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4-3. Supporting HFA Implementation in the AsianRegion4-3-1. Disseminating the Tools and Methods Used in
Hazard Mapping to Establish Early Warning andDisaster Management Systems
The enhancement of early warning systems in the countries of Asia is one of thepriorities for action stipulated in the Hyogo Framework for Action for 2005-2015 (HFA).
To ensure the implementation of these priorities, the HFA asks regional organizations to
support the establishment of regional early warning mechanisms and to help develop theearly warning capabilities of each country.
In the wake of the staggering devastation wreaked by the Indian Ocean Tsunami at theend of 2004, the strengthening of early warning systems was identified as a priority area
into which assistance needs to be channeled. The inadequacy of early warning systems wasmade further evident by the damage caused by Cyclone Nargis, which hit Myanmar on 2-3
May 2008. There is strong and growing demand for assistance to be provided to theseareas.
In the meantime, Bangladesh was heavily impacted by Cyclone Sidr on 15 November
2007. This cyclone was estimated to be of a scale equivalent to or larger than those thatstruck Bangladesh in 1970 and 1991, both of which caused an enormous amount of damage.
However, the damage caused by cyclone Sidr was considerably less than that caused bythose earlier cyclones. This is in part attributed to the efforts made by Bangladesh toenhance its early warning system, including efforts to construct cyclone shelters and efforts
after 1991 in particular to raise people’s awareness of cyclone risks.
To establish effective early warning and disaster management systems, it is necessary toincrease risk awareness among local communities and to disseminate knowledge about
disaster management in advance, thus ensuring that residents will take the appropriate
efforts to evacuate when presented with early warnings. Community-based hazard mapping
is an effective tool for this purpose. ADRC has therefore conducted workshops and otheractivities to promote risk communication using hazard-mapping activities developed inJapan, so as to contribute to the development and dissemination of guidelines forestablishing appropriate early warning and disaster management systems.

(1) Formulation of Guidelines for Indonesia
1㧕 Recent Efforts to Establish Early Warning and Disaster Management Systems inIndonesia
In Indonesia, there has been a growing recognition of the need to improve the country's
disaster management systems, especially in the aftermath of the devastating Indian Ocean
Tsunami of 2004. The establishment of a people-centered early warning system isconsidered to be one of the most urgent issues to be addressed, especially given the recent
series of disasters in that country, which have included a tsunami in July 2006, volcanic
eruptions, landslides, and flash floods.
Article 44 of the Disaster Management Law of Indonesia, which was enacted at the endof March 2007, explicitly states that early warnings must be issued by agencies
responsible for disaster management when a disaster threat is identified. Moreover,
Article 46 of that law specifies that the early warning process is to consist of (a) the
observation of disaster signs, (b) the analysis of observation results, (c) decision-making
by the authorities, (d) the distribution of disaster warnings to society at large, and (e)actions taken by individuals. Early warnings that include evacuation instructions are a key
factor in ensuring a successful disaster response. However, the agencies responsible for
issuing early warnings are not clearly identified in the law. Thus, improving the early
warning system must include the clear identification the agencies that are responsible for
issuing warnings.

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2㧕 Assistance with Efforts in Indonesia
ADRC has conducted activities to enhance community-level disaster risk management
through community-based hazard mapping activities aimed at helping to improve the early
warning and disaster management system in Indonesia. These activities are described
below.
Ԙ Preparation of Leaflets for Community-Based Hazard Mapping
To launch its activities, ADRC started by preparing a leaflet entitled "Town-Watching forDisaster Reduction: Community-Based Hazard Mapping as an Effective Tool for Raising
Public Awareness." Based on the Japanese experience, this leaflet was translated into
Indonesian for local distribution. A brief summary of its contents are shown in Table
4-3-1-1.
Town-Watching for Disaster Reduction: Community-based Hazard Mapping as an Effective Tool for
Raising Public Awareness

TopicsFront Page: Introduction
Importance of bridging the risk
perception gap

Brief Summary
There is a disparity between actual risks and those recognized
by individuals, and it is vital to close this gap to reduce thenegative impact of disasters.

