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NEMA

ADRC

COMMUNITY PARTICIPATION IN DISASTER RISKMITIGATION: A COMPARATIVE STUDY OF MONGOLIA
AND JAPAN

FINAL REPORTOF THE VISITING RESEARCHER PROGRAM- YEAR 2011B

PREPARED BY:
Sodnom BAZARRAGCHAA
Research-engineer, Disaster Research Institute under NEMA of Mongolia
VISITING RESEARCHER (ADRC)

January to April 20122012 (FY2011B)(FY2011B)

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Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC member
countries.
The views expressed in the report do not necessarily reflect the views of the ADRC. The
boundaries and names shown and the designations used on the maps in the report
also do not imply official endorsement or acceptance by the ADRC.

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Table of Contents
Abbreviations and Acronyms ......................................................................................................................... 1
ACKNOWLEDGEMENT.................................................................................................................................... 2
ABSTRACT ....................................................................................................................................................... 3
INTRODUCTION .............................................................................................................................................. 4
CHAPTER 1. OVERVIEW OF DISASTER SITUATION IN THE WORLD, MONGOLIA AND JAPAN............ 7
1.1. Natural and human-made disasters trend in the world ........................................................................ 7
1.2. Overview of Disaster Situation in Mongolia .......................................................................................... 8
1.2.1. Disaster Management Framework in Mongolia .......................................................................... 11
1.3. Overview of Disaster Situation in Japan .............................................................................................. 12
1.3.1. Disaster Management Framework in Japan ................................................................................ 15
CHAPTER2.

COMMUNITY-BASEDDISASTERRISKMANAGEMENT:A

FRAMEWORKFORCOMMUNITY PARTICIPATION IN DISASTER RISK REDUCTION .............................................................. 17
2.1. Framework disaster risk management, and CBDRM .......................................................................... 17
2.1.1 Why the community based approaches to disaster mitigation? ............................................... 18
2.1.2. Key Points on the CBDRM, and participatory disaster risk reduction..................................... 20
2.2. Paradigm Shifts – From Relief and Response to Disaster Risk Management................................. 22
CHAPTER 3 ..................................................................................................................................................... 25
COMMUNITY PARTICIPATION IN DISASTER RISK REDUCTION IN MONGOLIA AND JAPAN ... 25
3.1.
3.1 Community Participation in Disaster Risk Reduction in Mongolia .................................................... 25
3.1.1 Recent Activities for Enhancing Community Capacity for Disaster Risk Reduction in
Mongolia .................................................................................................................................................... 27
3.1.2. Capacity Development and Raising Awareness of Communities ............................................ 28
3.2. Community Participation in Disaster Risk Reduction
Reduction in Japan ......................................................... 31
3.2.1 Recent Activities for Enhancing Community Capacity for Disaster Risk Reduction in Japan.................................................................................................................................................................... 32
3.2.2. Case studies in external on community participation in Japan ............................................... 38a) Themes in Iza! Kaeru Caravan disaster reduction activities:Non Profit Organization” ......... 38
Comparative Analysis of community participation in Japan & Mongolia ............................................... 43
CONCLUSION ................................................................................................................................................. 44
LESSONS LEARNED ..................................................................................................................................... 47
RECOMMENDATIONS FOR COMMUNITY PARTICIPATION ON DISASTER RISK REDUCTION IN
MONGOLIA ..................................................................................................................................................... 51
BIBLIOGRAPHY ............................................................................................................................................. 54
ENDNOTES ..................................................................................................................................................... 55
CASE STUDIES .............................................................................................................................................. 55

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Abbreviations and Acronyms
ADRC Asian Disaster Reduction Center
ADPC Asian Disaster Preparedness Center
CBDRM community-based disaster risk management
CBDRR community based disaster risk reduction
CBO community-based organization
CSO civil society organization
DP disaster preparedness
DRM disaster risk management
DRR disaster risk reduction
HFA Hyogo Framework for Action
ISDR UN International Strategy for Disaster Reduction
NGO non-governmental organization
OCHA UN Office for Coordination of Humanitarian Affairs
PTSD post-traumatic stress disorder
UN United Nations
VCA vulnerability and capacity assessment/analysis
UNISDR United Nations International Strategy for Disaster Reduction
NEMA National Emergency Management Agency
ISDR International Strategy for Disaster Reduction
CBDMit community based disaster mitigation
IDDR international day for disaster reduction
UNDP United Nations Development Programme
APCSS Asia Pacific Center for Security Studies

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ACKNOWLEDGEMENTFirst of all I would like to express my gratitude to ADRC for selecting me in this program torepresent Mongolia as Visiting Researcher. I would like to pay my sincere gratitude to chief of National
Emergency Management Agency, Foreign Relation Division, and director of Disaster Research Instituteof Mongolia.

I would like to thank all the staff members of the ADRC for providing me kind cooperation

to conduct the successful research program. I would like to thank Mr. Kiyoshi Natori (Executive Director– ADRC) who guided me with his valuable wisdom, knowledge and experience on disaster management.
It would be my great pleasure and happiness to extend my sincere gratitude and respect to Ms. Miki
Kodama, Senior Researcher, and Ms. Shiomi, Researcher ADRC who always guided me on researchissues and given solutions to my problems instantly.
I deeply acknowledge the contribution of the officials from ADRC Mr. Ibaraki and Mr. Ono for
guiding me in a systematic and comprehensive way during my field visit outside Kobe and extending allout support for successful completion of the program. Also, I must extend my heartiest thanks toadministrative staff members of ADRC and Japanese Teacher Mr. Shoji Kawahara, for their valuable
information and prudent suggestions and evergreen energies spent for me in many ways during my stayin Japan.
Finally, I would like to express my gratitude to the Government of Japan, ADRC both its
management and fellow researchers for their whole hearted support and cooperation that has been
extended to me to make my stay comfortable and also to the Government of Mongolia for allowing me tobe benefited from practical experience in Japan. I am ever grateful to Ms. Tae Watanabe (Administrative
Manager), Ms. Fujinaka and Ms. Kawaguchi guided with the administrative matters and gave me aproper way to overcome all the administrative matters. I would also like to extend my thanks to JICA,
Hyogo, for offering some valuable session on comprehensive Disaster Management.

(Sodnom BAZARRAGCHAA)
Researcher and engineer
Disaster Research Institute under National Emergency
Management Agency of Mongolia

