How top leadership’s whole-of-government approach contributed to triumph in Silkyara Tunnel rescue

The Government of India took over the operations with ministers and high officials all visiting the site and ensuring that directions for the move of drills and augers, so desperately required, were issued at the earliest overcoming all bureaucratic hurdles

Lt Gen Syed Ata Hasnain

Successful saving of lives from a life-threatening situation with risk to both the rescuers and ‘to be rescued’, is an event which can charge up the adrenaline, greatly enthuse and motivate many departments and institutions of the government which get involved, and generally cause a ‘feel good’ effect on the psyche of a nation. The recent act of rescue at the Silkyara Tunnel in Uttarkashi district, where 41 construction workers working at the Silkyara end of the tunnel, being built to cut short the journey between Uttarkashi and Yamnotri by 26 kilometres, were trapped in the collapse of almost 50-60 metres of the tunnel roof at a distance of 200 metres from the portal. The event occurred on 12 Nov 2023. The tunnel was being constructed by National Highway Infrastructure Development Corporation Limited, a nodal agency of the Ministry of Road Transport and Highways (MoRTH) and subcontracted to Navyug Engineering.

To perceive the gravity of the challenge of the disaster situation it must be understood that there are two ends of the tunnel — Silkyara and Barkot. The tunnel is to be 4.53 km long and was approved in 2018. Work had progressed with 1,750 metres bored from the Barkot end and 2,340 metres from the Silkyara end. There was 441 metres left to be bored from the Barkot end, the end which remained safe, or from the Silkyara side. It is at the Silkyara end that 200 metres inside from the portal, an approximately 60-metre-long segment of the roof collapsed on the tunnel floor and completely blocked the access further to the nearly 2000 metres (2 km) constructed portion from the Silkyara end. 41 workers of the shift working in the evening were trapped between the debris (near Silkyara end) and the unbored portion at the Barkot end.

The state of the conditions of entrapment is also important to understand. The power cable through a conduit did not snap, thus catering for 24×7 lighting in the dark tunnel. The four-inch compressor pipe also did not snap and it proved to be a lifesaver. Through this, small quantities of nourishment could be sent, right from the beginning, with the assistance of compressed air. The same was also used for sending water. However, the most important aspect was the ability of the workers to use the pipeline to convey messages of their safety using the crude voice transmission system through the pipe. Without that, the rescue organization would not have gotten the information that all were safe.

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The Uttarakhand government has an efficient and experienced State Disaster Management Authority and a State Disaster Response Force, one of the best among all states. They swung into action only to realize that there was a need for many more technical resources to make any headway in boring through the debris to reach the workers at the other end, i.e. the end-to-end distance of the debris was approximately 58-60 metres and the exact measurement could not be established due in the absence of any knowledge of the pattern of debris fall. What was certain was that a huge challenge lay ahead requiring every brain and every resource to be taken on board.

The Prime Minister’s Office under his directions, analysed the information as it came in. It was deliberated by the Principal Secretary and directions were speedily given almost akin to a well-oiled war machine with different organisations progressively joining in as the plan became more detailed and directions continued to be given from the top. With constant feedback to the prime minister from the Uttarakhand chief minister and the principal secretary the dragnet for ideas, resources and organisations was spread far and wide. Online discussions with renowned tunnel experts around the world led to good advice and a few agreed to fly into India to render advice on the ground. As concern mounted among families and they made a beeline to the tunnel site, the information management system was put into gear. Directions from the highest levels enunciated the need for transparency to build a positive hope in the nation since safety and well-being was well catered for; disinformation was not to find space in the narratives. The risk to workers was high and the refusal to lay any timeline by the government ensured that the risk was not enhanced for the rescue force either.

