Guideline for Development and Utilization of Tsunami Disaster Management Map

ASEAN-Japan Transport Partnership

GuidelineforDevelopment and UtilizationofTsunami Disaster Management Map
For ASEAN AND INDIAN OCEAN TSUNAMI AFFECTED COUNTRIES

Version 1.0

Port Technology GroupASEAN-Japan Transport Partnership

In cooperation with

Port and Airport Research Institute (PARI), JapanThe Overseas Coastal Area Development Institute (OCDI), Japan
Ports and Harbours Bureau, Ministry of Land, Infrastructure,
Transport and Tourism (MLIT), Japan

ASEAN-Japan Transport Partnership

Guideline for Development and Utilization of Tsunami Disaster Management Map

Port Technology Group (PTG) under the ASEAN-Japan Transport
Partnership Projects (AJMT-6) developed this guideline.

PTG Meetings“Tsunami Disaster Management Map Project”
z First meeting: March 1st, 2006z Second meeting: February 14 th, 2007
z Third meeting: March 12th, 2008
PTG members
Name
Ir. Zai Bin Abas
Mr. Kyaw Oo
Mr. Atty A. ANTERO
A. PENASALES
Mr. Bunlung Meangbua
Mr. Nguyen Anh Tuan
Mr. Takahiko Sasajima

Country
Malaysia

Organization
Klang Port Authority

PositionManager

Civil Engineering Department,
Myanmar
Myanmar Port Authority Ministry ofDivisional Engineer
Transport
Department of Transport &Head
Executive
Philippines Communications,
Assistant
Maritime Industry Authority
Marine Department, Ministry of
Coastal & Port
ThailandTransport
Engineer
Sea Port Department Vietnam Maritime
Viet Nam
ExpertAdministration (VINAMARINE)
Director for Special
Japan
Port and Airport Research InstituteResearchI
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Guideline for Development and Utilization of Tsunami Disaster Management Map

Foreword
Japan has suffered great damage in terms of both human life and infrastructures due to“Tsunami” attacks over the years. Among them the “Meiji Sanriku Tsunami” in 1896
killed over
22,000 persons on the Sanriku coast of northeast Honshu. Many
countermeasures against tsunami attacks have been carried out for many years in Japan,
and they are well recognized in the world. In fact, the Japanese word “tsunami”, whichmeans tidal wave in English, is now widely used throughout the world.
Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT prepared theJapanese manual for tsunami disaster management map. Advanced case studies haveshown that the disaster management map is an effective evacuation measure.
This guideline aims to assist developing countries, particularly ASEAN countries, todevelop and utilize tsunami disaster management maps. The exploratory committee on
Guideline for Development and Utilization of Tsunami Disaster Management Map
prepared a draft version of this guideline by arranging Japan’s Tsunami and Storm
Surge Hazard Map Manual.
The draft of this guideline entitled “Guideline for Development and Utilization of
Tsunami Disaster Management Map for ASEAN AND INDIAN OCEAN TSUNAMI
AFFECTED COUNTRIES” was submitted by Port and Airport Research Institute (PARI)and the Overseas Coastal Area Development Institute (OCDI) to Port Technology Group(PTG) at the 5th PTG meeting in March 2008. Thanks to all participants in the PTG
project from ASEAN countries and Japan, this guideline was successfully finalized withfruitful results. All countries can share our knowledge described in this guideline on
tsunami disaster management map.
Finally, we would like to thank the chair (Prof. Toshitaka KATADA of Gunma University),
vice-chair (Dr. Takashi TOMITA of PARI), members of the exploratory committee, which
was established in February 2007 and held 4 meetings in total, together with thecommittee’s administrative staff, for their active discussions and hard work that led to
the formation of this guideline. The Overseas Coastal Area Development Institute ofJapan made great contributions in compiling this guideline.
It should be noted that this project started in 2006 as a part of the PTG Joint Research
Project which aims at improving port technology in the framework of ASEAN-Japan
Transport Partnership Program. Ports and Harbours Bureau of MLIT has demonstrated
strong leadership in advancing this project.

Yutaka SUNOHARA
Director-General, Ports and Harbours Bureau,
Ministry of Land, Infrastructure, Transport and Tourism
Government of JapanII
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Guideline Exploratory Committee Members List
Position

Name

Organization

ChairmanDr. Toshitaka KATADA

Professor,

Department of Civil and Environmental

Vice-Chairman

Dr. Takashi TOMITA

Tsunami Research Director, Tsunami Research Center,

Engineering, Gunma University
Port and Airport Research InstituteCommittee

Mr. Katsuya ODA

Head, Coastal Disaster Prevention Division, Coastal
and Marine Department, National Institute for Land andInfrastructure Management

Committee

Dr. Kazumasa KATO

Visiting Professor, Musashi Institute of Technology

Committee

Dr. Shunichi KOSHIMURA

Associate Professor, Disaster Control Research Center,
Tohoku University

Committee

Mr. Tatsuyuki SHISHIDO

SeniorExecutive,

The

Overseas

CoastalArea

Development Institute of Japan
Committee

Dr. Susumu NAKANOAssociate Professor, Department of Civil Engineering,
the University of Tokushima

Committee

Mr. Satoru MIMURATeam Director, Disaster Management Team, Japan
International Cooperation Agency

Chief
Secretariat

Mr. Takahiko SASAJIMA

Director for Special Research, Port and Airport
Research InstitutePast Committee Meetingsz First meeting: February 6th, 2007z Second meeting: August 10th, 2007
z Third meeting : December 20th, 2007
z Fourth meeting: February 14th, 2008
For more information(1) General inquiries
Mr. Tatsuyuki SHISHIDOThe Overseas Coastal Area Development Institute of Japan
Phone +81-3-5570-5931
Email tsunami@ocdi.or.jp(2) Technical inquiries
Dr. Takashi TOMITA
Tsunami Research CenterPort and Airport Research Institute, Japan
Phone +81-46-844-5052
Email pari_tdmmap@pari.go.jp

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Guideline for Development and Utilization of Tsunami Disaster Management Map

CONTENTS
of
Guideline for Development and Utilization of Tsunami Disaster Management
Map
CHAPTER 1

Introduction・・・・・・・・・・・・・・・・・・・・・・・・・・ 1

1.1 Brief Overview
1.2 Concept of tsunami disaster management
1.3 Role of tsunami disaster management map
1.4 Strategy for the development and utilization of tsunami disaster management map
CHAPTER 2

Outline of tsunami disaster management map・・・・・・・・・・・15

2.1 Definition of tsunami disaster management map
2.2 Purpose of preparing a tsunami disaster management map
2.3 Inundation prediction methods for preparing tsunami disaster management map
CHAPTER 3

Procedure to prepare tsunami disaster management maps・・・・・19

3.1 Different types of tsunami disaster management maps for different purposes
3.2 Tsunami hazard as basic information on tsunami disaster management maps
3.3 Indication items on maps for peoples’ evacuation
3.4 Indication items on maps for other administrative uses
CHAPTER 4

Applications of tsunami disaster management map・・・・・・・・・30

4.1 Dissemination of tsunami disaster management map
4.2 Ways to promote understanding of residents
4.3 Utilization of disaster management map in taking measures against tsunamis
4.4 Examples of utilizing tsunami disaster management maps in Japan
Appendix -1 Examples of Tsunami Disaster Management Map・・・・・・・・・・・・53
Appendix -2 Characteristics of Tsunami・・・・・・・・・・・・・・・・・・・・・・54

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CHAPTER.1 Introduction
1.1 Brief Overview
To reduce the magnitude of tsunami disasters in a region, a comprehensive approach
involving the integration of land use planning, construction of coastal protection
facilities and measures for increasing the people’s self-protecting capability against
disasters should be adopted based on the characteristics of the region. A tsunami
disaster management map is a graphical presentation of necessary information to
manage tsunami disasters and minimize damage in the region. The most basic
information of the tsunami disaster management map is damage-prone areas withexpected degrees of damage in case of possible tsunami attack, whose graphicalpresentation is generally called a tsunami hazard map or tsunami inundation map. The
tsunami disaster management map is extremely valuable for evaluating necessary
disaster prevention and reduction measures including the preparation of new
protection facilities, reinforcement of existing structures, the identification ofevacuation sites and routes to safer places and others, resulting in the establishment of
a comprehensive disaster reduction system suitable to the region. Sharing theinformation on regional protecting capability against tsunami disasters with residents
through the disaster management map also increases their self-protection capability.
To promote the preparation of tsunami disaster management maps in countries affectedby the 2004 Indian Ocean Tsunami and ASEAN countries, this guideline clarifies theobjectives, development, utilization and promotion of the maps.
<Explanation>(1) BackgroundThe 2004 Indian Ocean Tsunami which was generated by a magnitude 9.3 earthquake
off the west coast of Northern Sumatra on 26 December 2004 propagated throughout
the Indian Ocean, Bengal Bay and Andaman Sea resulting in devastating damage in
Thailand, Sri Lanka, India, Maldives and other countries as well as Indonesia which
was near the epicenter. In the Pacific Ocean, the Chilean Tsunami which was triggeredby a magnitude 9.5 earthquake off the Chilean coast propagated in the Pacific Ocean
and caused deadly damage in the Hawaii Islands and Japan and along the Chilean
coast.
Tsunami risk reduction requires international cooperation to exchange information ontsunamis and the triggering earthquakes in order to establish international tsunami
warning systems such as the Pacific tsunami warning system operated by the PacificTsunami Warning Center. The Center was realized thanks to the efforts of theInternational Coordination Group for the Tsunami Warning System in the Pacific which
was established by the Intergovernmental Oceanographic Commission of UNESCO.
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The tsunami warning provides the information required to determine whether an
evacuation is necessary, which is an essential measure to save lives in the expectedtsunami-affected areas. In fact, many residents in the Solomon Islands were able tosave their lives by evacuating to higher places when the tsunami hit on April 2, 2007.
Evacuation is helped further by adequate preparation of effectual evacuation sites andevacuation routes to safer areas. Minimizing the loss of individual and social properties
is also important to facilitate rehabilitation and reconstruction in the aftermath of adisaster.
Comprehensive disaster prevention and reduction systems so as to save life andproperty from tsunami disasters are achieved by understanding tsunami hazards andthe vulnerability of areas and communities to the expected tsunamis, and preparing
adequate countermeasures among policy makers, disaster administrators and residents.
The graphical presentation of the tsunami hazard, vulnerability and countermeasuresin the region helps persons understand the tsunami risk in their region and particularly
helps residents clearly understand what self-defense measures are required.

(2) Tsunami hazard map and tsunami disaster management map
Tsunami hazard map presents graphically the tsunami hazard and community
vulnerability against tsunamis by indicating damage-prone areas with expected degrees
of damage in case of possible tsunami attack, and allowing those concerned tounderstand the tsunami risk in the region. Tsunami disaster reduction activities areeasily managed using a tsunami disaster management map as it indicates measures toprovide disaster reduction as well as the tsunami hazard and vulnerability. For instance,
the tsunami hazard map includes evacuation sites and routes.
As an example of the final product, one tsunami disaster management map of Japan is
enclosed on the back cover of this guideline. Furthermore, website addresses whichdisplay several examples of tsunami disaster management map are given in the
Appendix 1.

(3) Utilization of tsunami disaster management map
The tsunami disaster management map is a good tool for public education on tsunami
disasters and raising awareness on self-protection activities. For instance, evacuation
maps indicating the estimated tsunami inundation areas with tsunami shelters andevacuation routes is especially useful for the residents and general public to understandand decide upon an adequate evacuation scheme.

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The tsunami disaster management map clearly indicates the effectiveness andweakness of structural measures. By examining the weakness revealed on the map,
disaster administrators can improve countermeasures and enhance their capability oftsunami disaster prevention and reduction through the establishment of comprehensive
disaster prevention and reduction systems.
An overview of the tsunami disaster management map is provided in Chapter 2 of thisguideline.