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ABSTRACT
Community participation has been recognized as the additional element in disastermanagement necessary to reverse the worldwide trend of exponential increase in disaster occurrence ofand loss from small- and medium-scale disasters, build a culture of safety, and ensure sustainable
development for all.
Actually comparison of a highly developed country like Japan and developing country Mongolia
is not rationale. However, from the point of severity and intensity of disasters, both the countries havebeen facing disasters.
In the recent years in Japan, “Community based disaster Management” has drawn people’s
attention in the field of disaster management. This is an idea that it is important not only to provide
support for developing countries, but also to provide support for the improvement of the ability of theirlocal communities to prevent disasters in order to reduce damages, of lives and property. For effective
disaster management, it is important that the Central Government, Local government, Public
corporations and private citizens must work out their roles appropriately. Especially in Japan, after theGreat Hanshin Awaji Earthquake, the role of local government and Local community has been
increasing. Such experience and knowledge of disaster mitigation action in Japan should be shared withother countries by taking into consideration of local conditions in each country.
This paper gives a brief orientation on the community-based disaster risk management process
can also meet the goals of development of new training tools to enhance the capacity of practitioners ofJapan, implementation of innovative programs to explore new dimensions in CBDRR practices, namely
community participation is able to improve the understanding of the sources of disaster risk for
Mongolia.
Conspicuously from research awareness and knowledge as most people (Mongolia) still lackthe proper knowledge, understanding/appreciation of disaster protection, thus, the need for it to bemainstreamed into national policies and initiatives.
Community awareness to recognize disaster prevention and mitigation by themselves isestablished in Mongolia. Also conspicuously from research awareness and knowledge as CBDRR tothem to need to continue the future research work.
In this step for getting more understanding CBDRR, we can get the outputs to transfer tocreate some kinds of educational material; for create some activities.
Additionally, case studies a wide array of policy areas, highlight broader issues of institutional
strengthening and local capacity building on different hazard types and with different stakeholders, suchas: Strengthening connections between local communities and local governments (El Salvador),
Risk-awareness program for schoolchildren and communities (Saijo city, Japan).
Key Words: community based disaster management, risk reduction, mitigation, community participation3

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INTRODUCTION"The local community is taken as the primary focus of attention (in disaster reduction) since thatis the common unit which is affected by disaster and, more importantly, responds to deal with the event."- Russell Dynes Whether a disaster is major or minor, of national or local proportion; it is the people atthe community or village level who suffer its adverse effects. They use coping and survival strategies toface and respond to the situation long before outside help from NGOs or the government arrives. They
are interested to protect themselves from the damage and harm.
Mortality and economic loss risk are increasing in absolute terms for all the principal hazards,
except for landslides, where the tendency appears to be stable1.
Each disaster has lasting effects, both to people and property. For instance, floods, fires,
tornadoes, a cyclone or typhoon (windstorm) and earthquakes are natural disaster that has affectedmany individuals and families every year in the world. Disaster preparedness is always vital in disastermanagement which can reduce the impacts of disasters.
Appropriate support in order to enhance governance for disaster risk reduction, forawareness-raising initiatives and for capacity-development measures at all levels, in order to improvethe disaster resilience of developing countries2.
According to the World Urbanization Prospects 2005, a current database from the United
Nations Department of Economic and Social Affairs, the total population will increase from 6.4 billion in2005 to 8.2 billion in 2030. Most of the expected population growth will be concentrated in the urban
agglomerations of the less developed countries. By 2007, for the first time in human history, more thanhalf the people in the world will be living in cities3.
Generally, the disaster risk management process (cycle) is composed of the following mainelements conflux Knowledge management (information programs and systems, public awarenesspolicy, education and training, research in disaster reduction)
Currently is not the survey “Community based disaster management”, “Community based
disaster risk management” relative to this title in Mongolia.
But ph.D. Д. Гомбосүрэн 4 , П. Цэдэв 5 the creature to reflect introduction of incipiencedevelopment also trend, updating, trendy of evolutional of disaster protective management system ofMongolia.
So I would like to propose to study public awareness and community based disastermanagement, since I have been conducting the related researches in terms of community role indisaster mitigation. Since the community rescues the people lot more than rescuers do, it is essential to1

Risk and poverty in a changing climate, 2009
HFA 2005-2015
3
The Contribution of the Surveying Profession to Disaster Risk Management, 20064
Д. Гомбосүрэн нар “Монгол Улсын иргэний хамгаалалт, 19995
П. Цэдэв “Монгол Улсад гамшгаас хамгаалах мэргэжилтэн бэлтгэх сургалтыг боловсронгуй болгох
зарим асуудал” диссертаци 2004 он
2

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improve the communities Disaster Education and understanding.
This study on “Community participation in disaster risk mitigation” could take a “shortcut” todevelopment and be able to meet the need on creating interactive activities on disaster prevention andresponse activities instead of the ordinary training or workshop on CBDRM’s activity; which should be
new practices and different styles of drill or exercise for different target groups such as general public orchildren in normal time.
Our Research focuses on Dissemination of Disaster Prevention Activities for communities byintroducing new activities for human resources development, particularly government officers, as
practitioners or facilitators, who have been served as the partners in the disaster prevention activities in
the normal time by the transfer of knowledge and technical know-how in the fields of “Learning with fun”
from Japanese side where has expertise and appropriate technology which are applicable to their local
community by concerning to each conditions and absorptive capacity.
Japan, as one of the world's natural disaster-stricken countries, has accumulated a fair amountof disaster reduction knowledge. In addition, Japan has provided emergency disaster aid for developing
countries and has encouraged the efforts to improve disaster reduction measures and the commitment
to disaster reduction in affected countries and areas.
Being a Visiting Researcher is a great opportunity for conducting research on disaster reduction.
This program let me get more wide vision by sharing of information and experiences with fellow ADRC
member will give me an opportunity to help develop a strategic approach to the promotion of safer
communities. The experiences I have had during my stay would be tremendously helpful.

Lessons

learned by individual learning as Visiting Researcher has been the best way to enhance capacity
building for strengthening NEMA’s staff as one of the Leader in the special field as shown in this paperon “Community participation in disaster risk mitigation”.
There are some interesting concepts to transfer knowledge on Disaster Prevention activities for
Mongolia Communities. It’s necessary to reduce disaster damage by start at persons who agree with thespirit of our "Think in Global but act in local” campaign to reduce disaster damage". In order to reducethe victims of natural disasters, So it’s the time for us, as one of the good opportunity to stay here in
Japan during “The Great Tohoku Tsunami had struck in the north part of Japan, and we are all realizedthat “we are all in risk; should be more aware of the unexpected giant disaster as it can be seen as in
March 11 earthquake, tsunami and the ongoing nuclear crisis immediately affected the number of thewhole Japanese now. By now, the small activity that I can do by my hands is about the Psychologicaland Moral support of the elderly groups who evacuees from the affected area and their livelihood as thesecondary affected which has been omitted.
The community, therefore, has lots of chance to lose if they do not address their own
vulnerabilities. It’s necessary to improve the local capacity on disaster prevention with the cooperation ofeach family, in local community, and related organizations in communities at the forefront or endeavor.
Specific Aims
The main objective of this study is to analyze some prevailing best practices of community
participation in disaster risk reduction in Japan and make recommendations appropriate for Mongolia.
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To study practices of community participation in disaster risk reduction in Mongolia and Japan. This will
enable communities to better understand their changing risk environment and thus become more
resilient through proactive risk reduction efforts
Gather knowledge and skills from the disaster management system in Japan especially the•participation community on disaster risk reduction in Japan•

Strengthening of community institutional mechanisms;•

Empowering community at risk particularly;•

To study the new skill of prevention activity for Mongolian community•

To recommend the appropriate practices of community participation in disaster preparedness
planning in Mongolia

Proposed Research Activities•

Study the global trend disaster risk reduction, CBDRR•

Study the community participation during disaster in Japan and Mongolia.

•

Learn basic ideas for preparing community through learning and training and drill in Japan.

•

Conduct Case studies on the behavior of the community in response to disaster in Japan andother countries.
Conduct study to adaptation in disaster situations and post disaster rehabilitation.