Limitations of hazard maps

Mere dissemination of hazard maps by governments to local
residents is usually an inadequate means of raising disasterawareness.

What is community-based
hazard mapping?

Three key objectives of community-based hazard mapping1) To involve local residents in the development of hazard
maps for their community.
2) To have the opinions of local residents reflected in policies
developed by their local government.
3) To foster common understanding of risks among local
residents, government officials, and experts.

Page 2: Flow of Town-Watching & Hazard Mapping
Town-watching for disaster
Explanation of the activity flow in town-watching (fieldsurveys) and hazard mapping.
reduction
1. Relevant lectures (mechanisms of natural hazards, historicalevents, causes of local vulnerabilities, countermeasures, etc.).
2. Walking around the town to identify and study what aspectsof the community would serve as advantages/disadvantages inan emergency.
3. Mapping based on field observations and assembled
information.
4. Discussion of problems identified, and consideration of
possible solutions for effective disaster reduction.

Pages 3-4: Good Practices in Town-watching for Disaster Reduction
Case 1: Town-watching for earthquakes and tsunamis in Japan
Background
Mie Prefecture, located in the southern central part of Japan

Implementation of
town-watching

Follow-up on town-watching

and facing the Pacific Ocean, has a history of frequent major
earthquakes and tsunamis.
In the local districts of Owase City in Mie Prefecture,
town-watching was conducted over the course of threeworkshops.
First workshop: Field survey
Second workshop: Mapping
Third workshop: Discussion of vulnerabilities, possible
countermeasures, priorities, etc.
Installation of metal plates on the streets, allowing themeasurement of tsunami water levels in the street.

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Case 2: Town-watching for floods in Vietnam
BackgroundCentral Vietnam is mountainous and suffers many flash floods
Implementation of
town-watching
Follow-up on training course

caused by typhoons and monsoon rains.
Town-watching was implemented, and hand-drawn base maps
were used for the "Training of Trainers" (TOT). The targetedarea was rural and sparsely inhabited.
This training course was conducted as a "Training of Trainers"(TOT), primarily targeting local officials from flood-prone
communities, districts, and provinces. Those trainees were
expected to become trainers upon returning to their local
communities.

Page 4: Summary of Town-watching for Disaster Reduction
The major merits of town-watching are that people are better
able to:1) Develop a concrete image of disaster reduction activities.
2) Autonomously identify problems in their own communities.
3) Share opinions derived from various viewpoints.
4) Build confidence within the local community throughface-to-face discussions.
5) Reach a reasonable social consensus.

Table 4-3-1-1 Brief summary of the contents of the translated leafletԙ Development of a Basic Manual for Community-Based Hazard Mapping
A basic manual entitled “Community-Based Workshops for Disaster Reduction Using the
Town-Watching Method: Raising Awareness and Capacities of Communities” wasdeveloped in English based on past ADRC activities. Intended to serve as a source ofreference for the practitioners of community activities, it includes specific procedures andinformation on conducting workshops, including information on the overall workshop flow,
workshop organization, the meaning of disaster reduction, and resources practitioners canuse in developing workshop content.
TopicsIntroduction

Brief Summary of the ContentsCommunity participation in the creation of community-based
hazard maps helps residents learn about safe evacuation routes
and sites in their communities and ensures that local knowledge
is used to create the best disaster management plans possible.

I. Workshop Process
II. Before Holding a Workshop

Flow of activities
Notes for workshop facilitators
Event preparation (venue, documents, materials??)