(4) Preparation of tsunami disaster management map
The most basic information of the tsunami disaster management map is the possible
tsunami inundation areas. The inundation due to a worst-case scenario tsunami in aregion where tsunami disaster reduction activities are considered is estimated bymeans of numerical simulation. The inundation areas and damage caused by previous
tsunamis is referred to draw tsunami-prone areas in regions where worst-case tsunamis
cannot be predicted due to lack of bathymetric and topographical data. Natural
disasters due to surges and floods may provide good information on the vulnerability ofcommunities against coastal flooding due to tsunamis.
Figure 1.1 is a basic flow chart indicating how to prepare the tsunami disastermanagement map. Note that this flow explains the way to prepare the tsunami disastermanagement map by using numerical simulation. The detailed procedures to develop
the tsunami disaster management map are introduced in Chapter 3.

Figure 1.1 Flow of preparing tsunami disaster management map
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Guideline for Development and Utilization of Tsunami Disaster Management Map(5) Intended users of this guideline
Intended users of this guideline are administrative persons who will prepare thetsunami disaster management map, or who will give the disaster management map tocommunity leaders or directly to the public and explain the purpose and contents of the
map to them.

(6) Contents of this guideline
This guideline consists of four chapters. Chapter 1 introduces the role of the tsunami
disaster management map in regional tsunami disaster reduction activities. Chapter 2
describes the objectives and examples of tsunami disaster management map. Chapter 3
introduces the fundamental procedure to prepare the tsunami disaster management
map. In the Appendix, characteristics of tsunamis are briefly explained. Chapter 4
introduces various applications of the tsunami disaster management map with several
examples.
This guideline has been prepared by revising the contents of the manual for tsunami
and storm surge hazard maps prepared in March 2004 by Cabinet Office (in charge ofDisaster Management) of Government of Japan, Rural Development Bureau andFisheries Agency of Ministry of Agriculture, Forestry and Fisheries, River Bureau andPorts and Harbors Bureau of Ministry of Land, Infrastructure and Transport, andadding new descriptions for the tsunami disaster management map in developing
countries.
National Committee on the guideline for tsunami disaster management map in theCountries Affected by the 2004 Indian Ocean Tsunami and ASEAN Countries wasestablished to prepare the draft of this guideline with Professor Toshitaka Katada,
Gunma University as the chairperson. This guideline was finalized at Port Technology
Group meeting in Transport Partnership Program of ASEAN-Japan Comprehensive
Economic Partnership.
(7) Possible application of this guideline to the analysis of storm surges hazards andto the analysis of effects of sea level rise due to global warmingThis guideline could be used to prepare the storm surge hazard map and to analyze
the effects of sea level rise due to global warming.
1) Applicable analysis for coastal hazards and vulnerability due to storm surges
The estimation results of tsunami hazards and vulnerabilities in the community arealso applied to the analysis of the hazards and community vulnerabilities due tostorm surges. Although coastal flooding by storm surges has basically different
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characteristics from tsunamis inundation, low-lying coastal areas are vulnerable
against both tsunamis and storm surges because the seawater flooding on land flows
finally into lower areas.
If numerical models to calculate fluid motion in the sea generated by tsunamis areavailable, they can be applied to analyze the storm surge generated by tropical storms
with slight modification. It should be noted that the storm surge is caused through therise in sea level resulting from depression of atmospheric pressure and the sea water
volume pushed to coastal areas by high winds blowing above the sea surface, which
are main generation factors of storm surges by tropical storms. The sea water flooding
on land by storm surges is calculated in the same way as the calculation of tsunami
inundation.

2) Applicable analysis for tsunami hazards and disasters under the condition of sea
level rise by global warming in the future
Using the numerical simulations to analyze the tsunami hazards and disasters, theeffects of sea level rise due to global warming on tsunami hazards and disasters are
estimated in the same way as the consideration on tide level at the time of tsunami
striking. Although the qualitative increase of vulnerability in coastal areas cannaturally be expected as the sea level rises, the numerical simulations canquantitatively indicate hazards and vulnerabilities.

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1.2 Concept of tsunami disaster management
1.2.1 Three elements for disaster management
Establishment of comprehensive measures in a region starts from understanding thehazard in the region, community vulnerability and countermeasures.
<Explanation>(1) Understanding of tsunami hazard
To understand the tsunami hazard in a region, the tsunamis striking the region are
estimated through analysis of previous disasters and numerical simulations of theprevious and future tsunamis using bathymetric and topographical data.
For instance, tsunami arrival time after the occurrence of the triggering earthquake,
inundation areas and duration time of tsunami excitation are essential data for judging
the necessity of evacuation, setting up evacuation procedures, evacuation routes andarranging tsunami shelters.

The height of tsunamis is also essential information whenconstructing defense facilities.
(2) Understanding of vulnerability
Even if the tsunami hazards are similar along the same coastal line, local variations in
population, economy and land-use create different levels of community vulnerability.
The community vulnerability is assessed in physical and social aspects. In the physicalaspect, tsunami-prone areas are vulnerable to disasters. Coastal low-lying areas are
generally vulnerable to tsunamis. In the category of social vulnerability are persons
who require support in the case of evacuation such as children and the elderly.
(3) Understanding of countermeasures
Tsunami disaster reduction measures are divided into two categories: Structural andnon-structural measures. To minimize the disaster in the region, they have to be
integrated into a reasonable comprehensive system based on the local characteristics ofhazard and vulnerability.
Breakwaters and coastal embankments are structural measures used to prevent
intrusion of tsunami and to reduce tsunami height. Such structures also have thefunction of delaying arrival of the tsunami which has critical height and inundation
depth.
Tsunami shelters and evacuation stairs to higher places, which support quick andsecure evacuation of the residents, are also in the category of non-structural measures
because they have no functions to control or reduce tsunamis.

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1.2.2 Considerations in tsunami disaster management
Considerations in tsunami disaster management consist of i) promoting and raisingdisaster awareness, ii) providing and sharing information of tsunami disasterprevention, iii) reinforcing communication between administrators and residents, andiv) compiling a menu of countermeasures against tsunami disasters.
<Explanation>(1) Promoting and raising disaster awarenessSince evacuation is essential for saving human lives, it is important that the awarenessof tsunami disaster is promoted and raised among residents and the general public,
allowing them to increase their self-protection capability. Local administration should
provide tsunami disaster management maps, which can indicate tsunami hazard andcommunity vulnerability, as a means to promote and raise awareness of tsunami
disasters.

(2) Providing and sharing information of tsunami disaster prevention
For tsunamis triggered by an earthquake which occurred near the community, theresidents in the community have less time to evacuate to safer places because thetsunami will arrive at the coast of the community almost immediately. In such a case,quick evacuation is a crucial measure to save human lives.
For distant tsunamis generated far from the community, the residents and generalpublic have time enough to move to safer places. They require tsunami warnings andinformation, however, because they can feel no ground motion by the distantearthquake. Therefore, early tsunami warning system is a necessity, ideally one thatinvolves international cooperation.

(3) Reinforcing communication between administrators and the residents
Reinforcing communication between administrators and the residents is important for
the administration to gather information on tsunami disasters and to provide
information to the community that can mitigate the effects of the tsunami. Partnerships
with related authorities are also necessity for disaster prevention and mitigation when
the tsunami strikes.

(4) Compiling a menu of countermeasures against tsunami disasters
A tsunami with a height greater than the design specifications of protection facilities
can overflow the facilities, resulting in inundation in the hinterland of the facilities. For
the planning of tsunami disaster reduction, therefore, the largest possible tsunamis
striking each community should be predicted and comprehensive systems integrating
various measures against the tsunamis are considered to reduce the tsunami disasters
in the community.
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1.2.3 Comprehensive disaster prevention and reduction system integrating structuraland non-structural measures
Seawalls, embankments and others can prevent tsunamis from overtopping structures.
The structural measures offer limited protection, however, as tsunamis with a greater
height than the protective structures still have the potential to cause damage.
Therefore, the integration of structural measures and non-structural measures is
crucial.
<Explanation>(1) Structural and non-structural measures
Structural measures such as breakwaters, seawalls, and embankments improve thedegreeofdisasterprevention

andreduction

capability

in

the

community.

Non-structural measures redeem the limitation of the disaster reduction ability ofstructural measures. They include providing information on tsunami hazard anddisasters to the residents before and after the occurrence of disasters, the setting up of
tsunami shelters and evacuation routes, disaster education and others. Table 1.2.3
gives examples of structural and non-structural measures.
Table 1.2.3 Examples of structural and non-structural measures
Structural
measures- Measures for prevention and reduction of tsunami intrusion- Breakwaters, seawalls, embankments, water-gates and others with suitable
operation and maintenance- Houses of reinforced concrete and steel-reinforced concreteNon-structural
measures- Measures for supporting evacuation- Tsunami shelters, and evacuation sites/routes- Facilities to provide tsunami warning and others- Measures for reduction of tsunami disasters- Coastal vegetation- Improvement of land-use plan
- Providing of tsunami warning and others- Tsunami disaster management map- Tsunami awareness through disaster education and others- Evacuation drill(2) Necessity of the integration of structural and non-structural measures
The relationship between structural and non-structural measures is shown in Figure
1.2.3. As a strategy for tsunami disaster management, the damage caused by a certain
level of tsunami, which is used to plan and design protection structures, can beprevented by structural measures. However, for tsunamis higher than the design
specifications of protective structures, non-structural measures are also required to8
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minimize disasters and keep construction costs and time at a manageable level.
Even for a tsunami with a magnitude that has been accounted for in the tsunami
disaster prevention strategy, it can still cause damage in the areas where there has beena delay in establishing protective structures. Besides, if the structures are unable tofunction normally to prevent tsunami inundation, non-structural measures such as
evacuation is more effective in saving human lives.
Considering rehabilitation and reconstruction in the aftermath of disasters, it is ofoverriding importance to reduce the degree of tsunami disasters by increasing disaster

Increase of damage

Disasterdetermentby structural
measures

Disasterreductionby combinationof structuraland non-structural
measures

Extensive
damageTsunami level for tsunami
disaster management
including non-structural
measures

No damageTsunami level for design ofprotection facilities against
tsunamiProbability of tsunami occurrence

prevention capability as much as possible.

Tsunami level
Figure 1.2.3 Relationship between structural and non-structural measures

Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

(3) Procedure of integration of structural and non-structural measures
An example integrating structural and non-structural measures in a community isgiven as follows:i) Specify the largest possible tsunamis (Setting of tsunami scenarios)ii) Determine the protection capability of the existing structures against the tsunamisiii) Estimate disasters by means of numerical simulations and analysis of previous
disastersiv) Set the level of disaster preventionv) Improve land-use to minimize the disasters occurringvi) Consider the order of priority to conduct measures such as reinforcement of thefunction of the existing structures, construction of new facilities, improvement of
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gate operation, plantation of coastal vegetation and others so as to prevent andreduce the tsunamis, depending on evaluation of the expected tsunami disastersvii) Determine the limitation of measures to prevent tsunami disastersviii) Consider measures to assist in evacuation such as making tsunami disastermanagement map, arrangement of tsunami shelters, setting evacuation routes, andestablishment of dissemination system of tsunami warning and evacuation
advisory

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1.3 Role of tsunami disaster management map
Tsunami disaster management map is a basic tool to analyze disaster prevention andreduction strategy and plan in a community, to develop the practical integration of
structural and non-structural measures, to disseminate and provide information of the
expected tsunami disasters and adequate evacuation procedure to the residents,
general public and related authorities, to cultivate residents’ awareness of tsunami
disasters, to create risk communication with the residents, and others.
<Explanation>(1) Importance of self-support and mutual support between regional residents
There are limitations to the tsunami disaster prevention measures prepared by central
and local governments and authorized organizations. When faced with the possibility ofa tsunami attack, it is of critical importance that persons make the decision to proceedwith evacuation. In addition, mutual-support among regional communities is more
effective in reducing the disasters. For instance, in the Solomon Islands Earthquake
Tsunami on 2 April 2007, most persons in a village of the Solomon Islands evacuatedthe area (thus saving their lives) before authorized organizations issued a tsunami
warning. Someone in a neighboring area alerted the residents that a tsunami would
likely strike.