•

Required Data and Information and Research method:Among the research methodology is comparison and analyzing.
The main source of secondary data of my research•

In Mongolia: published and unpublished data and information available in the National
Emergency Management Agency & Published data from other ministries ,departments•

In Japan: ADRC Reference materials, JICA’s Training materials and published data fromdifferent agencies have been used for Research purpose.

Expected Results:
It is true that community participation in Japan is highly commendable. The best practices ofcommunity participation in disaster risk mitigation planning in Japan could be replicated in Mongolia.
The government and the local community both can be benefited by introducing the best practices ofJapan in the area of Disaster Risk Reduction.
After the completion of the research, research findings will be published in the journals. Seriesof seminars will also be organized to disseminate research results for wider audiences. In addition, theresults will be presented in disaster preparedness workshops at regional level.
The result of study will be useful for sharing knowledge, skills and techniques among Mongolia
communities; as a support tools for create new activities for public awareness on disaster prevention; as‘self-help’ villagers.

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CHAPTER 1. OVERVIEW OF DISASTER SITUATION IN THE WORLD, MONGOLIA AND JAPAN1.1. Natural and human-mademade disasters trend in the world
The first decade of the twenty-firsttwentycenturyy was a hallmark for natural and human-madehumandisasters. The world community continued to experience regional conflicts, terrorism, environmental
degradation, death, and economic losses. /Chart1//

Chart1 – Trends in occurrence and victims in the world6

Disasters will continue to happen and proper support, through a granting program, will benecessary to explore and bench mark best practices in Disaster risk reduction. Especially naturalndisasters around the world last year caused a record US$380
US$billion in economic losses. Almost
two-thirds
thirds of 2011’s exceptionally high costs are attributable to two disasters unrelated to climate andweather: the magnitude-9.0
9.0 earthquake and tsunami that hit Japan in March, and February’s
comparatively small but
ut unusually destructive magnitude-6.3
magnitude 6.3 quake in New Zealand. And the long-term
longrise in the costs of global disasters is probably due mainly to socio-economic
socio economic changes, such as
population growth and development in vulnerable regions 7 . That conclusion
clusion is backed
bacup by aforthcoming study supported by Munich Re by economists Fabian Barthel and Eric Neumayer at the
London School of Economics. Their analysis of events worldwide between 1990 and 2008 concludes
that “the accumulation of wealth in disaster-prone
disasterareas
as is and will always remain by far the mostimportant driver of future economic disaster damage”. 8 Any major weather event hitting densely
populated areas now causes huge losses because the value of the infrastructure has increased
tremendously, they note,, adding that if the 1926 Great Miami hurricane happened today, for example, itwould cause much more damage than it did at the time.

6

Annual Disaster Statistical Review 2010 – The numbers and trends
www/natur.com
8
F. Barthel and E. Neumayer Climatic Change;
Change in the press
7

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But attempts to attribute specific events to global warming are in their infancy9. “Disasters are atempting image for advocacy,
vocacy, but the science is just not there to support strong claims,” says Roger
Pielke Jr, a climate-policy
policy researcher at the University of Colorado in Boulder. “We cannot yet attributeincreasing dollar losses to human-caused
humanclimate change. Maybe we will one day, but not at present.”
1.2. Overview of Disaster Situation in Mongolia
Major disasters are drought, earthquakes, epidemics, famine, floods, forest fires, wind damage,snow damage (Dzud)
Also global warming is powerful inspiration in the climate, nature,
ature, clime of Mongolia. Because
huge inspiration the frequency meteorological hazards on natural hazards. /Chart
/
2-5/
4000
3500
3000
2500
2000
1500
1000
500
0

3548
2657

3072

2759

300
250

2976
2468

200
150
100
50
0

2006

2007

2008

2009

2010

2011

Chart2.Number.Number of occurred hazardous andChart3.Number.Number of the people lost their lives in theaccident

disasters
foreststeppe fire,
1807

cases ofavian
influenza,3dzud, 9flood, 147traffic train,
50

object fire,23238

earthquake, 58cases ofhuman anddiseases,119snow anddust
storms,121

unfortunate
loses oflives
caused byriver, lake
accidents,
494
acute
contagious
animaldiseases,
136

Chart4. Last 15 years we happened hazard
accidents

900 people
had been
infected

632.4/600
million
USD/trillionof tugrugs
damage tothecountries
economy227 fencesandenclosurescausing

1330
human
loss
38.1 million
ha ofsteppe fire

9.2 million
of livestock
perished

3891 gers
andhousesburnt

9.7 millionof hector offorest land
destroyed

Chart5.Incurred.Incurred losses

There is the tendency of increasing the toll of death in a result of disasters from year to year

These disasters cause huge number of damages to human life, their properties andenvironment and influence to the state social and economic sustainable development
negatively. Mongolia is classified as one of the developing countries in the World. Mongolia has 2.7
9

see Nature 477, 148–149; 20118

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million population and almost 60% of them living in Ulaanbaatar city /Chart6/, which makes them very
vulnerable to natural disasters such as earthquake. Around Ulaanbaatar, in comparison to western
Mongolia, the seismic activity is relatively low.
But A high seismic activity occurs in Songino-Sonsgolon area in western end of Ulaanbaatar
basin of city since 2005. This area, which could be one of most seismic active zone around Ulaanbaatar,
dramatically increases the seismic hazard of the capital of Mongolia where is concentrated about of 1/3of the Mongolia population and the majority of industries of the country. Responding to a complex
disaster such as
emergency

an 8+ earthquake will present challenging issues forresponse

system thatin all probability have not

NEMA and the Mongolian

been experienced

before.

Communications, emergency response and information assets will be required to function under themost demanding of situations. Information will be very uncertain. Traditional means of communications
may not exist and emergency response assets will be hampered by the earthquake.

Chart6. Population density of Mongolia

Mongolia has a population density of 1.5 people per square kilometer.
Historical statistics would suggest that Mongolia with great negative consequences being associatedwith various natural and human induced hazards.
In 2007 OCHA Regional office for Asia Pacific publishes a map showing the probability thatnatural hazard risk of Mongolia. (Chart 7) The map is based on data provided by: UN Cartographic
Section, Global Discovery, FAO, Smithsonian Institute, Pacific Disaster Center, UNISYS, Munich
Reinsurance

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Chart7. Natural hazard risks of Mongolia

The map earthquake intensity zones indicate where there is a 20 % probability that degrees ofintensity shown on the map will be exceeded in 50 years. Tropical storm intensity zones indicate where
there is a 10% probability of a storm of this intensity striking in the next 10 years.
The bar chart below shows the degree of exposure to natural hazards and the percentage ofarea affected. Tsunamis and storm surges are a threat to coastal regions, particularly gulfs, bays, andestuaries.

Flood hazard results from river floods and torrential rain. Drought is caused by major

deviations from the normal amounts, from precipitation. Frost hazard depends on elevation and latitude.
As well as a natural disaster is a natural phenomenon or phenomena occurred covering
relatively large territories and leading to human casualties or substantial damages to property andcausing thereby serious obstacles to smooth operation of the society. Identification of the natural
disaster is not only depends upon its intensity but much more upon its socio-economic and ecologicalconsequences.
In this view of point, the issue of natural disaster shall be considered in association with thesocial economic situation at the level of a given country’s development, the people’s life styles,
infrastructure development, etc. For example, the phenomenon of so called “Dzud” (severe winterconditions) when pastures are snow-drifted due to heavy snowfalls taken place in winter-spring seasonsis referred to the category of natural disaster only under the conditions of our country with its
transhumance cattle-breeding economy and would not be regarded as a natural disaster in any othercountries with the settled type of civilization. A strong earthquake occurred in a desert place without
human settlements is not disastrous for Mongolia whereas if it takes place in any other country with
densely populated areas it would cause heavy losses and casualties which occurs rather frequently.
Mongolia has 2.7 million population and almost 60% of them living in Ulaanbaatar city. Because
last 2 years Disaster Research Institute publishes a map showing the probability that hazard risk of
Ulaanbaatar city.