III. Outline of a Community-Based Workshop for Disaster Reduction
Workshop purpose
1. Explanation of the purpose of• Know the risks in the community and prepare for future
the workshop
disasters• Create an evacuation plan for natural disasters at thecommunity level• Disseminate what you have noticed and learned in theworkshop to the community at large, raise awareness, andenhance the local capacity for disaster reduction under local
leadership

2. What is disaster reduction?
2-1. Understand the larger pictureof disaster reduction based oneach disaster phase2-2. Importance of knowing risks
in your community

Three phases of a disaster:• Emergency response• Relief• Recovery and reconstruction
Utilization of hazard maps

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Listening to survivors' stories about past disaster experiences

2-3. Learning from past disaster
experiences
3. Town-Watching: Let’s Make aCommunity-Based Hazard Map!
3-1. How to create acommunity-based hazard map(1) Preparation of materials(2) Division into groups and assignment of roles (leader, notetaker, etc.)(3) Field surveys by group(4) Mapping

4. Group discussion
4-1. Create evacuation plans(1) Think about when to evacuate, which routes to take, what totake with you, and what to do before you leave.
(2) Think about suitable sites for emergency evacuation.
(3) Think about evacuation shelters.
(4) Discuss an emergency evacuation plan for tourists.
(OPTIONAL)

4-2. Think about how to improve
problems spots in community (and
who can implement those
improvements)

Summarization of problems, solutions, and responsibilities foraction in a matrix format.

4-3. Group presentation
5. Wrap-up and application

Sharing of a wide-variety of opinions(1) Workshop wrap-up(2) Think about how to apply the information learned andworkshop outcomes in your community. Develop an action plan
Sample advice

IV. Comments & Advice from a
Facilitator or Resources
SummaryThis manual does not suggest that the activities end with thecreation of a hazard map, but rather suggests that theparticipating residents take a leadership role in promoting local
voluntary activities for disaster preparedness andprevention/mitigation, and the development of local disaster
reduction capacities.

Table 4-3-1-2 Brief summary of the Basic Manual for Community-Based Hazard MappingԚ Training Program for Leaders
0CVKQPCN2TQXKPEG-CDRCVGP FKUVTKEV -GEJCOCVCP EQWPV[ &GUC XKNNCIG &WUWP TWTCNEQOOWPKV[ #FOKPKUVTCVKQP49 DNQEM 
46 PGKIJDQTJQQF#WVQPQO[Fig. 4-3-1-1 Local Administrative Structure in Indonesia
Fig. 4-3-1-1 shows the local administrative structure in Indonesia. The desa (village
consisting of around 1,000-3,000 households) and dusun (rural community consisting ofaround 100-200 households) are suitably sized for conducting community activities.
Therefore, the first activity we conducted was a leader training program for the heads ofthe desa and dusun. The leaders' awareness of and positive attitude toward conducting
disaster reduction activities are a driving force in promoting a community’s disastermanagement activities.

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Fig. 4-3-1-2 Hazard Mapping Activities at the Leaders’ Training
The training program included lectures on basic information about disasters and disasterrisk reduction, as well as practical exercises on community-based hazard mapping in amodel area. These exercises will help participants conduct similar activities in their own
communities later.
ԛ Community Workshop
To select a target community for conducting the community workshop, we evaluated theleaders that participated in the leader training based on their active involvement in the
training activities and their demonstration of a strong interest in promoting community
activities for disaster reduction. A leader was selected and a community workshop was
conducted in that leader's village.
During the workshop, the participants learned basic knowledge about disaster reduction
and reviewed the ways their areas could be improved to facilitate safe evacuation andreduce risks using town watching or field survey activities. Hazard maps of theparticipants' areas were developed based on observations made during the field survey, andevacuation sites and routes were identified through a discussion among workshop
participants, as shown in Fig. 4-3-1-4.
The results of these activities are expected to provide a concrete point of reference for
the BNPB (Indonesia's national disaster management agency) to expand the activities into
other areas.

Fig. 4-3-1-3 Hazard mapping activities during the community workshop

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Fig. 4-3-1-4 Hazard maps developed during the community workshop
Ԝ Challenges for the Future
A tsunami early warning system was developed after the devastating Indian Ocean
Tsunami. Under that system, observational data and data acquired from meteorologicalagencies is immediately and promptly transmitted to the agencies responsible for issuing
early warnings at the local government level. Also, sirens have been installed in the coastal
areas with the highest tsunami risk. Meanwhile, improvements are still under way in terms
of preparing evacuation sites and raising the disaster awareness of residents living in highrisk areas. Further efforts to promote activities aimed at achieving these purposes are
expected to be undertaken.
The early warning system for flash floods and sediment disasters is still insufficiently
developed. Currently, residents need to make their own judgments regarding evacuation
and risk reduction measures simply by observing the water level in local rivers and rainfall
amounts. The observation of rivers and rainfall, and the analysis of the observed findings
should be improved so that early warning messages can be delivered to residents. A more
effective observation and information transmittal system needs to be established, andefforts must be made to enhance the capacity of communities to make accurate weather
observations and to share early warning information with fellow residents in high risk
areas.