(2) Tsunami disaster management map as an awareness tooli) Provide the information of tsunami hazards and tsunami disasters to the residents inthe communityii) Share the information of tsunami hazards and tsunami disasters among theadministrative organizations and provide the information of tsunami hazards andtsunami disasters to the related authoritiesiii) Create risk communication of tsunami between disaster administrators and theresidents(3) Analysis and investigation tool to support the establishment of structural
measuresi) Analyze and investigate new structural measures and reinforcement of the existing
structural measures to increase the capability of tsunami disaster prevention in thecommunity.
ii) Analyze and investigate the location of evacuation sites and routesiii) Analyze and investigate the procedure of recovering and rehabilitating activities

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Table 1.3 Representative roles of tsunami disaster management map
Intended users
Residents

Objective measures

Role of disaster management map- Awareness of disaster• Providing- Disaster study (education)

disaster information to residents- Disaster drills• Risk communication tools between- Risk communication among the residents

residents and disaster administratorsthetsunamirisk

and- Self and family protection plan
- Mutual support plan
Disaster-Disaster prevention plan

• Providing

administrators-Evacuation plandisaster information to the disaster-Rescue plan

administrators-Development of disaster warning and• Support disaster administrators toevacuation information system

examine disaster prevention measures-Constructing disaster prevention facilities

suchand evacuation sites

prevention facilities and evacuation-Operation procedure of mobile structure

shelters.

measures such as a water gate

• Risk communication tools between

as

the

tsunamiconstructing

risk

and

disasterresidents and disaster administrators
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

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1.4 Strategy for the development and utilization of tsunami disaster management map
1.4.1 Clarifying purpose, users and utilization manners of tsunami disaster management
maps
Tsunami disaster prevention and reduction are achieved by the integration of various
activities. Tsunami disaster management maps support effective and practicablecombination of measures and estimate their effectiveness. It is important, therefore, todevelop the tsunami disaster management maps based on practical strategies in which
their purpose, users and ease of utilization are considered.
<Explanation>(1) Purpose
Final purpose of the tsunami disaster management maps is tsunami disasterprevention and reduction. Various types of tsunami disaster management maps aredeveloped which can assist in managing disasters. For instance, an evacuation map
indicating tsunami shelters and evacuation routes is used to manage and support theresidents’ and general public’s escape from tsunamis. Other administrative objectives
are the development of regional disaster management plan, investigation ofcomprehensive arrangement of various measures, the analysis of the effect of protection
facilities against tsunamis, and the identification of areas where evacuation is difficult.

(2) Users
Users of the tsunami disaster management map vary by purpose. The main users of themap, for instance, are the residents and general public because the map can be of great
assistance during the evacuation process. Disaster administrators also use the map todevelop regional disaster prevention and reduction plan in their community as do
policy-makers who decide the regional disaster management plan.

(3) User-friendly layout
It is important that the tsunami disaster management map is easily understandable,according to its purpose and users. Excessive information on a map will make it difficult
to be followed by users. Data indicated on the map, therefore, should be examined
carefully so that users can grasp its purpose and essential information.

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1.4.2 Step-by-step development of tsunami disaster management map
Tsunami disaster management maps can be developed step-by-step, depending on
available technology and data. The essential information on the tsunami disastermanagement map is tsunami hazard. It is estimated in a community through tsunami
numerical simulation based on bathymetric data, topographic data, and tsunami
scenarios including the occurrence of tsunami generation and magnitude of tsunami.
Even if no data are available, however, the tsunami hazard could be estimated byanalyzing historical tsunami inundation records in the community. Social, economic orother necessary data is combined with such tsunami hazard information to create thetsunami disaster management map.
<Explanation>
Tsunami hazards such as the height of striking tsunami, inundation areas and so on,which is the most basic information on a tsunami disaster management map, are wellestimated by tsunami numerical simulation based on bathymetric and topographic data
and tsunami scenarios including where the tsunami occurs and the magnitude of thetsunami. Such data, however, is not widely available in many developing countries.
Even if no data are available, however, the tsunami hazard can be estimated by analysis
of historical disasters. According to technology, available data and necessity, therefore,
tsunami hazard can be developed step-by step. Social, economic or other necessary data
are combined with such tsunami hazard information to create the tsunami disastermanagement map.
Numerical simulation+ expected tsunami source
bathymetry data
topography databuilding data and etc.

Step up more

Numerical simulation+ an expected tsunami source
bathymetric data
and topographic data

Inundation area byan expected tsunami
Tsunami height and arrival
time of an expected tsunami

Step up

Numerical simulation+ an expected tsunami sourceand bathymetric data

new canal
Tsunami height and arrival
time of an expected tsunami

Step up

Records of historicaltsunamis
Inundation area bya historical tsunami

sea

Figure 1.4.2 Step-by-step development of tsunami disaster management map
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CHAPTER 2 Outline of tsunami disaster management map
2.1 Definition of tsunami disaster management map
A tsunami disaster management map is a map that graphically provides information on
inundation area and disaster information. The disaster information includes evacuation
information, evacuation tips, basic knowledge of tsunamis, and information for disastermitigation measures such as evacuation plan and construction plan of disaster
facilities.
<Explanation>
Tsunami hazard map shows the predicted inundation areas. Tsunami disastermanagement map shows the predicted inundation areas and information on evacuation.
Tsunami disaster management map is completed by adding disaster information suchas evacuation routes/sites, evacuation tips and basic knowledge of tsunami to thehazard map.

Figure 2.1 Definition of the tsunami disaster management map

2.2 Purpose of preparing a tsunami disaster management map
The purpose of preparing a tsunami disaster management map is to provide residents
with necessary information for evacuation and to assist administrative bodies incarrying out their duties such as devising and taking disaster prevention measures.
<Explanation>
Tsunami disaster management map is prepared to provide residents with necessary
information for evacuation in an easy-to-understand manner. It also assists
administrative bodies in carrying out their duties such as devising and taking disasterprevention measures. For example, such map helps disaster administrators draw up
evacuation plans and construction plan of disaster facilities such as breakwaters,
seawall, and water gate.

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Guideline for Development and Utilization of Tsunami Disaster Management Map

2.3 Inundation prediction methods for preparing tsunami disaster management map
The main part of a tsunami disaster management map is the predicted inundation
areas. The predicted inundation area is prepared based on the result of inundation
prediction in case of a possible tsunami attack. There are mainly four kinds ofinundation prediction methods as follows.
a.

Numerical simulation method.

b.

Level filling method.

c.

Method based on historical inundation records.

d.

Estimation based on ground elevation

Basically, the prediction should be based on a numerical simulation method. However,when a numerical simulation is difficult to conduct, inundation area could be estimatedby using historical tsunami inundation records.
<Explanation>
Inundation prediction must be conducted by a method that appropriately reflects
external force conditions and structure conditions. The method must also have precision
suited to the purpose of preparing a tsunami disaster management map and to thecharacteristics of the target district. Basically, prediction should be based on anumerical simulation method, because it precisely estimates the data necessary for
preparing a tsunami disaster management map and it can reflect the effects ofprotection facilities. When a numerical simulation method is difficult to conduct,
simpler alternatives are available for inundation prediction. For example, inundation
area could be estimated by using historical tsunami inundation records (c. Method
based on historical inundation records).
Four types of inundation prediction methods are outlined as follows;a. Numerical simulation method is the method which predicts inundation areas basedon numerical simulations using a numerical model of tsunami propagating throughthe ocean and flooding coastal areas.
b. Level filling method provides estimation of inundation areas in which inundation
depth on the ground is calculated based on water volume intruding from coasts by atsunami. The tsunami is calculated using a numerical model of tsunami propagating
through the ocean.
c. Method based on historical inundation records is to indicate inundation areas ofhistorical tsunamis.
d. Estimation based on ground elevation determines inundation areas under thetsunami height which is predicted from a tsunami numerical simulation.
The characteristics of each method are shown in Table 2.3.

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Table 2.3-1 Characteristics of each inundation prediction method
MethodOutline of the method

Advantages (A) and Disadvantages (D)Prediction image for tsunami hazard<Inundation areas and depths>

Numerical simulation

Numerical

simulation

methodmethod is the method which

necessary

predicts

inundation

hazard map.

based

on

areas

numerical

simulations

using

a

numerical model of tsunami
propagating

through<Time perspective>(A) Can precisely estimate the dataforpreparingatsunamiTime perspective ofinundation can be
simulated.

Water level andinundation depth ateach point can be
simulated.

(A) Can reflect the effects of protection
facilities.

2 – 3
meters(D) Requires skills and cost.
0 – 1
meter

the

in 30 – 35
minutes

1 – 2
meter

ocean and flooding coastal
areas.

in 25 – 30
minutesThe
effects
ofprotection facilities
can be reflected.

The
effects
ofprotection facilities
can be reflected.

in 35 - 40
minutesLevel filling methodLevelfillingprovidesmethodestimation(A) Requires no special skills.

of(A) Has a certain calculation basis forinundation areas in which

determining the amount of flood water

inundation

volume and inundation areas predicted

depth

on

the

ground is calculated based onfrom the external force level.

water volume intruding from(D) Cannot count reduction effect bycoasts by a tsunami. The

buildings

tsunami is calculated using aareas) and run-up movement by water

numerical model of tsunami

momentum (underestimates inundation

propagatingareas).

ocean.

throughthe(overestimates

Reduction effect bybuildings cannot becounted.
Run-up movement by
water
momentumcannot be counted.

- Only final inundation areas can be predicted.
Water levels are assumed
to be uniform through theentire areas (leveled
inundation).

The speed and time perspective of inundation
cannot be predicted.
- Retarding effects by breakwaters, coast levees, land
locks and water gates cannot be evaluated.

inundation
Inundation areas are
assumed up to thecontour line where theamount of overflow isequal to the amount ofwater filled.

(D) May result in unrealistic estimations

The crown heights of coast
levees, land locks and water
gates are compared with thewater level.

Reduction effect bybreakwaters cannot
be counted.

depending on the topographic situations,such as showing an enclave in the

Dotted red line: inundation areas predicted by thenumerical simulation

inundation area, since the water flow isignored.
(D) Can predict only final inundation
areas. Cannot predict the speed and time
perspective of inundation.

Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan, “Tsunami and Storm Surge Hazard Map Manual”, 2004

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Table 2.3-2 Characteristics of each inundation prediction method
MethodOutline of the method

Advantages (A) and Disadvantages (D)Prediction image for tsunami hazard<Inundation areas and depths>

Methodbasedonhistoricalinundation

records

Method based on historical(A) Is simple and inexpensive.

inundation(D) Cannot be applied to regions thatrecords

istoindicate inundation areas ofhave not ever suffered inundation.

historical tsunamis.

(D) May underestimate inundation areas,
inundation

depthsandinundation

A tsunami in the past
may not be the one thatcausestheworstpossibleinundation(Level 3 tsunami).

level of the past inundation may not be
Present land form
is not reflected.

the worst.

A tsunami in the past
may not be the one thatcausestheworstpossibleinundation(Level 3 tsunami).

Inundation data are
only supplied to sites
where past records
are available.

initiation time because the external force

constructed

after

the

past

Inundation
initiation time is
onlyestimatedfrom the pastrecord.