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Chart8. Risk map of Ulaanbaatar city (fire, flood, radiation accident, chemical accident, earthquake, influenza)

The map that multi- hazards intensity zones indicate where there is a tree district (7 index), one
district (6 index) probability that degrees of intensity shown on the map will be exceeded.
1.2.1. Disaster Management Framework in Mongolia
The Law on Disaster Protection was created in June 2003. In the Mongolian Constitution Article
6-(4) stipulates that the State regulates the economy of the country with a view to ensure economic
security of the nation, the development of all modes of production, and social development of the
population. There are laws on civil defense, air pollution, use of water resource, hydro-meteorology andenvironmental monitoring.
The National Emergency Management Agency’s main duties are to develop legislativeenvironment on disaster protection, to provide strategic management, to evaluate disaster risk andvulnerability, to implement activities on disaster prevention, disaster reduction, disaster preparedness inall levels, organizing search and rescue work, response, restore main infrastructures and rehabilitation,
strengthening capacity of national disaster protection, cooperation with foreign countries andinternational organizations in disaster protection field, monitoring laws and legislations, andimplementation policy on state reserve.

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Chart9. National Emergency Management Structure of Mongolia

NEMA is responsible for implementation of the State disaster protection policy and legislation,
as well as for the professional organization of nationwide
nat
activities.
Plan
In 2011 Mongolian government confirmed disaster protection policy and program.
program Now ouragencies consider revising disaster protection plan in the state level.

1.3. Overview of Disaster Situation in Japan
Japan has wide variety
ty of natural disasters. Also one of the countries affected unpredicted
events of natural disasters such as:asEarthquakes

Tsunamis

Volcanic Eruptions

Typhoons (July – October)

Heavy Monsoon Rains (May – July)

FloodsLandslidesSnow Avalanches
Japan is sincece 1950 many large scales Earthquake, Tsunami, and Typhoons struck the country,

which caused massive damage and great loss of economy. That kind of enormous disasters killed hugeamount of people. In fact the development of disaster counter measures has been
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development of sustainable disaster management system especially, advanced weather forecasting
system and disaster communication system.
a). The commonest disaster in Japan is Earthquake. Japan can have up to 5000 earthquakes
each year, which is about 10% out of the total occurred of the world.
The government also publishes a map showing the probability that each area of Japan will
experience tremors equivalent to a rating of Shindo Lower 6 or higher within the next 30 years. (At thislevel, furniture shifts and most people find it difficult to remain on their feet.)

Chart10. Probability of Shindo Lower 6 Tremors within the Next 30 Years(Source: Japan Seismic Hazard
Information Station (J-SHIS))

Map data showing predicted seismic activity is based on research data obtained by the
National Research Institute for Earth Science and Disaster Prevention. The map can be enlarged toshow detailed information for any location in Japan.
As well as publishes a map multi-hazard (flood, inland flood, high wave, tsunami, sediment,
volcano) showing the probability that each area of Japan.
As a result of Earthquakes, Tsunami can also develop to cause catastrophic damages to thecoastal belt of the country, which are large waves that crash up against the shore and can wash away
people, buildings, and bridges. For example recent EQ and Tsunami (2011, Tohoku Pacific Ocean
Earthquake)
The Great East Japan Earthquake occurred on March, 11, 2011 at 2:46 pm at a magnitude of 9.0
at a depth approximately 25 kilometer and tsunami hit along Sanriku offing, near the east coast of
Honshu, Japan. The magnitude of the main shock was the largest in Japan’s History. Either way it was
the strongest quake ever recorded in Japan. It has been followed by more than 150 powerfulaftershocks. Tohoku Pacific Ocean Earthquake followed by jet storm tsunami of 10 meters high waves
devastated the entire eastern Japan namely Fukushima prefecture, Iwate, Sendai, Soma city, Miyagi
prefecture.
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The confirmed death toll from the earthquake
earthquake and tsunami that battered Japan's northeast coastrose to 14,084 and Japan holds out little hope for 13,511 officially listed as missing10 Large areas of thecountryside remained surrounded by water and unreachable.
The government said 2,75,000 people
people have been evacuated to emergency shelters. Civil society
has emphasized the need for more community involvement through organizing community volunteers.
Meanwhile, community members of those affected areas have started working which will gear up therelief and rehabilitation activities of the earthquake and tsunami affected areas. The Great Hanshin
Awaji experience and other disaster related experiences had helped Japan to recover soon from thisgreat disaster and human catastrophe.
b). Volcanic eruptions
tions are the next dangerous disaster facing in Japan. There are 67 active
volcanoes in Japan which means 10% of the world’s total active volcanoes over in Japan. A volcanic
eruption can discharge ash and lava all over the surrounding areas including populated
popul
area too.
c). During the rainy season Typhoons are occurring in Japan. Severe storm may cause many
damages along with landslides and floods. Japan hits about 29 Typhoons in the year. Some recorded dueto the worst meteorological changes, which cause significant
significant damage and loss of the human life.
Namely to show on chart 11-13 of some statistic actual parameter.
16000
14000

Great East Japan
Earthquake

12000
10000
8000
6000
4000
2000
0
1990

1993

1996

1999

2002

2005

2008

2011

Chart12.. The number of deaths and missing persons
Chart11.. The number of deaths and missing persons inby type of disaster.(Source:disaster.(SourPrepared by the Cabinet

disasters

office based on date from the Fire and Disaster
Management Agency)

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Chart13.Amount.Amount of damage to facilities due to disasters.(source prepared by the Cabinet office based on data from
related ministries)

1.3.1. Disaster Management
ement Framework in Japan
In Japan, the disaster management system has been developed and strengthened following
the bitter experiences of large-scale
scale natural disasters and accidents.
Disaster Management of Japan is categorized into 3 levels including national,
nati
regional andmunicipal level. The significance of each level is detailed as follows:a) National Level:
The Prime Minister is the National Commander through the National Disaster Management Council, andthe designed government organizations (23 ministries
ministries and agencies), and designated public
cooperation (63 organizations including independent administrative agencies, Bank of Japan, Japanese
Red Cross Society, NHK, electricity and gas companies). In this connection, the national council is
responsible
e for formulation and promoting the implementation of the Basic Disaster Management Plan.
Meanwhile, the other two designed agencies of government and public cooperation are responsible forformulation and implementation of the Disaster Management Operation
Operation Plan.
b) Prefectural Level:
The Governor is the commander ordering via the Prefectural Disaster Management Council, and thedesigned government organization and public corporations in local. The prefectural council will
conjunctionally work with the mentioned
mentioned designed agencies to formulate and promote theimplementation of Local Disaster Management Plan.
c) Municipal Level:
In this level, the Mayor of City, Town and Village is the commander, as the same of Governor in
prefectural level, will take function
function through Municipal Disaster Management Council to formulate andpromote the implementation of Local Disaster Management Plan.
To correlate with the three disaster management systems, Japan has made up the basic plans,
operation plan, to effectively response
sponse to various types of disaster and to properly use in areas. The firstis Basic Disaster Management PlanPlan the key plan for disaster reduction activities prepared by theCentral Disaster Management Council based on the Disaster Countermeasures Basic Act,Ac the second is15