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4-3-2. Dissemination of a Model Program for Earthquake Risk
Reduction and Recovery Preparedness(1) Background
Asia is the most disaster prone region in the world. Many countries in the region are affectedby natural disasters of varying severity, including earthquakes, floods, landslides, mudslides,
tsunamis, and droughts. Two of the more recent major earthquakes in the ADRC member
countries were those that occurred in Muzafabad, Pakistan in 2005 and Sichuan, China in 2008.
The devastating effects of these disasters have hindered the overall development efforts ofcountries in the region. Governments and populations need to be aware of the risks facing them,and to take concrete actions to prepare for and mitigate the natural disasters that affect theirareas. Thus, greater attention must be paid by governments, bilateral and multilateral donor
communities, and other stakeholders to efforts aimed at identifying and reducing disaster risks
within local communities. It is important to disseminate disaster reduction information in Asia ina way that it can be relatively easily adapted to local conditions. Thus, as a part of its efforts topromote seismic resistance improvements that will help reduce earthquake damage, ADRC isworking to disseminate methods of promoting locally applicable seismic reinforcement
techniques.

(2) Identification of the Problem
The recent earthquakes in Pakistan and China were a wake-up call for the disasterstakeholders in the region, highlighting the need for well coordinated earthquake risk reduction
initiatives there. A lack of disaster awareness and the poor disaster response capacities of thenational governments and local communities resulted in significant damage in both of thesecountries. Most public buildings (such as schools, hospitals, and community centers) and privatehouses in these countries are highly vulnerable to earthquakes, and this resulted in a significant
number of deaths among school children and other vulnerable populations during these recent
earthquakes. Despite the devastating effects of earthquakes in South Asia, only limited efforts
have been taken to promote earthquake preparedness and to mitigate the risk of future disasters.
In addition, most of the post-disaster recovery initiatives are re-building risks because they arebased on inappropriate recovery planning efforts and programs. Findings from various
evaluations on earthquake recovery programs reaffirm these observations. There are significant
gaps in the disaster knowledge and policy expertise among recovery stakeholders in the region.

(3) Project Outline
The Hyogo Framework for Action (HFA) establishes as a priority for action the promotion ofseismic strengthening efforts, a specific disaster risk reduction measure that can reduce potential
vulnerabilities. In the major earthquakes that struck Sichuan, China and Central Java, thegreatest amount of damage was caused by the collapse of weak buildings. However, in manycases, those buildings are being reconstructed with the same weaknesses they had before, suchthat the disaster risk is only being reproduced. Given that the post-disaster reconstruction
process is the perfect opportunity to improve communities, the introduction of technologies thatare suitable for the society and culture of the disaster-stricken region is the most effective way to
overcome local vulnerabilities.
It is therefore important to demand disaster preparedness measures that are tailored to theactual conditions in local communities, while at the same time increasing awareness of theimportance of seismic resistance improvements that are effective in reducing earthquake damage.
Since the promotion of these specific efforts requires the development of an integrated responsethat includes systems, structures, and training programs, ADRC is promoting the use of Japaneseknowledge while introducing seismic reinforcement promotion methods that are adaptable tolocal environments.