Water reached
the ceiling of
the first floor
during the pasttsunami.
The
effects
ofprotection facilities
constructed after thepastinundation
cannot be reflected.

(D) Cannot reflect the effects of protection
facilities<Time perspective>

Estimated inundation
areas based on pasttsunami records.

inundation.

Inundation
started in 30
minutes after
theearthquake.
Theeffects
ofprotection facilities
constructed after thepastinundation
cannot be reflected.

Estimated inundation
areas based on pasttsunami records.

(D) Cannot provide data that were notmonitored during the past inundation.
Dotted red line: inundation areas predicted by thenumerical simulation

Estimation based on
ground elevation

Estimation based on groundelevation

determines(A) Is simple and inexpensive.
(D) Cannot count reduction effect byinundation areas under thebuildings

tsunamiisareas) and run-up movement by water

predicted from a tsunami

momentum (underestimates inundation

numerical simulation.

areas).

heightwhich(D)(overestimates

Cannotreflect

theinundation

effects

Inundation areas are
assumed up to theelevation equal to thepredicted
tsunamiheight.

Reductioneffect bybuildings
cannot be
counted.

Dotted red line: inundation areas predicted by thenumerical simulation- Only final inundation areas can be predicted.
Waterlevelsareassumed to be uniform
through the entire areas.

The speed and time perspective of inundation
cannot be predicted.
- Retarding effects by breakwaters, coast levees, land
locks and water gates cannot be evaluated.

Elevation:
4mofprotection facilities because inundation
areas are predicted only from the heightof a tsunami and the ground elevation.

Run-up movementbywater
momentum cannot
be counted.

(D) Can predict only the final inundation

Reduction effect byprotection
facilities
cannot be counted.

areas. Cannot predict the speed and time
perspective of inundation.
Dotted red line: inundation areas predicted by thenumerical simulation

Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan, “Tsunami and Storm Surge Hazard Map Manual”, 200418
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3. Procedure to prepare tsunami disaster management maps
3.1 Different types of tsunami disaster management map for different purposes
A tsunami disaster management map should be prepared corresponding to its purpose
and intended users. This guideline shows two examples of how to make the tsunami
disaster management map. The first is an evacuation map whose users are not only
administrative persons responsible for disaster management but residents and generalpublic including non-residential workers and tourists. The second map is mainly foradministrative use such as investigating and planning tsunami disaster prevention andreduction.
<Explanation>
Various types of tsunami disaster management maps can be prepared, depending on
their purpose and intended users. To optimize its utility, the tsunami disastermanagement map should be user-friendly.
The users of the tsunami disaster management map can roughly be divided into
administrative

personnel

and

the

generalpublicwhich

includesresidents,

non-residential workers and tourists. The most common tsunami disaster management
map for both of them is an evacuation map. This guideline shows how to make anevacuation map as the first example of a tsunami disaster management map. Secondly,
maps for other administrative uses to prevent and reduce tsunami disasters are
introduced.
According to the necessity of disaster management in communities, other maps areprepared. For instance, a company may develop a map to control and manage thetsunami disasters which could otherwise affect its ability to continue doing business, ora fishery community may develop a map to indicate tsunami hazard in their sea andevacuation procedure for their fishing boats.
Tsunami disaster management map is a good tool to create risk communication against
tsunamis between the authorities and the community, in which hazard and disaster
information can be mutually shared.

3.2 Tsunami hazard as basic information on tsunami disaster management maps
3.2.1 Significance of tsunami hazard in tsunami disaster management maps
The most basic and crucial information of a tsunami disaster management map istsunami hazard expected in a community. Indication of tsunami hazard such as theinundation area together with disaster prevention and reduction measures provides
relevant parties with an understanding of the necessity of disaster prevention andreduction activities.

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Guideline for Development and Utilization of Tsunami Disaster Management Map<Explanation>(1) Significance of tsunami hazard information
A tsunami disaster management map that does not indicate tsunami hazards results inless understanding of the need to adopt disaster prevention measures and lessawareness of the significance of tsunami disasters among relevant persons. Indicatingtsunami inundation areas, tsunami-prone areas and vulnerability of the community
against the tsunamis clearly on the map will raise awareness of the impact of tsunami
disasters and prompt administrators to take the necessary measures to minimize suchdisasters.

(2) Various types of tsunami hazards
The most vital information is tsunami inundation areas, which are vulnerable to thetsunamis and would require evacuation in the event of an attack. The inundation area
is estimated using records of past tsunami disasters and numerical simulation results ofthe expected tsunamis. Based on the numerical simulation results, water depth of theinundation areas is also estimated and clarifies the degree of risk levels against thetsunamis.
There are other factors which need to be considered in developing measures against
tsunamis. Tsunami arrival time is an important factor for planning the evacuation
process, while tsunami fluid velocity is an index to gauge the required speed of
evacuation when a tsunami strikes several minutes after an earthquake. Tsunami
destruction is, furthermore, estimated by tsunami wave force and fluid velocity.

(3) Estimation of tsunami hazards
As described in Section 2.3, there are several ways to estimate tsunami hazards, inparticular tsunami height along coasts and inundation. If a community has experienceof tsunami disasters in the past, historical records will indicate vulnerable areas and it
will be possible to roughly predict inundation areas. However, the topography andbathymetry may have changed since these past disasters took place. In such a case, thecharacteristics of the tsunami striking the community would vary depending on thesechanges, resulting in the appearance of different inundation features. To understandthe tsunami hazards at present and in the future, therefore, it is recommended thatanalysis and estimation using numerical simulations be conducted in the present andfuture situations.
If the community has no experience with tsunami disasters but seismological studies
indicate that tsunamis can be expected in the future, past coastal flooding disasters due
to storm surges serve as a good reference for predicting areas vulnerable to tsunamis.
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3.2.2 Numerical simulation to estimate tsunami hazard
Numerical simulations can yield tsunami hazard and vulnerability of the community
against tsunamis under various conditions. Numerical simulations, in particular, havethe capability to estimate disaster risk due to the expected tsunamis which will strikein the community. To establish comprehensive measures to prevent and reduce theexpected disaster risk, numerical simulations are also a crucial tool to evaluate andanalyze the effect of each measure and combination and integration of measures on
disaster prevention and reduction.
<Explanation>(1) Recommended numerical simulation procedure to estimate tsunami hazards
A recommendable estimation method of tsunami hazards is a numerical simulation
with a time-marching model, or time-integrated model which solves fluid motion driven
by tsunamis and mass conservation of fluid. Such a model can analyze tsunami
inundation spreading step by step.

(2) Necessary data for numerical simulations of tsunami disaster estimation
The time-marching numerical simulation of tsunami requires bathymetric andtopographic data as shown in Figure 3.2.2-1. If bathymetric data and the configurationof coastal lines are available but topographic data on land is not, the tsunami heights
and arrival time along coasts can at least be calculated. If the topographic data isavailable, inundation features can be estimated. Data of structures including houses
and buildings can also be used to evaluate the degree of damage in case of a tsunami
attack. It should be noted that the accuracy of numerical simulation results depends on
the spatial resolution and accuracy of the bathymetric and topographic data.
One-minute grid oceanic bathymetry data is available from a web site of the General
Bathymetric Chart of the Oceans (GEBCO, http://www.ngdc.noaa.gov/mgg/gebco/). To
consider tsunami wave transformation in shallow water and the effect of protection
facilities such as breakwaters in harbors, water depths in shallow water should be readfrom available nautical charts.

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Bathymetry Data

Tsunami Scenarios

Area_01
Area_02

Area_06

Subsidence
area
Uplift area

Area_02Ar ea_03

Area_05

Numerical Simulation Results

Topography and
Structures data

Area_08

Numerical Models
Area_07

Figure 3.2.2-1 Estimation of the tsunami hazard area with numerical simulations(3) Setting of tsunami scenarios
A tsunami scenario which determines the original condition of tsunami, the level ofastronomical tide at the time of tsunami arrival and the conditions of structural
measures including destruction of protective structures against tsunamis and operation
states of mobile structures such as a water gate is also necessary to execute thenumerical simulation of tsunami hazards.
The original condition of tsunami means the initial profile of tsunami which strikes acommunity and which can be usually calculated by means of a fault model ofearthquake generating the tsunami. In general, tsunamis for the estimation of hazards
are essentially the largest tsunamis which are expected to strike the community.
However, the magnitude of tsunami should be selected corresponding to the purpose of
the disaster management map. Table 3.2.2 indicates examples of tsunamis
corresponding to various purposes. For example, a tsunami with a return period of 10
years is adopted for studying the structural measures required to protect a community
against tsunami intrusion even though the largest tsunami that can be expected has areturn period of well over a hundred years. This is because the structural measures
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required to correspond to such a powerful tsunami are prohibitively large and in any
case structural measures alone without non-structural measures would not
significantly reduce the degree of disaster.
Table 3.2.2

Example of tsunami level corresponding to purpose

Tsunami level

Definition

Purpose of estimation

Level 1

Tsunami perceived

Possible damage to activities related to fishery

to be realistic

products, but not to the land

Design tsunami as

Design of structural measures which prevent andthe protection goal

reduce disasters

Largest tsunami

Development of comprehensive measures tocausing the

reduce disasters

Level 2

Level 3maximum damage

The tide level at the time of tsunami arrival is an important factor affecting thevulnerability of community against the tsunami. If higher tide is assumed in thesimulation, the vulnerability level against tsunamis becomes higher, and in particular
the inundation areas and depths are generally wider and deeper. The estimation oftsunami inundation, therefore, is conducted generally under the condition of high tide.
On the other hand, the low tide condition is sometimes used to estimate the hazards
affecting vessels on the sea. Receding tsunami during the low tide is hazardous because
the vessel bottom hits the sea bed.
Facility conditions to be set before conducting the numerical simulations aredestruction patterns and operational status of facilities. Damage to facilities is caused
by earthquake motion and tsunami action. Thus, it is recommended that the stability ofa facility against quake motion and tsunami wave force be inspected. Another fatal
factor is the smashing of vessels, cars and other large bodies into the facilities, resulting
from action of their collision forces with tsunami forces. For operational states offacilities such as a water gate and land lock which have opening spaces for access to thesea and sea fronts, actual data should be used as much as possible, including capabilityof their operations to close their opening space before a tsunami strikes.
The tsunami scenarios including the facility conditions should be adjusted to thecharacteristics of disasters, the map purpose, and regional characteristics. It is
important that tsunami hazards are estimated to develop countermeasures against
tsunamis using current knowledge and technologies. Even if the current knowledge andtechnologies are not always enough to estimate the hazards in detail, necessary
knowledge and technologies will be accumulated and developed in the future.

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It should be also noted that disasters occur possibly under conditions other than thosepresented in this section. In order to get necessary information, such as destruction
patterns of facilities, an appropriate method should be selected by referring, forexample, to “Coastal Facility Design Handbook” (November 2000, Japan Society of Civil
Engineers) and “Technical Standards and Commentaries for Port and Harbour
Facilities in Japan” (January 2002, OCDI).

(4) Indication of tsunami hazards
Inundation areas estimated through the numerical simulations are used to indicate
tsunami risk areas on the tsunami disaster management maps. The most basic andessential indication procedure of tsunami hazards is that of coloring the inundation
areas on the map. Red is usually used to represent the inundation areas on the map.
When inundation depth is predicted by the numerical simulation, the depth is indicatedby the strength of the red. Such a map clearly indicates tsunami inundation areas,
raising peoples’ awareness of the need to evacuate from tsunami-prone areas. A moreadvanced map on which the inundation areas are color-coded depending on inundation
depth and/or on which tsunami arrival time and inundation initiation time aresuperimposed creates deeper understanding of the hazards with their risk degrees.
According to development of numerical simulation technology and acquirement ofdetailed bathymetric and topographic data, fluid velocity and wave force of tsunami willbe estimated and indicated on the map as well as inundation areas and depths. However,
too much data on the map can defeat the purpose of the map. If many types of risk data
are required on the map, it is recommended to develop electronic map (E-map) with thegeological information system (GIS) and to create inventive ways to describe them.

