulations, and floodplain zoning to prevent further encroachment on natural drainage channels.
Applicable Research Integration: There is an urgent need to create a coherent system between educational institutions and the administration, ensuring that local PhD research and scientific studies are utilized to inform field-level disaster management practices.
Strengthening Last-Mile Early Warning: Moving beyond digital apps, the administration must ensure redundant communication channels—such as satellite phones and VHF links are functional in remote and border areas where internet connectivity is inconsistent.
AI-Assisted Forecasting and Decision Support: Artificial intelligence and machine learning should be integrated with meteorological, hydrological, and satellite data to improve the forecasting of cloudbursts, flash floods, landslides, and glacial lake outburst floods. AI-enabled decision support systems can enhance risk mapping, provide location-specific early warnings, and assist authorities in resource allocation and evacuation planning during emergencies.

By shifting the focus from event-driven response to systemic prevention and applicable science, Jammu and Kashmir can leverage its 2022-23 roadmap to protect its people and its fragile ecosystem for generations to come

References

Akmali, M. (2025, September 8). Kashmir extremely vulnerable to catastrophic floods, warns disaster management plan. Greater Kashmir. https://www.greaterkashmir.com/front-page-2/kashmir-extremely-vulnerable-to-catastrophic-floods-warns-disaster-management-plan/
Bashir, A., & Mehraj, R. (2025, May 5). Disaster Management In Kashmir: Analysing The Legal Framework, Policy Paradigms And Strategic Resilience. International Journal of Creative Research Thoughts (IJCRT), 13(5). https://www.ijcrt.org/papers/IJCRT25A5650.pdf
Frontline. (2025, August 29). Kashmir’s Environmental Crisis: Cloudbursts, Climate Change, and the Dangers of Over-Tourism. https://frontline.thehindu.com/interviews/kashmir-environmental-crisis-cloudbursts-climate-change/article69988766.ece
Government of Jammu and Kashmir. (2022). Jammu & Kashmir Disaster Management Plan 2022-23 (Volume 1). Department of Disaster Management, Relief, Rehabilitation & Reconstruction. https://ndma.gov.in/sites/default/files/PDF/SDMP/J&K%20Disaster%20Management%20Plan%202022-23%20Vol%201.pdf
KL News Network. (2026, March 31). Jammu Kashmir Rolls Out Rs 3,340 Cr Disaster Preparedness Plan to Strengthen Early Warning Systems. Kashmir Life. https://kashmirlife.net/jammu-kashmir-rolls-out-rs-3340-cr-disaster-preparedness-plan-to-strengthen-early-warning-systems-430447/
Press Trust of India (PTI). (2026, January 29). J-K chief secy reviews roadmap to strengthen disaster management framework. ThePrint. https://theprint.in/india/j-k-chief-secy-reviews-roadmap-to-strengthen-disaster-management-framework/2839804/

About the Contributor:

Vishal Kumar is a Research & Editorial Intern at IMPRI. He is currently pursuing a Master’s degree in Political Science at the University of Jammu, Jammu and Kashmir. His research interests include Political Economy, Public Policy, governance and political Philosophy.

Acknowledgement:

The author would like to thank the reviewers and IMPRI team for the guidance throughout the process.

Reviewed by:

Riddhi Suthar and Ameya Satam

Disclaimer:

This article is intended for academic purposes only. The views expressed are those of the author and do not necessarily reflect the views of IMPRI or any government institution