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Disaster Management Operation Plan made up by each designed government organization anddesigned public corporation, and the last one is Local Disaster Management Plan set up by eachprefectural and municipal council. The last two plans are based on the Basic Disaster Management
Plan.
DISASTER MANAGEMENT PLAN
Basic Disaster Management Plan is the plan to state on comprehensive and long- term disaster
reduction issues such as disaster management related system, disaster reduction projects, early andappropriate disaster recovery and rehabilitation, as well is scientific and technical research. For thePlan‘s structure, it consists of various plans for each type of disasters which is categorized into 2 main
points of natural disaster and accident disasters.(Chart14)

Natural Disasters
Earthquake Disaster
Countermeasures

Storm and Flood

Volcano Disaster

Snow Disaster

Countermeasures

Countermeasures

Countermeasures

Accident disasters
Maritime Disaster

Aviation Disaster

Railroad Disaster

Road Disaster

Countermeasures

Countermeasures

Countermeasures

Countermeasures

Nuclear Disaster

Hazardous Materials

Large-scale Fire Disaster

Forest Fire Disaster

Countermeasures

Disaster Countermeasures

Countermeasures

Countermeasures

Addressing all the disaster phases
Disaster Prevention andDisaster Emergency

Disaster Recovery andPreparedness

Response

Rehabilitation16

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Tangible countermeasures to be taken by each stakenholder
National government

Local governments

Residents

Chart14. Structure of basic disaster Management Plan

The tangible countermeasures will be taken by each stakeholder such as the national and local
governments, public corporations and other entities in term of the disaster phrases of prevention andpreparedness, emergency response, as well as recovery and rehabilitation. Additionally, the conceptual
formulation of the Basic Disaster Management Plan has emphasized on the important points of hazard
and risk mapping, clarification of Jurisdiction, responsibilities and procedures on establishment ofemergency response headquarter, evacuation guidance and order to citizens, designation of evacuation
area in advance, procedure for disaster information gathering and dissemination, and public
participation.
Disaster management related budget in Japan:
The National budget for disaster management is approximately 4.5 trillion yen (average annual
budget from 1955 to 2004), accounting for approximately 5% of the total amount of budget for generalaccounts. The percentage for each field is a) Scientific Technology Research 1.3% b) Disasterprevention and preparedness, 23.6% c) National Land Conservation 48.7% d) Disaster Recovery andRehabilitation, 26.4%. This year after Great Tohoku Earthquake, Government of Japan allocated 63
trillion yen for rescue, relief and rehabilitation. (Source internet)

CHAPTER2. COMMUNITY-BASED DISASTER RISK MANAGEMENT: A FRAMEWORK FOR
COMMUNITY PARTICIPATION IN DISASTER RISK REDUCTION
2.1. Framework disaster risk management, and CBDRM
According to ISDR Secretariat disaster risk management means the systematic process ofusing administrative decisions, organization, operational skills and capacities to implement policies,
strategies and coping capacities of the society and communities to lessen the impacts of natural
hazards and related environmental and technological disasters. This comprises all forms of activities,
including structural and non-structural measures to avoid (prevention) or to limit (mitigation andpreparedness) adverse effects of hazards.11
Also to exhibit table1 from ISDR to assume global trends disaster thus.

Name of subject

Global trend

Consequence

Global Trends – Disasters are NOT natural
Natural and human-induced Climate change and variables (global
hazards
11

warming …)

cf. UN/ISDR 2004 and www.unisdr.org

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Socio-economic

Poverty, unplanned urban growth,lack of awareness and institutional

HAZARS+EXTREME EVENTS

capacities…
PhysicalInsufficient

land

use

planning,

housing, infrastructures located in
VULNERABILITY

hazard prone areas…
Environmental degradation Coastal, watershed, marshland…
ecosystem degradation
Natural hazard x Vulnerability

Disaster Risk

Several trends in weather extremes are sufficiently clear to inform risk reduction efforts. In
many instances, however, the potential increases in extreme events due to climate change come on topof alarming rises in vulnerability. Hence, the additional risks due to climate change should not beanalyzed or treated in isolation, but instead integrated into broader efforts to reduce the risk of disasters.
In recent decades, the global cost of disasters has increased substantially. There are several
trends in society and nature that suggest this pattern may continue, with more frequent mega-disasters
occurring in the future. In particular, risk perception that is at odds with the “real” risk underlies theprocess of risk transference which encourages development that increases long-term vulnerability.
Based on the above specified components, disaster risk management includes measures
before (risk analysis, prevention, preparedness), during (emergency aid) and after a disaster(reconstruction). Sometimes disaster risk management includes only a part of disaster management,
focusing on the before of the extreme natural event.12
Runaway increases in exposure and risk are pushing up the costs of disasters, while at thesame time, countries and communities are struggling to reduce their vulnerabilities. Aside from reducing
disaster mortality, existing risk governance capacities and arrangements generally fail to achieve theiraims. A new paradigm for risk governance is required, one that must address the disaster riskinternalized in, and sometimes generated by, development processes. Global public investments

dwarf international aid. If national public investment systems truly account for disaster risk, they
can reduce potential losses at a scale impossible to achieve through stand-alone DRM.13
In this context, this disaster risk reduction process I have been examinations in terms ofcommunity role in disaster mitigation.
2.1.1 Why the community based approaches to disaster mitigation14?
Parallel efforts in various regions worldwide called for a shift in perspective from the prevailing
12

cf. GTZ 2004, p. 18
Global Assessment Report on Disaster Risk Reduction 201114 Lorna P. Victoria, Director, Center for Disaster Preparedness
13

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emergency management framework to disaster risk management to reverse the trend of exponential
exponent
increase in disaster occurrence of and loss from smallsmall and medium-scale
scale disasters. These highlighted
the need for proactive disaster management activities and the significant role of local communities.
The community based approach also corrected the defects of the top-down
top
approach indevelopment planning and disaster management which failed to address local needs, ignored thepotential of indigenous resources and capacities, and may have even increased people’s vulnerabilities.
Experiences in developing
ing regions and countries now affirm the gains
gains of community based disastermanagement. (Chart 15)
Latin America (Network for Social
Studies on Disaster Prevention)
Duryog Nivaran, a network oforganizations and individuals in South
Asia

•The
The 1980s were used to advocate forthe alternative approach to disastermitigation
Since 1994 has committed to promote•Sinceand develop the alternative
perspective in disaster management• gives priority to minimizing the impact ofSouth Africa, Periperi (“partners
natural and other threats by strengthening
enhancing resilience for people exposed the environmental, social, and economic
to risks”)
resilience of vulnerable communities.
Asian Disaster Preparedness Center(ADPC)• in 1995 in collaboration with the USAID Office ofForeign Disaster Assistance to reduce the disaster
vulnerability of urban populations, infrastructure,
lifeline facilities, and shelter in targeted cities inSouth and Southeast Asia.