(5) Advanced tsunami hazard estimation
Advanced numerical simulation models are being developed to estimate fluid velocity
and wave force of tsunami and tsunami destruction of structures as well as inundation
area and depth. Since the fluid velocity and wave force of tsunami depend on theexistence of structures as well as microscopic changes of bathymetry and topography,
detailed bathymetric and topographic data and arrangement data of structures
including houses and buildings are necessary to estimate such physical values. If there
are design data of a structure and suitable numerical models, tsunami-induced
destruction and fatal damage of the structure would be evaluated.
According to the development phase of tsunami numerical models and the availabilityof detailed data on bathymetry, topography and structures, the prediction of tsunami
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hazards will become more sophisticated and can be utilized to formulate measuresagainst tsunamis as shown in Figure 3.2.2-2.

Phase 1: Tsunami disaster management map indicating the historical tsunami damage−Data of bathymetry and topography
Phase 2: Tsunami disaster management map based on numerical simulations(indication: inundation area and depth)−Data of structures such as houses, buildings

Phase 3: Tsunami disaster management map based on numerical simulations(indication: inundation area, depth, and flow speed)−Development of numerical model to analyze
tsunami wave force
Phase 4: Tsunami disaster management map based on numerical simulations(indication: inundation area, depth, flow speed, and tsunami wave force)−Development of failure criterion of structures−Development of numerical model to analyze
structure destruction
Phase 5: Tsunami disaster management map based on numerical simulations(indication: inundation area, depth, flow speed, tsunami wave force,and destruction of structures)

Figure 3.2.2-2: Example of step-by-step progress of tsunami disaster management map

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3.3 Indication items on maps for peoples’ evacuation
3.3.1 Information for evacuation activities and raising disaster awareness
Necessary information for adequate and smooth evacuation of people including
residents, non-residential workers and tourists is divided into information forevacuation and raising disaster awareness. The information for evacuation consists oftsunami inundation areas, locations of evacuation sites/routes, and evacuation tips. For
raising disaster awareness, the maps could include basic knowledge of tsunami,

theinformation on historical tsunami disasters which affected the community in the past.
<Explanation>(1) Basic information
Other than the information on tsunami hazards, necessary information for peoples’
evacuation from tsunamis is classified into information for evacuation and informationon the nature of tsunami disasters.
Evacuation sites and routes are essential and necessary information when facing atsunami crisis. The basic information for evacuation includes the locations of evacuationsites/routes, tsunami evacuation tips, and tsunami inundation areas. If tsunami arrivaltime, tsunami striking direction and inundation depth are estimated, it is easier tostudy an effective evacuation procedure in the tsunami-prone areas. Information onbuildings that are higher than the inundation depth is also beneficial when seeking
refuge.
Related to information for peoples’ evacuation, evacuation tips are important
information for tsunami disaster management map. Table 3.3.1 shows an example oftsunami evacuation tips on a tsunami disaster management map. Also, tsunami safety
rules can be downloaded from the ITIC’s website.
Table 3.3.1 Example of evacuation tips
Evacuation Tips (Example of Uchiura, Numazu city, Japan)•

When the shaking stops, evacuate as quickly as possible.

•

Move quickly to higher ground away from the coast.

•

Return home only after local officials give the “All Clear” notice.

•

A tsunami does not always start with the ebb tide.
Source:Uchiura, Numazu city, Japan

Basic knowledge of tsunami is effective in increasing people’s self- and mutual defense
capabilities when a tsunami actually strikes. The basic knowledge includes evacuation
tips as well as that related to tsunamis such as tsunami generation mechanism.
Examples of evacuation tips are as follows:

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Guideline for Development and Utilization of Tsunami Disaster Management Map- As soon as the shaking of earthquake is over, move to high ground and tsunami
shelters; do not wait for an official warning as a local tsunami which is generated near acoast can propagate to the coast within a few minutes.
- Remain in a safe place or site as tsunami waves repeatedly strike in general,
depending on topography and bathymetry.
Historical tsunami disasters in a community also make people aware how vulnerable
their community is to tsunamis. An area which is vulnerable to tsunamis, for example, alow-lying coastal area with no protection, generally suffers disasters repeatedly.

(2) Other important information
The map should also provide significant information corresponding to specific problems
or needs in the community. For instance, in a community where many foreigners live,
information in the prevalent foreign language would help such people to understand themap.

3.3.2 Displaying map
The tsunami disaster management map should be displayed in a simple andeasy-to-understand language. The amount of information should be limited to theinformation which is indispensable for evacuation. For example, the crucial information
on an evacuation must be able to be understood immediately. A simple map indicating
inundation areas in the community is useful for all residents and general publicregardless of their knowledge levels of tsunami features and disasters.
<Explanation>
The evacuation map for people including residents, non-residential workers andtourists should include the minimum amount of information indispensable for
evacuation, since the map size is limited and users of the map have various levels of theknowledge on tsunamis. Information should be displayed in a simple andeasy-to-understand language.
The basic function of a disaster management map is to present the areas inundated by
the expected and past tsunamis. To promote awareness of tsunami risk, it isrecommended that the inundated areas be colored in red.
For raising awareness of disaster preparedness and disaster education, a large amountof information may be required. In such a case, the necessary information is distributed
in different forms such as leaflets, separately from the evacuation map. If personal
computers are available, an electronic map (E-map) with GIS technology is effective inshowing a large volume of information easily.
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3.4 Indication items on maps for other administrative uses
The tsunami disaster management maps can be utilized for various purposes as well as
evacuation: for instance, planning of preventative measures, evaluating the effects ofstructural measures and others. According to the purposes, the necessary data are
indicated on the map together with tsunami hazard data.
<Explanation>
The tsunami disaster management map for disaster prevention should include theexpected number of people exposed to the forecast tsunami disasters and its distribution
as well as locations and capacities of evacuation sites including tsunami shelters. If
there is an area in which some persons cannot escape from tsunami inundation,
tsunami shelters for such persons may be newly constructed or selected from amongsolid and high buildings existing in the area. In addition, construction of new protective
structures and enhancement of protection function of existing structures can delay the
initiation time of the inundation, resulting in more time for evacuation.
The tsunami disaster management map for coast management should include facility
information such as locations and types of facilities, facilities that are prone to damage,and evaluation results of stability of facilities against quake motion and tsunami wave
force including liquefaction of the structure basement. Table 3.4 shows examples of
information that should be included so as to accomplish the intended purpose of the
map in consideration of the users.

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Table 3.4 Basic information to be included in the tsunami disaster management map
Category of
information
HazardInformation(to be layered in the tsunami disaster management map)
・Inundation risk areas (depth and time)

The following information could be included in the map.
・Inundation area records based on historical tsunamis
・Inundation depth due based on the expected tsunamis
・Inundation depth records based on

historical tsunamis

・Initiation time of inundation based on the expected tsunamis
・Initiation time of inundation based on historical tsunamis
・Fluid velocity and wave force of the expected tsunamis
・Others

Evacuation

・Evacuation sites or tsunami shelters
・Evacuation routes

The following information could be included in the map.
・Population distribution in day and night times
・Facilities for those who require some assistance for evacuation
・Elementary schools and kindergartens
・Others
Disasterawareness-risingand disaster study

・Basic knowledge of tsunamis
・Evacuation tips

The following information could be included in the map.
・Characteristics of historical tsunamis and their induced disasters
・Others
Other disastermanagements

・Telephone number of authorities related to disastermanagement
The following information could be included in the map.
・Protection line
・Land use
・Disaster prevention centers
・Emergency transportation routes
・Police, fire department, hospital and other authorities related to disaster control
・Life lines such as power, gas and water supply facilities, and sewerage facilities
・Coast protection facilities such as breakwater, tide wall, and water gate)
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CHAPTER 4 Applications of tsunami disaster management map
4.1 Dissemination of tsunami disaster management map
To utilize tsunami disaster management maps for residents effectively, it is importantthat residents be thoroughly informed of the maps. Tsunami disaster management
maps can be provided to residents by distributing printed materials, setting up bulletinboards, using the Internet, etc. Disseminating methods should also be devised fordisaster-vulnerable people, such as the handicapped, elderly, and children as well as forforeigners and tourists.
<Explanation>(1) Importance of dissemination
Mere distribution of tsunami disaster management maps to residents does not serve
their fundamental purposes. It is important for residents to understand the risks of
disasters and ways to seek safety such as evacuation procedures. Thus, educating
residents about disaster management maps is essential.

(2)Methods to disseminate tsunami disaster management maps
1) Tools for disseminating tsunami disaster management mapsa) Printed Disaster Management Maps:
Distributing a tsunami disaster management map to each household is the most basic
way to inform residents. However, careful attention should be paid to the size of the
map and the way it is distributed. The best size may be just large enough to post on arefrigerator.
b) Bulletin boards:
Bulletin boards are useful in posting tsunami disaster management maps. It is possible
to set up such boards specifically for disaster prevention, or it is also possible to use
already existing community bulletin boards. Posting tsunami disaster management
maps at bus stops, railway stations, and other public spaces, is also effective in
informing tourists and visitors.
c) The Internet:
Due to the recent rapid spread of personal computers for home use, a large number ofpeople are now able to acquire various information through the Internet and CATV on adaily basis. Many municipal governments are opening and operating websites. Posting
the map on the website urges administrators to update the map frequently because
website audience could easily access the map and check whether the map isappropriately updated or not. Thus, distributing tsunami disaster management maps toresidents through those media is effective.
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Unlike information printed on paper, which requires time and cost for revision andredistribution, information through the Internet and CATV can be updated frequently
and delivered immediately. Tsunami disaster management maps and related video
contents that meet individual needs can be provided through the interactive
communication of the Internet and CATV, which is almost impossible with maps printed
on paper. Through the Internet, more detailed information on inundation, such as GIS
data, can also be provided. When these latest communication technologies are used,measures should be devised to assist the elderly, who may not be accustomed to suchtechnologies.
2) Considerations for disseminating tsunami disaster management maps
Tsunami disaster management maps must be prepared so as to be easy for thehandicapped, elderly, and children to understand and use. Use of the maps by people
who cannot read and write should also be considered. Universal design, such as
pictograms, should be used for signs on maps, because it ensures easy understanding
for all sorts of people.

4.2 Ways to promote understanding of residents
Tsunami disaster management maps should not be unilaterally prepared bygovernments and distributed to residents, but should be prepared together withresidents. Thus, residents’ participation should be encouraged in order to reflect local
informationintsunamidisastermanagement

maps

and

to

promotetheirunderstanding of inundation areas, evacuation sites, and use of the maps. A community
leader plays an important role in the residents’ participation in developing countries.
Accordingly, it is effective to ask for the cooperation of an existing community leader sothat the map sprouts roots in the community.
Workshops are effective for encouraging residents to participate in preparing tsunami
disaster management maps, so that local information can be incorporated into themaps. Providing learning opportunities about disasters are also effective in promoting
the residents’ understanding of tsunami disaster management maps.
<Explanation>(1) Residents’ participation
Local evacuation plans during tsunamis must be appropriate to the actual conditions of
the region, and should be drawn up by collecting opinions of residents who know a great
deal about the region. Residents’ participation in preparing the maps is also effective inpromoting their understanding and use of the maps.