The Government of India took over the operations with ministers and high officials all visiting the site and ensuring that directions for the movement of drills and augers, so desperately required, were issued at the earliest overcoming all bureaucratic hurdles. The Ministry and Home Affairs, and the National Disaster Management Authority (NDMA) of which the Prime Minister is the Chairperson assumed charge of coordination of movement and information management which was proving a major challenge. Equipment came from Odisha, Gujarat, Indore and other places. Officials of public sector infrastructure companies worked overnight to identify, dismantle, load and move the heavy equipment and machinery, by air, rail and road. Almost every moving item was oversized in dimension. Special, green corridors were provided to the transport; including delaying an odd Shatabdi or Vande Bharat Express to ensure movement without a halt.You May LikePersonalized 2BHK Interiors built to your budget.HomeLaneGet Quote  by Taboola Sponsored Links 

The decision to attack (approach) from five directions to make access to the area where the workers were trapped was taken to ensure total redundancy. A sixth technique of side drift technology was also kept on standby as the sixth option. The five options were being addressed by a different infrastructure organization. For example, Sutlej Jal Vidhut Nigam Ltd catered for the vertical drilling option 300 meters away from the site of the fallen debris. A 1,200-metre road along the mountainside for the equipment to be taken to the top was constructed in almost 48 hours by Border Roads Organisation.

Around the eighth day, we had a six-inch pipeline laid through with a narrow boring effort. This gave longevity to the workers and redundancy was also established in logistics. The Prime Minister gave personal directions that the workers be fed hot food which was passed on to them through the six-inch pipeline. To perceive the comprehensive approach of the plan one can see that medicines and communication means were combined to provide a system of telemedicine. The Prime Minister’s Office directed psycho-social advice to be available to the workers individually through the established line set up first by the SDRF and then by commercial companies. Uttarakhand health department was up and about.

The NDRF was quick to respond placing two teams at the site with senior leadership and commenced contingency drills to take the workers out on improvised stretchers with wheels attached. The Army’s Corps of Engineers prepared to adopt the drift technology option for which some fabrications needed to be done; it was done on the spot.

An American auger was considered the best option, from the Silkyara end. It encountered metal obstacles and concrete at various intervals but finally reached almost 47 meters with hydraulic pushing of 900 mm pipes which needed welding. At this point the auger drills broke due to excessive wear and tear. Getting the broken metal parts out of the tube was a challenge by itself resulting in specially cutting machines being flown by the Air Force from far and wide. With the auger parts removed the last approximately 12-13 metres was dug by hand by the Manual Jack Pushers (colloquially called Rat Hole miners) with the pipe being pushed by the auger. The last push got them to the 41 workers who de-inducted under medical and NDRF supervision for a joyous national celebration. This was the best example of modern technology and manual improvisation.

Although a full investigation on the causes of the tunnel collapse will be conducted in due course, the core reasons for the successful rescue are equally important to identify. Broadly, the concept was clear. A multi-agency, multi-option approach was followed. No resource was to be left untapped; that was the Prime Minister’s direction and every life was equally precious, including that of the rescue elements. A serious ‘Whole of Government’ approach, empowering every functionary who could make a difference, was followed to the tee. Constant monitoring at the level of the Prime Minister and analysis by the Principal Secretary ensured that no organization dithered or demurred. The visits to the site by various VIPs including the Principal Secretary and their efforts to speak to the workers played a major role in reassurances and the will to keep the longevity going. If the auger and the horizontal boring had completely failed none could put a timeline to how much longer the workers would have to wait.

The coordinated efforts of transportation by the Air Force, Railways and the road transport authorities made a huge difference. Lines remained open in almost every organization with suggestions and offers; none were refused. Known expertise of Army veterans with long experience in infrastructure was also available. The media was transparently briefed with no false narratives or disinformation creating a positive environment among those following the dramatic events. The presence of the MoS MoRTH at the site in virtual camping mode ensured quick decisions and feedback.

This was a perfect and coordinated effort by the Centre and the State with very little left to chance. It was almost divine intervention that on the very day of the rescue a book – ‘Resilient India: How Modi Transformed India’s Disaster Management Paradigm’ published by the organisations – The Modi Story and Bluekraft ¬– was released. The divine intervention also ensured the safe return of the 41 workers to their families – a big achievement for the nation and the government.

The writer is a Member of the National Disaster Management Authority. Views expressed in the above piece are personal and solely that of the author. They do not necessarily reflect Firstpost’s views.

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