Chart15. Pioneering experiences in community based disaster mitigation (CBDMit) of PREDES

Four AUDMP projects which have very discern able applications of the participatory approach
are featured in the session on Community Based Approaches to Disaster Mitigation -- Community
Based Urban Flood Mitigation in Bangladesh, Mitigating Flood Risk in Cambodian Communities;
Experiences of Community Based Disaster Mitigation
Mitigation in Municipal Ward 34 of Kathmandu Metropolitan
City; and Community Based Approaches to Landslide Disaster Reduction in Sri Lanka ADPC also
implements with DIPECHO the Partnerships for Disaster Reduction-South
Reduction South East Asia (PDRSEA), which
has taken on Community Based Disaster Management (CBDM) as a core strategy for disaster reduction
and sustainable development. When combined with the AUDMP learning loop, the practices in CBDMitin PDR-SEA
SEA and other initiatives such as the Community Based Approaches tot Rehabilitation and
Mitigation: Experiences from Patanka Village of Gujarat offer the wellspring of learning on the concepts,
approaches, interventions, methodologies, tools and practical tips/considerations for communities toimprove safety and achieve livelihood
ivelihood security together with sustainable economic, social and physicaldevelopment.
While in the pioneering experiences, PREDES and La Red talk about the community based
approach to disaster mitigation, practices in various communities, countries and regionsr
now showcase
a wide range of community based approaches to disaster mitigation, clearly with community
participation as the crucial and pivotal element.
Box 1. Learning from Initial Experiences in CBMit in Latin America (Maskrey, 1989)
The top-down
down mitigation programs in Latin America had serious flaws such asas failure to involve people since community
participation was often limited to provision of labor in self-help
self help projects, failure to address vulnerability as a complex19
relationship between people and their social, physical and economic environment, and the susceptibility to politicalmanipulation by powerful groups.
In contrast, case studies on the pilotin
oting of the community based approach to disaster mitiga
igation in the
1980s for drought, flood, and earthququake hazards highlighted the following benefits:2011B

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Regional Workshop on Best Practices in Disaster Mitigation

For our purpose in Community-Based Disaster Risk Management (CBDRM), a community canbe taken as a group that may share one or more things in common such as living in the sameenvironment, similar disaster risk exposure, or having been affected by a disaster. Common problems,
concerns and hopes regarding disaster risks may also be shared. However, people living in acommunity have different vulnerabilities and capacities, for example men and women. Some may be
more vulnerable or more capable than others.
2.1.2. Key Points on the CBDRM, and participatory disaster risk reduction
A process of disaster risk management in which at risk communities are actively engaged in theidentification, analysis, treatment, monitoring and evaluation of disaster risks in order to reduce theirvulnerabilities and enhance their capacities. This means that the people are at the heart of decision
making and implementation of disaster risk management activities. The involvement of the mostvulnerable is paramount and the support of the least vulnerable is necessary. In CBDRM, local andnational governments are involved and supportive15..
In CBDRM, a community can be taken as a group that may share one or more things in common suchas living in the same environment and similar disaster risk exposure.
In general, the goal of CBDM is to transform vulnerable or at-risk communities to disaster
resilient communities, specifically through CBDMit. Although steps may vary from community contexts
and organizational mandates, the process and requisites for disaster risk reduction can be generalized
as follows:
1. Initiating the process - linkage and building rapport with community
2. Community Profiling - initial understanding of disaster situation and orientation on CBDM and
CBDMit3. Community Risk Assessment – participatory assessment of hazards, vulnerabilities,
capacities and people’s perception of risks
4. Formulation of Initial Disaster Risk Reduction Plan - identification of appropriate mitigationand preparedness measures including public awareness, training and education
5. Formation of Community Disaster Response Organization - community organizing andmobilization, capability building in CBDMit and preparedness
15

ADPC-CBDRM-11, 2003

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6. Implementation of short-, medium-, and long-term risk reduction measures, activities,
projects and programs - implementation strategies and mechanisms; organizational/institutional
strengthening
7. Monitoring and Evaluation - continuous improvement of disaster risk reduction plan,
documentation and dissemination of good practices for replication
Notwithstanding the order, the community volunteers, disaster management committee, anddisaster response organization are the necessary interface or the channel for outsiders such as NGOsor government agencies to assist/support the community at-large. The community groups andorganizations in disaster management are essential in sustaining the risk reduction process for thecommunity to meet intended aims and targets.
Centrality of the role of community in disaster risk management: The focus of attention in disasterrisk management is the local community. The CBDRM approach recognizes that the local people arecapable of initiating and sustaining their own development. Responsibility for change rests with thoseliving in the local community.
Disaster risk reduction is the aim: The main strategy is to enhance capacities and resources of mostvulnerable groups and to reduce their vulnerability in order to avoid the occurrence of disasters in future.
Participatory Disaster Risk Assessment (PDRA): This is a diagnostic process to identify the risks thatthe community faces and how people overcome those risks. The process involves hazard assessment,
vulnerability assessment and capacity assessment. In doing the assessments, people’s perception ofrisk is considered.
Participatory Monitoring and Evaluation: This is a communication system in which information flows
amongst all the people involved in the project: the community, the implementing staff and the support
agency, concerned government agencies and donors. Please see chart 16 Resource Pack 7 for details
on Participatory Monitoring and Evaluation.

Resource Pack 7 for details on Participatory
Monitoring and Evaluation
Selected community
Rapport building andunderstanding the community
Disaster risk
reduction

Participatory disaster risk
assessment
Participatory disaster risk
management planning
Building and training a community
disaster risk management
organization
Implementation
Participatory monitoring and evaluation

Chart16. The people involved in the project

There is growing evidence to show that most top-down disaster risk management and response
programs fail to address specific local needs of vulnerable communities, ignore the potential of local
resources and capacities, and may in some cases even increase people’s vulnerability. As a result, a21

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broad consensus has been reached among disaster risk management
management practitioners to put moreemphasis on community-based
based disaster risk management programs. This means the vulnerable people
themselves will be involved in planning and implementing disaster risk management measures alongwith local, provincial, and national
ational entities through partnership.

Chart17. Participatory community-levelcommunity
disaster management (Source:)

Participatory community-levelcommunity level disaster management involves a cross-section
crossof people andinterests in researching, planning and implementing projects.
projects. Because the projects are developed forand by local people, there is more interest, understanding and success in reducing suffering and losses.
The key principles of this approach are:•Communities themselves are best placed to priorities threats and take effective risk reducing

actions.
•

The best time to reduce the impact of disasters is before the next disaster occurs.

•

The identification of hazards and who and what may be affected by them is necessary before risk

reduction plans can be made.
•

Progress has to be well publicized to maintain interest and strengthen the culture of disaster

reduction.
2.2. Paradigm Shifts – From Relief and Response to Disaster Risk Management
In the 21st century, the key issues in capacity-building
capacity building efforts are strengthening the legal andorganizational capabilities of institutions in charge of disaster risk management and networking between
22

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them. Chart 18 summarizes good governance and capacity building as a central component regarding
the process and implementation of disaster risk management and sustainable development.