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Therefore, encouraging residents to voluntarily participate in map preparation throughworkshops between residents and administrative bodies is essential for promoting theuse of tsunami disaster management maps. Participants should represent various
groups, such as communities, chambers of commerce and industry, and youth
associations. Since women play an important role in protecting the family, it isrecommended to involve female participants to include the viewpoint of women.
Other ways to promote the understanding of residents include:- Holding local study meetings,- Preparing interactive electronic Disaster Management Maps and making themavailable through the Internet, and- Preparing disaster prevention education tools (videos, etc.).

(2) Workshops
Workshops are effective for encouraging residents to participate in preparing tsunami
disaster management maps, so that local information can be incorporated into the maps.
Workshops can also help residents understand the significance of the maps, theinformation included in the maps, and evacuation methods.
1) Holding workshops
Some local information is known only to residents, and disaster management maps
unilaterally prepared by governments may miss such important information. To
prepare truly effective tsunami disaster management maps requires residents’voluntary participation in local disaster prevention activities. Workshops can be such
useful opportunities.
Core members for workshops can be those shown in Table 4.2-1. Experts and public
representatives express their opinions regarding what should be included and how theyshould be displayed on maps from different points of view.
Experts on tsunamis must be present at workshops. Also officials of the national andlocal governments in charge of disaster prevention and coastal areas should berequested to participate when necessary.
At a workshop, the administrative side should explain the purpose of the workshop,
details about tsunami disaster management maps, and ways to distribute and use them.
Then, participants express their opinions on the information presented to them.
Workshops should be held several times in order to correctly reflect the opinions ofresidents in maps.
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Tours can be made to visit inundation areas and check the necessary time for theirevacuation. To prevent participants from gaining fixed ideas, it should be explained thattsunami disaster management maps merely show model cases.

Table 4.2-1 Examples of members of workshop
Class
Chair
Core
Members

Secretariat

MemberViewpoint/Roles

Expert, local government official, or
consultant

Expediting the proceedings, consolidating andsummarizing opinions

Expert in tsunamis, coastal engineering

From a technical viewpoint

Representative of a community planningassociation

Viewpoint from a urban planner

School teacher

Viewpoint from the safety of students

Representative of the elderly

Viewpoint from the elderly

Representative of residents

Viewpoint from local residents

Representative of local tourism industry

Assisting tourists’ evacuation

Representative of local company
employee

Assisting employee evacuation

Representative of fire fighters

Local disaster prevention

Representative of voluntary disasterprevention organization

Local disaster prevention

Representative of welfare organization

Assisting the handicapped and the elderly

Disaster administrators (local government
official)

Arranging meeting place, preparing andpresentation materials

Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

2) Example of workshop
For a workshop, the appropriate number of participating residents is about 30. Each
resident shall be asked to participate in the workshop through the existing voluntarydisaster prevention organization. Alternatively, the municipal authority shall directly
ask each resident to participate. At the workshop, evacuation plans during tsunamis areusually drawn up for each district in a region - the region should be divided into 4 to 5
districts in advance - and at least several participants should be present from each
district. The time and frequency of holding workshops should be determined based on
the regional conditions. Photo 4.2 shows scenes of discussing evacuation plans in aworkshop.

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Photo 4.2 Discussing evacuation plans at a workshop (Susaki City, Kochi Prefecture)
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

The venue should be large enough to accommodate all participants, and an overhead or
liquid-crystal projector, a white board, large-size paper, and other necessary items
should be prepared. Tables that are large enough for spreading maps should be set foreach group. Examples of necessary references and tools are shown in Table 4.2-2.
Table 4.2-2 References and tools to be prepared for workshop
References and tools to be prepared (examples)
Maps

Tsunami hazard maps showing inundation areas (results ofsimulation analyses and areas inundated in the past)

References for

References of evacuation sites, evacuation sites, and evacuation

disaster prevention routes designated by the local government
Other tools
DuringthePencils, pens, oil-based markers, transparent plastic sheets,
workshop, the chair

should speak

clearlyandexplaininaneasy-to-understand manner for the participants. The chair should encourage as many
residents as possible to ask questions, so as to make them feel that it is their own issue.
People tend to consider a large-scale disaster as unrealistic because they have neverexperienced it in their life. With this in mind, information to be shown on maps andexpression methods used should be selected carefully to inform correctly theparticipants of inundation areas and evacuation sites.
Displaying inundation prediction results using Web GIS during a workshop is also
effective in making matters clear to residents.

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Guideline for Development and Utilization of Tsunami Disaster Management Map(3) Educational opportunities for residents
Providing learning opportunities about disasters are effective in promoting theresidents’ understanding of tsunami disaster management maps. Such opportunities
can be provided in voluntary disaster prevention organizations and at school.
Information technology (IT) can be used to enhance residents’ understanding. Training
residents to become tsunami advisors is also effective.
1) Holding follow-up workshops
Holding follow-up workshops is effective in promoting the residents’ understanding of
the tsunami disaster management map. The follow-up workshops should not be
considered as a one-time event. Holding follow-up workshops several times a year
contributes to enhancing residents’ awareness of disaster prevention against tsunamis
and establishing the importance of the map within the community.
2) Learning in voluntary disaster prevention organizations
It is effective in promoting the residents’ understanding to use a tsunami disastermanagement map as a tool for learning disasters within a voluntary disaster prevention
organization established in each district.
It will be very effective to recognize the risk in each district and to review each
evacuation route at meetings of a voluntary disaster prevention organization, whichknows the district very well. The members can prepare more precise tsunami disastermanagement maps for the district by investigating details that could not be discussed atworkshops.
3) Learning at school
Tsunami disaster management maps can be used in learning disaster-related issues atschool. By teaching children about tsunami disasters management maps fromelementary school, a system can be developed to continuously educate people about
disasters and related issues from childhood. Educational opportunities at school likethis may provide a chance for family members to talk about disaster prevention.
Considering teaching materials for elementary schools, the content should be describedand displayed in a way that can be easily understood by children.
The training seminar for teachers is also recommended to enhance teaching skills.
4) Use of information technology (IT)To encourage residents to understand and use tsunami disaster management maps,
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measures should be taken to make people feel that tsunamis are their own concern.
However, tsunami disaster management maps showing an entire city on one or several
sheets of paper may not be convincing enough to enhance their concern to that level.
Information technology (IT) can be helpful in presenting information that is tailored topersonal needs. For example, an interactive tsunami disaster management map system
can be constructed in which a user can see his or her risk, appropriate evacuation sites
and routes, and video clips, just by clicking on his or her house.
5) Training programs
Since damage by tsunamis varies depending on conditions of each region, experts can betrained as long-term advisors on tsunami disaster prevention. Tsunami disastermanagement maps will be useful tools for the advisors to teach children about tsunamis,
and to supervise school teachers in giving disaster prevention classes. Such activities
will be effective in increasing public understanding of tsunami hazards.

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4.3 Utilization of tsunami disaster management map in taking measures against
tsunamis
Tsunami disaster management maps for residents can enhance the self defense abilityof residents and their smooth evacuation. Tsunami disaster management maps foradministrators can be used to make evacuation plans for residents and to make plansfor improving disaster prevention facilities. Tsunami disaster management maps canalso be used for risk communication between governments and residents on futuredisaster prevention measures.
<Explanation>
Tsunami disaster management maps can be utilized for comprehensive disasterprevention measures from structural and non-structural aspects (see Figure 4.3). In thenext section (Section 4.4), examples of utilizing tsunami disaster management maps inJapan are introduced.

Tsunami Disaster Management Map
For Administration

Information forunderstanding
disasters

Before Disaster

Normal time

For Residents’ Evacuation

Promoting enlightenment/
Risk communication between administrators and residents
Information forpreventative
measures

Constructing evacuationsites and disasterprevention facilities

Immediately
Before Disaster
Immediately
After Disaster

During Disaster

Drafting disasterprevention plan

Evacuation
information

Emergency measure
information
Real time
hazard information

Preparing for
Evacuation (checking
evacuation routes, etc)

Evacuation

Evacuation
and rescue plans

Guidingevacuation/ RescuingNon-structural measures

Preparing to operate facilities/
Taking emergency measures

Necessary
Restoration

Operatingfacilities

Structural measures

Figure 4.3 Utilization of tsunami disaster management map at each stage of disaster
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

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4.4 Examples of utilizing tsunami disaster management maps in Japan
Tsunami disaster management maps are utilized for enhancing residents’ self defense
capabilities and drawing up evacuation plans in Japan.
As examples of utilizing tsunami disaster management maps in Japan, workshops,
evacuation drills, informative brochure, IT-based tsunami simulation, and tsunami
evacuation guidance signboards are introduced in this section.
<Explanation>(1) Holding workshops(Susaki City, Kochi Prefecture)
Workshops are not only effective for encouraging residents to participate in preparing
tsunami disaster management maps but also enable residents to understand thesignificance of the maps, the information in the maps and evacuation methods.
Susaki city developed the tsunami disaster management map by holding several
workshops with local residents. Susaki city opened the map to the public in April 2004.
At the workshop, the organizer of the workshop prepared a large hazard map which
presented a predicted inundation area so that residents could discuss the tsunami
disaster management in concrete terms. As a result, the residents added evacuationsites and routes to the original large map prepared by the organizer of the workshop.
Thus, developing the tsunami disaster management with the participations of residents
reflects residents’ intentions.
Scenes at a workshop in a region are shown in Photo 4.4(1)-1, 4.4(1)-2 and 4.4(1)-3.
Photo 4.4(1)-1 shows an expert explaining a draft tsunami disaster management map,
Photo 4.4(1)-2 shows residents discussing
evacuation sites and routes, and Photo
4.4(1)-3

shows

a

group

of

peopleinvestigating and confirming evacuationsites and routes on site respectively. In
this region, after revising the draft map
through workshops held twice, tsunami
disastermanagement

maps

were

distributed to residents and put in theregion’s official website.

Photo 4.4(1)-1 Explanation by an expert
Source: Cabinet Office, Ministry of Agriculture,
Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

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Photo 4.4(1)-3 Investigating andconfirming evacuation sites androutes on site

Photo 4.4(1)-2 Residents discussing
evacuation sites
Source: Cabinet Office, Ministry of Agriculture,
Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

Source: Cabinet Office, Ministry of Agriculture,
Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

(2) Evacuation drills conducted on the way back home from school(Former Taiki Town, Mie Prefecture)
Because one never knows when a tsunami will occur, the evacuation action differs
according to the conditions at the time of occurrence of a tsunami. It is important toimplement evacuation drills according to various conceivable situations, like those
conducted by elementary and junior high school students on the way back home fromschool in the area that was formerly Taiki Town in Mie Prefecture.
In the latter area, a disaster prevention committee consisting of representatives fromvarious organizations in the town was established in 1995, which discussed the natureof the measures the town should implement for disaster prevention. During this
discussion, a specific problem was pointed out, namely that the evacuation drills
conducted at elementary and junior high schools were based on the assumption that an
earthquake would occur when students would be in school, even though one never knew
when a tsunami would occur. Therefore, it was decided to implement an evacuation drill
on the way back home from school for elementary and junior high school students.
The sounding of a siren was scheduled during the journey home from school, which
would summon students to evacuate to the nearest shelters indicated on hazard maps.
In 2004, an evacuation drill was conducted on the 28th of October, in which a total of
138 students from two elementary schools and junior high schools respectively
participated.