(4) Implementation of Proposals and Problem Areas
Earthquake damage affects buildings built with the input of engineers, as well as those built
without such input. Buildings are damaged by floods and landslides, as well, but the greatest
damage is sustained when the building itself collapses. To reduce the human losses caused byearthquakes, efforts are being made to conduct education and outreach on the following issues.
1) Development and Dissemination of the Building Standard Act and Related Regulations. Theproblem with building standards in developing countries lies in the difficulty of creating
systems (of incentives and penalties) for promoting adherence to legal systems. This is anextremely challenging administrative issue that even posed a problem in Japan several yearsago.
2) Improving Building Construction Methods
Building construction requires a combination of people and materials. Good building
construction requires that both the people involved and materials used meet the required
construction standards. If local people can do good construction work using materials that areeasy to acquire locally, the damage caused by building collapses can be reduced for the entire
society.
In this context, good construction work means building structures that will sustain only
minor damage in an earthquake. Local communities have many years of local experience andlocal technologies. Considering that most future construction work is likely to be performedmuch as it has been in the past, using local technologies, it is important to realize thatproviding technical guidance that ignores these technologies is not going to result in theconstruction of strong buildings.
The problem often faced in local construction is a lack of engineering knowledge in aparticular area. For example, water contaminated with mud or debris is often used to mix themortar used in masonry construction. As a result, the mortar lacks the strength that it needs.
Also, it is not enough for rebar simply to be placed inside concrete. According to the local
standards formulated using the international standard such as British Standard, reinforced
concrete will not have the prescribed strength if the anchorage length of the rebar andconcrete covering thickness to the rebar are substandard. Workshops and seminars should beheld to ensure that local engineers are adequately aware of such information. Even if abuilding is designed based on local standards using locally attainable materials, it is importantto remember that only the careful management of quality in the construction process and theuse of appropriate construction processes will result in the creation of strong buildings thatare as earthquake resistant as they need to be.It is important that local construction workers have a certain minimum level of basic
knowledge, and that technology transfers focus on technologies that can be accepted and usedin good conscience over time to ensure the construction of strong buildings.
3) Improving Current ConditionsThe following improvements are currently under investigation.
Ԙ Engage in education and outreach by creating posters showing the minimum standards
that must be met by engineers and construction workers, in a format that is easy tounderstand.
ԙ Create simple guidelines tailored to local needs, as this is the first step in raisingawareness of the importance of quality management.
4) Approach to Guidelines
To ensure the effective dissemination of seismic-resistance construction methods, it isimportant to utilize the original full strength of existing construction methods and building
materials. The following items should be checked.
Ԙ Is the water being used to mix concrete or mortar contaminated with mud or debris?
ԙ When mixing concrete, are the right mixing proportions of water, cement, sand, andgravel being used?
Ԛ When mixing concrete, is the size of the aggregate appropriate? Does it contain any
foreign matter, such as mud, shells, or brick fragments?
ԛ Will the cement be exposed to the outdoors for long periods of time, where its quality
might be reduced by rain or water seepage?
Ԝ Is the appropriate concrete covering thickness to the rebar and anchorage length of therebar being used in the reinforced concrete?
ԝ Is there any oil or other contaminant on the surface of the rebar that might interfere with
its adhesion to the concrete?
Ԟ When assembling a structure using rebar, has an adequate binding been achieved between
the steel bars?

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ԟ Have the bricks (of a masonry structure) been laid so they are level and verticallystraight?

(5) Facilitate sharing and exchange of national and regional information, lessons andbest practice for Policy Feedback and advocacy
Perform joint ownership for experience or the lesson of the good practice between
the people concerned effectively and perform technical support effectively andperform the risk reduction to face the earthquake at the country level, and sharing theinformation of a lesson for the revival, practice, the information of the experience.
For main activity㧦Ԙ Carry out a workshop and a seminar for a policy decider and key person of the development,
and deepen the understanding about the important matter on the occasion of thedevelopment program at the country level.
ԙShare the lesson and the good practice that can convert in the other areas as the information.
ԚTo visit the site and perform the information exchange from Japanese knowledge into
local for the present improvement.
ԛPerform the pulling down test by using an existing building (a non-engineered building)forsuggesting a retrofitting method of the weakness at the time of the earthquake to theexisting building.

Fig.4-3-2-1 Technical Assistance at Work Shop in Nepal


Fig.4-3-2-2 Poor lapping of reinforced bar