Chart18: Governance and capacity building for risk reduction

Climate-related disasters, like floods or droughts, are set to increase. In a report recently publishedby Oxfam, the number of people affected by climate related disasters is predicted to increase by 54% to375 million people by 2015.16
Disasters entrench poverty and wipe out development gains. Investing in disaster risk reduction
not only saves lives and livelihoods, it protects these gains, is cost effective and supports achievementof the Millennium Development Goals. DRR is therefore important not just for humanitarian efforts but
for long-term development too.
Last year saw the publication of IS0 31000:2009, a new globally accepted standard for risk
management together with a new, associated vocabulary in ISO Guide 73:2009. These were developed
through a consensus-driven process over four years, through seven drafts, and involving the input of
hundreds of risk management professionals around the world. The new standard supports a new,simple way of thinking about risk and risk management and is intended to begin the process of resolving
the many inconsistencies and ambiguities that exist between many different approaches and definitions.
Almost in parallel with the paradigm shift in disaster reduction programs – from income disasterrisk to human capacity -- the disaster management sector has also seen a paradigm shift. Disasters are
no longer seen as extreme events created entirely by natural forces but as manifestations of unresolved
problems of development. The disaster management practices have evolved from largely a top-down
relief and response approach to a more inter-sectoral risk management approach. In the current
paradigm of risk management approaches, there is more the issues of community participation indisaster risk reduction.
Till a few decades ago, disasters were viewed as one-off events and responded by
16

UNISDR,Risk and poverty in a changing climate, 200923

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Research paper of VR Mongolia
governments and relief agencies without taking into account the social and economic implications andcauses of these events. With significant advancement in our understanding of the natural processes that
underlie the hazardous events, a more technocratic paradigm came into existence which believed thatthe “only way to deal with disasters was by public policy application of geophysical and engineeringknowledge”. These approaches looked at disasters as exceptional events, not related to the ongoingsocial and developmental processes.
Table 2. Evolution of the participatory community and Risk Management Paradigms
Evolution of the participatory community
paradigm (for capacity building of community)
The approaches developed to be more people
centric, and voluntary disaster response groups

Development of a community approach in planningand decision making,

The approaches developed CBDM, define the overall
project purpose, and the aims of the project’s
communications strategy

Identify communication channels and formulate
communications material, participatory pre-testing,
implementation, evaluation
Institutionalization of CBDRR into the policy, planningand implementation, implementation of innovative
programs to explore new dimensions in CBDRR
practices, development of frameworks and tools to
support the work of decision-makers andpractitioners, development of new traning tools toenhance the capacity of practitioners, continued
support to the regional entities for promoting CBDRR
practices.

Evolution of the Disaster paradigm

17

Disasters were treated as one-off events
responded to by governments and relief agencies
Improved preparedness (stockpiling of relief goods,
better relief management etc.) among governments
and relief agencies to “deliver relief”. This
“contingency planning” approach certainly improved
the efficiency of relief agencies but left a lot to be
desired in terms of appropriateness andeffectiveness of relief.
A more technocratic paradigm came into existence
which believed that the only way to deal withdisasters was by public policy application ofgeophysical and engineering knowledge
From the realization that people’s vulnerability is a
key factor determining the impact of disasters onthem, “vulnerability” emerged as the key theme andmore and more emphasis was laid on using“vulnerability analysis” as a tool in disastermanagement

In recent years, a more comprehensive approachcalled risk management has emerged. This approachhas three distinct but inter-related components:
hazard assessment; vulnerability analysis; andenhancement of management capacity.

Within this context this table attempts to:
1. Explore linkages between capacity building of community and disaster;
2. Provide examples of success stories in this area.
Since many disaster management agencies are by now influenced by the shift in paradigms to
the disaster risk management framework, they usually initiate the CBDMit process with community
project partners.
17 Dr. Suvit Yodmani, “Paper Presented at The Asia and Pacific Forum on Poverty Organized by the Asian Development

Bank”.

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On the other end, growing public awareness of disaster risks and the gains achieved in the
CBDM/CBDMit approaches have spurred communities to seek out other communities and/or NGOs toassist them.
Conspicuously from research, and good practice the following benefits of the Community
Based Approaches to Disaster Mitigation have been noted:
1)

Community process and participation builds confidence, pride that they are able to make adifference and capabilities to pursue disaster mitigation and preparedness and bigger development
responsibilities at the local level. This leads to empowerment.

2)

Community involvement in risk assessment and risk reduction planning leads to ownership,commitment and individual and concerted actions in disaster mitigation, including resource
mobilization;

3)

Trusting and supporting the capacity building process results in a wide range of appropriate anddo-able mitigation solutions;

4)

Community Based Disaster Mitigation is cost effective, self-help and sustainable even if it is time
consuming.

CHAPTER 3
COMMUNITY PARTICIPATION IN DISASTER RISK REDUCTION IN MONGOLIA AND JAPANThe communities are the heart and soul of disaster management. They can identify their own
risks and vulnerabilities along with capacities and available resources as well as their own needs. Major
benefits of the community based risk assessment, mitigation planning and implementation processes
underscored include building confidence, pride in being able to make a difference, and enhanced
capabilities to pursue disaster preparedness, mitigation as well as bigger development responsibilities
at the local level. Additionally, individual and community ownership, commitment and concerted actions
in disaster mitigation, including resource mobilization produce a wide range of appropriate, innovativeand do-able mitigation solutions, which are cost-effective and sustainable18 .
3.1. Community Participation in Disaster Risk Reduction in Mongolia
In the legal environment reflect community participation in disaster risk reduction:a). Law on Disaster Protection:
18

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1. to regulate matters relating to the principles and full powers of disaster protection organizationsorganizatio
and agencies, their organization and activities, as well as the rights and duties of the State, local
authorities, enterprises, entities and individuals with relation to disaster protection.
2. to communicate activities between the State and Local Governments,
Governments, enterprises, entities and thestate services in the framework of coordinating disaster prevention, rescue, response andrecovery.
b). Environment of NEMA
Implementing disaster protection not only with the effort of the Government and theorganization in charge for emergency management, but also with collaborative involvement andpartnership of the general population, governmental and nongovernmental organizations, private
sectors and international organizations is to strengthen disaster resilience of Mongolia.
M
The National Emergency Management Agency’s main duties are to develop legislativeenvironment on disaster protection, to provide strategic management, to evaluate disaster risk andvulnerability, to implement activities on disaster prevention, disasterdisaster reduction, disaster preparedness inall levels, organizing search and rescue work, response, restore main infrastructures and rehabilitation,
strengthening capacity of national disaster protection, cooperation with foreign countries andinternational organizations in disaster protection field, monitoring laws and legislations, andimplementation policy on state reserve.
reserve
My country thehe vision of the NEMA is “To
To support in providing national safety through risk andvulnerability reduction, strengthening
strengthening disaster management and implementing intensively disasterprotection measures based on community involvement”
involvement to underscore essential needs ofcommunity participatory.
Framework community participatory:
participatory
Disaster Research Institute resent year’s published “Researcharch paper”.
paper” Last year research paper
to reflect one to conduct a sample survey of community participatory on disaster risk reduction the
Baynzurh district.(Chart 19, 20))

81

non-interference
interference
other

2

come down to information

26

life-savingsaving9protective property

4

contribution, and help

34
27

mobilization
training

41
0

10

20

30

40

50

60

70

80

90

26

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Chart19.Community
Community participatory form.(Source:Researchform
paper of DRI, 2011)
2011

Mass community to answer as “non-interference”
interference” but considerable part to answer as“mobilization”’, “contribution, and help’’, “training”, “come down to information” and all thatparticipated on disaster prevention. And to answer as “Do you known to what extent
eof
disaster?” in chart 20.
little41%
ignorance
10%

good
33%

very good
16%

Chart20. Do you known to what extent of disaster? (Source:Research paper of DRI, 2011)

Researcher watched too partaken survey of community as 90% ratherish learning of disasterprevention. Also resent years increase capacity development and raisingaising awareness of communities,
and participatory disaster prevention training, emergency drills.