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Photo 4.4(2) Evacuation drills conducted on the way back home from school
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

(3) Informative brochure(Susaki City, Kochi Prefecture)
It is important for children who will take charge of disaster prevention in future to becontinuously informed of new developments to enhance the disaster prevention abilityof communities. In addition, knowledge concerning disaster prevention is expected to bedisseminated among families through children. It is thought that the preparation anduse of disaster-related teaching materials, in conjunction with integrated learning, like
“Our Town and the Nankai Earthquake and Tsunami - Let’s Learn about Tsunami, andProtect against Tsunami” prepared by the Susaki City Government in Kochi Prefecture,
will be an effective means of promoting understanding among residents.
Susaki city in Kochi Prefecture was frequently affected by damage caused by tsunamis
in the past. In response, it established the “Susaki City Review Committee on Measuresagainst Tsunami” (Chairperson: Mr. Tomotsuka Takayama, Professor, Disaster
Prevention Research Institute, Kyoto University), and conducted a study on municipal
measures against tsunamis. Consequently, the importance of software-related measures
combined with hardware-related measures was pointed out, as well as that of preparing
and distributing tsunami disaster management maps, and enhancing residents’awareness of disaster prevention against tsunamis, as a key measure in providing
information for prompt, safe and secure evacuation. Therefore, in Susaki City, the“Review Conference on the Informative Brochure on Tsunami” (Chairperson: Mr. Kunio
Otoshi, Professor of Agriculture, Kochi University), which consists of persons involvedin education (the Municipal Educational Research Institute, elementary and junior highschool teachers, and PTA representatives), and tsunami specialists (persons having
actually experienced a tsunami, and the Kochi Port and Airport Office, Shikoku
Regional Development Bureau and the Ministry of Land, Infrastructure and Transport),
conducted a study, prepared 1,000 copies of the informative brochure on tsunami forsenior children at elementary schools, and distributed and utilized the same among
elementary schools in the city.

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Table 4.4(3)-1 Features of the brochure on tsunami “Our Town and the Nankai
Earthquake and Tsunami”
x The brochure was targeted at elementary school students.
x Elementary and junior high school teachers are also members of a review committee(on children’s tendency, the awareness of scenes for application, the use of an agate typefor Chinese characters, etc.).
x The brochure was laid out using cartoon characters to explain the mechanisms of anearthquake and tsunami, as well as the presumed damage, and response to an
earthquake and tsunami, so the brochure would become applicable for children (cartoon
characters designed by Mr. Takashi Yanase were used (and provided by the Kochi
Prefectural Government)).
x Consideration was given to the fact that the brochure would be used during a period of
integrated learning. The brochure layout included a number of sections for children toinvestigate the history of local disasters by themselves.
x Memoranda and photos of disasters having previously occurred in Susaki City wereplaced so that readers could get an imminent feeling of disaster.
x Memoranda and photos of the Great Hanshin Awaji Earthquake were also included inorder to emphasize the importance of mutual cooperation after the occurrence of adisaster.
x Consideration was given for the dissemination of knowledge on damage caused bytsunamis among families to whom the brochure would be introduced after it was taken
home by children.
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

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Table 4.4(3)-2 Contents of the brochure on tsunami, “Our Town and the Nankai
Earthquake and Tsunami”
Contents
What is the
NankaiEarthquake?

Objective of description

Nankai Earthquake
The probability of the occurrenceof the Nankai Earthquake over the
next 30 years is 40%.

•To enhance understanding of why atsunami occurs•To enhance understanding that theprobability of occurrence of a tsunami
is high

Mechanism of occurrence of the
Nankai Earthquake
Why does atsunami occur?

What is a tsunami?
Mechanism of occurrence of atsunami
A tsunami travels very fast.

What happens if atsunami occurs?

Damage previously caused bytsunamis
Anticipated damage from atsunami if the next Nankai
Earthquake occurs

What should we
do to protect
ourselves against
tsunamis?

Efforts to protect us from tsunamis

What should we
do if anearthquake
occurs?

Action to be taken in an
emergency

Evacuate immediately after theoccurrence of an earthquake!

How to spend time in a shelter•To enhance understanding as to thenature of damage a tsunami would
cause•To enhance understanding aboutdamage caused by tsunamis in our
town in the past, and expected
damage in the event of the Nankai
Earthquake in future•To enhance understanding as ameans of protecting ourselves in theevent of a tsunami•To enhance understanding aboutdamage caused by tsunamis in our
town in the past, and expected
damage in the event of the Nankai
Earthquake in future

In preparation for an earthquake
and tsunami
Let’s help each other when we
have difficulties.
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

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Figure 4.4(3)-1 Front and rear covers
Source: Susaki City, Kochi Prefecture, “Our Town and the Nankai Earthquake and Tsunamis- Let’s Learn about Tsunamis, and Protect against Tsunamis -”Figure 4.4(3)-2 Description of the mechanism of occurrence of a tsunami
Source: Susaki City, Kochi Prefecture, “Our Town and the Nankai Earthquake and Tsunamis- Let’s Learn about Tsunamis, and Protect against Tsunamis -”43
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Figure 4.4(3)-3 Section for children to investigate the history of disasters
in communities by themselves
Source: Susaki City, Kochi Prefecture, “Our Town and the Nankai Earthquake and Tsunamis- Let’s Learn about Tsunamis, and Protect against Tsunamis -”44
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Guideline for Development and Utilization of Tsunami Disaster Management Map(4) Drawing up evacuation plans
Information shown on tsunami disaster management maps, such as inundation sites,
inundation depths, could be used to investigate evacuation routes and evacuation sites.
In drawing up evacuation plans, the planner should consider the damage of theearthquake. For example, the planner should not select evacuation routes along which
there are buildings in danger of collapsing. Simplified examples are shown below.
<Example: Selecting evacuation site from Town A>

School B

School C

Town A
School D
Inundation area

CandidateOutside inundation area?

Distance

Judgment

School B

No. Inside the area

Near

N.G.

School C

Yes. Outside the area

Near

Priority evacuation site

School D

Yes. Outside the area

Far

N.G.

School C is chosen as the evacuation site

Figure 4.4(4)-1 Utilizing Disaster Management Map for selecting evacuation site
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 200445
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Guideline for Development and Utilization of Tsunami Disaster Management Map<Example: Selecting evacuation site depending on time allowance>

School D
Building B
Community A
School E

10 minutes

Hill C
30 minutes
20 minutes
40 minutes
Inundation areas

Time allowance

CandidateOutside inundation area?

Distance

Almost no time

Building B

No. Inside the area

Very near

Not much time

Hill C

No. Inside the area

Near

Sufficient time

School D

Yes. Outside the area

Rather far

Sufficient time

School E

Yes. Outside the area

Far

When there is little time to evacuate, Building B and Hill C
should be selected as the evacuation site

Figure 4.4(4)-2 Utilizing Disaster Management Map for selecting evacuation site
depending on time allowance
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

Photo 4.4(4)- 1 Evacuation tower

Photo 4.4(4)-2 Evacuation tower

in the Shima City, Mie Prefecturein the Taiki Town, Mie Prefecture

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Guideline for Development and Utilization of Tsunami Disaster Management Map(5) IT-based tsunami disaster simulation(The Port and Airport Research Institute, Japan and National Institute for Land andInfrastructure Management of MLIT, Japan)
An information technology (IT) based tsunami simulation can produce detailed imagesof tsunami disasters. Good visualization of numerical simulation results provides good
images of tsunami. In particular, visual technology (such as movies) can be used todemonstrate the dynamic features of tsunami: tsunami destruction, interaction oftsunami with buildings and structures and others. The simulation results in an area
where viewers live, moreover, promote understanding of what can happen in areas hit
by tsunamis, leading to the establishment of suitable structural and non-structural
measures. Investigation of successful evacuation is also conducted on the IT-based
simulation. Figure 4.4(5)-1 is an example of an IT-based tsunami simulation to indicate
tsunami features, and shows snapshots from a movie showing tsunami inundation in acoastal city. The tsunami flows on roads and a river because buildings and structures
are considered in the simulation as obstacles to interrupt tsunami propagation.
Tsunami fluid velocities on the roads are also estimated in such simulations. Figure
4.4(5)-2 shows snapshots of tsunami disaster simulation results. Red bars in the figuresindicate tsunami damage to buildings, and the damage expands with time. The use of athree-dimensional numerical model can provide estimation of tsunami wave pressure
and accurate fluid velocity. Figure 4.4(5)-3 shows a numerical simulation of theevacuation process under various conditions.

Figure 4.4(5)-1 Snapshots of a tsunami inundation movie

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Figure 4.4(5)-2 Snapshots of tsunami disaster simulation of Dynamic Hazard Map

Figure 4.4(5)-3 Snapshot of evacuation simulation of Interactive Evacuation Simulator

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Guideline for Development and Utilization of Tsunami Disaster Management Map(6) Investigating evacuation and rescue methods (during disasters)
During disasters, appropriate evacuation of residents (by specifying evacuation routes
and evacuation sites) can be supported by judging the scale of the disaster, comparing
the scale with those shown in tsunami disaster management maps, and revising thepreliminary disaster prevention plans. Special care must be taken when the actual
external force is different from those used to prepare the maps.

EvacuationroutesLive camera
TsunamiRoute A

Evacuation site

Disaster management
map
Route B

Aware ofevacuation routes•Checking inundation areas•Checking the damages of facilities

Other information

Road B has been blocked
by collapsed building

Update information
on disaster management map

Aware ofblocked road

Informing residents to use Road A for evacuation

Figure 4.4(6) Utilization of disaster management map for evacuation directives
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Tsunami and Storm Surge Hazard Map Manual”, 2004

(7) Tsunami warning and evacuation guidance signboards(Yuki town, Tokushima Prefecture)
Installing tsunami warning signboards is effective for people to understand tsunami
risks. And installing evacuation guidance signboards is useful for people to evacuate
when a tsunami attacks. These signboards should be installed in coordination withtsunami disaster management maps, and their design should be standardized in aregion.

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Table 4.4(7)-1 Signboards for each purpose
PurposeFunction

Signboard to show

DesignWarning of tsunamis

tsunami risks

Signboard to show

Evacuation guidance

evacuation sites(Information on
evacuation sites)

Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

①Warningof tsunamis②Evacuation
guidance(direction)③Evacuation④Evacuation⑤Evacuation

guidance(site)

guidance

guidance(building)

Evacuation
area
Evacuation
route

Inundation
prediction
area

Evacuationroute

Evacuationbuilding
Hill
Evacuation area
to buildings
Coastline
Sea

Figure 4.4(7)-1 Installation locations of signboards
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

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CAUTIONCAUTIONTSUNAMI!
RISK AREATSUNAMI!
2 m ABOVE

Figure 4.4(7)-2 Example of a signboard for tsunami warning
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

Marking past tsunami height with tape is also effective for residents to understandtsunami risks visually (Photo 4.4(7)).

Photo 4.4(7) Marking historical tsunami height with tape
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan, “Disasterprevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

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Guideline for Development and Utilization of Tsunami Disaster Management Map(8) Tsunami study meeting in conjunction with other events(Yuki town, Tokushima Prefecture)
It is effective to hold a tsunami study meeting in conjunction with other events. Yuki
town held tsunami study meeting in conjunction with a fitness seminar. The effort of
Yuki town is an effective way to diffuse knowledge of tsunami disaster.
Since many residents in Yuki town tripped and fell when they participated in
evacuation drill, one community group organized an event consisting of a tsunami study
meeting and a fitness seminar in January 2005. The event started with the screening ofa video of Asian tsunami. The participants recognized the horror of tsunami andrecognized the need to be prepared for such disasters. Then, participants did a series of
exercises.

Photo 4.4(8) tsunami disaster study meeting and fitness seminar
Source: Cabinet Office, Ministry of Agriculture, Forestry and Fisheries and MLIT, Japan,“Disaster prevention for a tsunami and storm surge-Example of preparation and utilization of tsunami and storm surge hazard map-”, 2005

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Appendix-1. Examples of Tsunami Disaster Management Map¾ Hawaii Hazard
http://www5.hawaii.gov/tsunami/¾ USA (San Francisco and San Mateo counties)
http://www.abag.ca.gov/bayarea/eqmaps/tsunami/¾ USA(Crescent City Region)
http://www.humboldt.edu/~geology/earthquakes/rctwg/toc.html¾ USA(Oregon)
http://www.coastalatlas.net/learn/topics/hazards/tsunami/index.asp

Tsunami Information
9 Pacific Tsunami Warning Center, National Oceanic and Atmospheric
Administration(NOAA)
http://www.prh.noaa.gov/ptwc/
9 West and Alaska Tsunami Warning Center, National Oceanic and Atmospheric
Administration(NOAA)
http://wcatwc.arh.noaa.gov/

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Appendix-2. Characteristics of Tsunami
A tsunami is a series of ocean waves generated by sea surface displacement which is
produced by an earthquake, volcanic eruption, landside and others except for
meteorological triggers. The tsunami can travel over the ocean easily and strike coastal
areas. When the tsunami hit coastal areas, the height of tsunami is sometimes a few
meters or more. Characteristics of tsunami depend highly on bathymetry andtopography.
(1) Generation of tsunami
A tsunami is a series of ocean waves generated by sea surface displacement which ismainly produced by earthquake-induced sea floor displacement. Other triggers of thetsunami-generated sea surface displacement are a volcanic eruption, massive sedimentinflow induced by a landside, falling of a meteor and other impacts except for
meteorological triggers.
When an earthquake occurs under the sea or in a coastal area, parts of the sea floor areraised and subsided in a wide area depending on the fault mechanism of the earthquake(See Figure A2.1 which indicates tsunami generation caused by deformation of sea floor).
The deformation creates a similar displacement on the sea surface above the sea floor,
since the sea water depth, for example the mean water depth is 4,000 m in the Pacific
Ocean, is much less than a horizontal scale of the displaced area which could reachsome hundred kilometers, and the displacement is in an extremely-wide area of
thousands square kilometers or more, resulting in less horizontal movement of sea
above the displaced sea floor*). The sea surface displacement is an initial form oftsunami. The height of the displacement is, in general, a few meters or less in the initialform.
*) The propagation speed of tsunami is approximately 0.2 km/s in an ocean of 4000

through 5000 m deep, and the propagation speed of sea bottom deformation is a few
km/s depending on the earthquake’s rupture speed of 2 to 3 km/s. Less sea water volume
can, therefore, move horizontally resulting in the sudden displacement of sea surface
generated.
Tsunami

Plate

Plate

Subduction zone in a plate boundary

Sudden sea floor displacement
by earthquake

Figure A2.1 Tsunami generation mechanism

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Guideline for Development and Utilization of Tsunami Disaster Management Map(2) Propagation of tsunami
The tsunami can travel over the ocean easily, since the energy of tsunami is diminishedless through propagation like wind waves. Depending on the initial form of tsunami, thewave-length of tsunami is extremely longer than sea waves induced by winds, which isseveral tens of kilometers and more in general. The resultant wave frequency of such alob wave becomes low. Since fluctuations with lower frequency are less diminished, thetsunami can propagate over a long distance easily. For example, the 1960 Chilean
Tsunami was generated near the Chilean coast in the South America, and traveled overthe Pacific Ocean resulting in hits on the Hawaiian and Japanese coasts. The 2004
Indian Ocean Tsunami generated by the earthquake off Sumatra Island could travel tothe east coast of the Africa Continent.
The propagation speed of tsunami depends on the water depth, and is calculated by thefollowing equation:
c=

(1)

gd

in whichc (m/s): Propagation speed of tsunamid (m):

Water depthg (m/s2) Gravitational acceleration (=9.8m/s2)
The tsunami comes earlier in the area which has wide-spreading deeper sea in its front.
In shallow areas with a comparable water depth to the tsunami height, the propagation
speed is affected by the tsunami height, and calculated by the following equation:c=(2)g ( d + η)in whichc (m/s): Propagation speed of tsunamid (m):

Water depthη (m):

Water surface elevation by the tsunami

g (m/s2): Gravitational acceleration (=9.8m/s2).
(3) Distant tsunami and local tsunami
The tsunami can strike coasts which are fairly far from the area where the tsunami is
generated, since the tsunami can travel long distances. Such a tsunami is called“Distant Tsunami” or “Teletsunami.” On the other hand, the tsunami that is generated
near a coast hits the coast soon after the earthquake triggering the tsunami. Such atsunami is called “Local Tsunami.”

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In mitigation of tsunami disasters, there are some things to be considered against the
distant tsunami and local tsunami, respectively. For instance, an international early
warning system is important for the distant tsunami, because the earthquake motion
far away from the epicenter cannot be detected by people even though a tsunami may beheaded in their direction. For the local tsunami, a national early warning system isimportant, because the tsunami hits the nearby coasts quickly after the earthquake,and “evacuation to high places as quickly as possible after the tremors stop is essential.”
Tsunami reduction measures could be also effective in reducing the needed time for
evacuation.
(4) Flooding tsunami or receding tsunami
The tsunami does not always start as a receding wave. According to location andtsunami generation condition, a flooding tsunami can come first at some areas. In
Figure A2.1, the retreated tsunami comes first in the left-hand side of the figure, andthe flooding tsunami goes to the right-hand side. In fact, the first wave of the 2004
Indian Ocean Tsunami struck the coasts of Thailand and Indonesia as a receding wave,
and hit the coasts of India and Sri Lanka as a flooding wave. The tsunami, therefore,
propagated to the east side as the flooding wave and to the west side as the recedingwave.
(5) Numbers of tsunami striking
The number of tsunami striking a coast is generally not limited to one. The tsunami
strikes as a series of waves, since tsunami are diffracted by islands or others andreflected by other shores. The first tsunami waves are sometimes the largest in theseries, but not always; the second, third, or latter waves are sometimes the largest,
depending on the location and horizontal scale of initial tsunami form.
(6) Enlargement of tsunami
Tsunami height is a few meters or less in offshore areas whereas the wavelength
exceeds several tens of kilometers. The tsunami is, therefore, inconspicuous to a ship on
the deep sea. The tsunami, however, enlarges its height and shortens its wave-length as
it approaches to shallow water. The tsunami height, which is vertical length from thetsunami wave crest to the sea surface before the tsunami arrival, can reach 10 m or
more depending on local bathymetry and topography.

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Tsunami arrival

Tsunami height

Tsunami wave height

Water surface
elevation
TsunamiEstimated astronomical tide
Mean sea level

Time

Figure A2.2 Tsunami height and tsunami wave height
Changing tsunami wave height, which is different from the tsunami height and is awave height that is vertical length from a wave crest to trough, is roughly estimated by
the following Green’s Law which is derived from conservation of tsunami energy:⎛d ⎞H 2 = H 1 ⎜⎜ 1 ⎟⎟⎝ d2 ⎠

1/ 4(3)

in which
H1:

Wave height in deep water depth

H2:

Wave height in shallow water depthd1:

Water depth in the deep water aread2:

Water depth in the shallow water area

Using the above equation, for instance, the tsunami height in shallow water of 10 m is
1.8 times that in deep water of 100 m.
In a V-shape basin, an incident tsunami is reflected from the shores of both sides of thebasin and is concentrated in the innermost section of the basin, resulting in generationof higher tsunami than the incident tsunami.
The tip of a cape is also a dangerous area in which tsunami height is increased, since
the tsunami energy is concentrated there due to wave refraction as shown in Fig A2.3.
The wave refraction provides the change of tsunami propagation direction in the same
way as lights refracted by an optical lens. The direction change results in the reductionof the width between adjacent wave rays, and then the wave height between theadjacent wave rays increased to conserve wave energy between the rays. A similar
phenomenon appears around a shoal under the sea.

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Wave ray of tsunami

Equivalent
depth line

w1

w2
Reduction of width:
W2 < W1

Cape

Increase of tsunami height

Figure A2.3 Increase of tsunami height around the tip of a cape(7) Runup of tsunami
The tsunamis do not only inundate low-lying coastal areas but runup hill surface. For
instance, the 2004 Indian Ocean Tsunami struck the western coast of the Sumatra
Island with a height of approximately 10 m and then climbed hill slopes until reaching
the level of 30 m above ground.
River sides are also vulnerable against tsunamis because tsunamis can run up rivers
easily. For instance, the tsunami of the 1993 Hokkaido Nansei-Oki Earthquake(Okushiri Tsunami) climbed the Okushiri River in the Okushiri Island, resulting in theinundation of an elementary school beside the river.
(8) Fluid velocity of tsunami flooding on the ground
Fluid velocity of tsunami flooding on the ground depends highly on the topography andarrangement of structures including houses. According to geographical conditions andtsunami conditions, the fluid velocity on the ground could be twice as fast as tsunami
propagation speed estimated by Eq. (2).
(9) Disasters due to tsunamis
A tsunami causes the follows various types of damage:・ Inundation **)・ Destruction of houses ***), roads, bridges, port and harbor facilities and otherstructures (Photo A2.1)
・ Driftage of debris, timber, cars (Photo A2.2), containers, vessels +)(Photo A2.3,
A2.4), and others++)(Photo A2.5, A2.6)
・ Spreading oil and hazardous material leaked from storage tanks and pipes which
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are damaged by the earthquake and tsunami, resulting in fires
・ Erosion and deposition of coastal areas (Photo A2.7, A2.8)
・ Others
Moreover, many human beings are killed or injured. Socio-economy and environment
are also affected.

Photo A2.1 City Destruction in Indonesia Photo A2.2 Destruction of car in Thailand
by the 2004 Indian Ocean Tsunami
by the 2004 Indian Ocean Tsunami

Photo A2.3 Driftage of fishing boat
in Indonesia by the 2004 Indian
Ocean Tsunami

Photo A2.4 Driftage of power generation
ship Indian in Indonesia by the 2004
Indian Ocean Tsunami

Photo A2.5 Damage to train in Sri Lanka
by the 2004 Indian Ocean Tsunami

Photo A2.6 Driftage of empty oil tanks inIndonesia by the 2004 Indian Ocean
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Before the tsunami

After the tsunami
Photo A2.7 Erosion under a rail way by
the 2004 Indian Ocean Tsunami

Photo A2.8 Erosion in Indonesia by the
Indian Ocean Tsunami2004**) In Banda Aceh, the northern city of Sumatra Island, the 2004 Indian Ocean Tsunami

inundated the coastal area 4 to 5 km from the coast line; in particular, the low-lying
area 2 to 3 km from the coastal line suffered devastating damage as most homes werecompletely destroyed.
***) Shuto (1993) summarized the degree of tsunami damage by tsunami height from

historical tsunami damages in the world as follows: Wooden houses are destroyed by 2
m inundation depth, and partially destroyed by 1m and more inundation depth. For
stone-built houses, records show that during the 1960 Chilean Tsunami a stone-built
house in Japan survived the tsunami of 2.9 m inundation depth. RC Buildings weredestroyed in Hawaii by the 1946 Aleutian Tsunami of 5 m inundation depth.
+) In the 1983 Nihonkai Chubu Earthquake Tsunami (Sea of Japan Tsunami), damage tofishing boats in ports as caused by the tsunami of 1 m in height.
++) The 2004 Indian Ocean Tsunami drifted empty oil storage tanks of 11 m in heightand 17 m in diameter in the northern Sumatra Island and swept away train passenger
cargoes in Sri Lanka.
(10) Tsunami-prone areas
Tsunami-prone areas in the world are along the most active seismic zone surrounding

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the Pacific Ocean as well as the eastern edge of the Indian Ocean. The seismic zone in
the Pacific Ocean is called the Circum-Pacific seismic belt and the “Ring of Fire.” Many
earthquakes there have generated tsunamis.
Tsunami vulnerable areas are locally low-lying coastal areas and river side areas near
the mouth. Even in areas where tsunamis will strike, however, areas with high altitude
and areas sufficiently protected by structures are less vulnerable to tsunami disasters
because tsunami inundation does not easily occur in such areas.

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