3.1.1 Recent Activities for Enhancing Community Capacity for Disaster Risk Reduction in
Mongolia
In the recent years in NEMA,
NEMA “Community–based
based disaster Management” to signalize and has drawn
people’s attention in the field of disaster management.
The “preparations” for emergencies that have been made on a regular basis will be greatly
valued. Various preparations can be made for disasters,
disasters, such as improving earthquake-proof
earthquake
equipmentin houses, preparing emergency goods that can be easily carried out in case of disaster, and preparing
the necessary materials and devices to directly respond to the disaster. Conducting the regularemergency
ergency drills is very important for being prepared for natural disaster situations.
Recently developed new term “Community-based
based disaster management”. Community based
disaster prevention led by citizens that plays the central role in reducing disasters.
Byy this event, let’s try some activities of the demonstration site as the following;
Events organized by the NEMA Mongolia on occasion of the IDDR11.
IDDR11 Within the framework of
the IDDR11, the National Emergency Management Agency of Mongolia in cooperation with
wit other27

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relevant agencies have organized variety of awareness raising activities on disaster prevention and risk
reduction amongst the youths of Ulaanbaatar19:
NEMA, Mongolia and Authority of Children jointly organized the forum on "Public Initiatives on
Potential
otential Risk Prevention and Protection of Children" and involved policy making senior officers from the
National Emergency Management Agency, Emergency Management Department of Capital city as well
as district level Emergency Management Departments. Over four hundred Children has simultaneously
attended the forum including the homeless and disabled children.
The illuminated and dedicated to the International Day of Disaster Reduction advertisement
board with the theme of “Making Children and Young People Partners for Disaster Risk Reduction” hasbeen placed in front of the Sukhbaatar square of Ulaanbaatar.
The Capital City Emergency Management Department in cooperation with the Department of
Education conducted “Earthquake Evacuation Drill” and “Fire Prevention
Preve
Table Top Training”
simultaneously at all. (Cart21)61689,
students,
school…

81, secondary
schools

4105,
teacheers200,
emergency
managers…

Chart21. Participation community

I watched hereof conspicuously to be released to develop basis of CBDRM.
3.1.2. Capacity Development and Raising Awareness of Communities
We take into account giving
giving disaster protection education to the community so that according to
the Law on Disaster Protection, disaster protection training is being organized. We organize the disastermanagement training to students of colleges and universities.
1). NEMA’s to organize
rganize training for capacity
capacity development and raising awareness ofcommunities. For example:

19•

Disaster protection complex training (1 year, 1-2 aimag)•

Disaster protection command staff training (every year, 2-4 aimag)•

Disaster protection preparedness inspection
inspe(every year, all district)“National Post” on 13 October 201128

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Chart22.Disaster protection
complex training

Chart23.Disaster protectioncommand staff training.

Chart24.Disaster protection
Chart2
preparedness inspection

To reflect the law
aw on Disaster Protection “The disaster protectionn resources shall be emergency
management institution, disaster protection state services, entities and enterprises and specialized units
and volunteers”.
”. Accordingly need to consider organization entities and enterprises and specialized
units and volunteers.
2). On-going
going projects implemented by NEMA or International Organizations
Implementation of Hyogo framework for action
We take into account increasing community participation in the disaster protection activity.
National Emergency Management Agency of Mongolia is implementing the UNDP Project“Strengthening the Disaster mitigation and management system in Mongolia” and in the framework of
the project, the commencement of the developing disaster management on the base of local community
for supporting community
mmunity initiative was made. Policy on disaster management on the base of local
community was included in the Action Plan of the Government of Mongolia.
A. The project “Strengthening the Disaster Mitigation and Management System in Mongolia” has been
implemented
mented by the national disaster management authority since 2002,, and is currently in its third
phase. The overall project goal is to contribute to the sustainability of the country’s development gains
by reducing risks and vulnerabilities through enhanced government capacity, and wider partnerships
with other sectors and regions.
The principal objective of the Phase III is to support the implementation of the long-term
longdisaster risk management strategy of Mongolia to minimize vulnerability, improve preparedness,prepareenhance institutional capacity for disaster management and emergency response, and assist in
adapting to climate change that adversely affects sustainable development of the country, especiallythose in the rural environments. Withing this project organize
rganize training for capacity development andraising awareness of communities.(Chart25)
communities29

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Chart25. Target area for implementation of community-based
community based disaster management (Source: internet)

B. Joint Training and Exercises-

Disaster Preparedness
redness Training anda Exercise, COE, APCSS, Alaska National Guard, USA-

Disaster Management, Training, Bournemouth University, UK-

Earthquake Preparedness, EMD, Turkey
NEMA has been charging series of meetings with COE, APCSS, Alaska National Guard, USA

and Government officials
ials on the process, methodologies, organizational roles and responsibilities ofdifferent organizations in order to strengthen response capacities of the stakeholders involved indisaster risk reduction.(Chart26
6) And compiled the outcomes of workshops held
hel at the district, regionaland central levels and forwarded the results to the NEMA for endorsement. As a result, more than 4
districts and same regional authorities initiated disaster preparedness planning jointly with otherhumanitarian partners.

Chart26. Joint Training and Exercises

C. The project by JICA “Strengthening earthquake prevention capacity in Ulaanbaator city” has been
implemented by the workshops enhancing disaster risk reduction (DRR) capacities through transferring
the measures andd tools of Japan were conducted. The overall project goal is to contribute to thesustainability of the conducted a series of workshops and trainings for strengthening the capacities forearthquake disaster education. They include trainings for the NEMA officials
officials and school teachers, aworkshop to learn Japanese DRR exercises utilized creative and innovative ideas, and lecture for30

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school students, and DRR exercises in two target schools. On 13-19 February 2011, the NEMA
Mongolia in collaboration with the government of Japan and the ADRC
Through the above mentioned activities, the NEMA and the related organizations and schools learned
various knowledge, techniques, and tools for enhancing and promoting earthquake disaster education in
Mongolia. We believe this project became one of the major driving forces for further promotion ofearthquake DRR in Mongolia.20
Conspicuously from research awareness and knowledge of people in community are still low.
Community awareness to recognize disaster prevention and mitigation by themselves is established.
But the people of Mongolia have won universal admiration for their courage and endurance whensubjected to hardships year after year, as the government and international partners seek to protect
them against the assaults of Nature.
3.2. Community Participation in Disaster Risk Reduction in Japan
Community and local involvement:
Japan has many experiences about natural disasters most frequently in the world. There isgained the knowledge and developed the skills of responding and preparing for disasters through its
past experiences. Also “Community –based disaster Management” has drawn people’s attention in thefield of disaster management
It is necessary to engage local government and community in disaster risk mitigation. If local
stakeholders are not engaged in the disaster risk mitigation design, implementation and management ofdisaster risk reduction then the resulting policies, strategies and plans have limited chance to suit withthe local conditions.
Similarly, if local community and organizations are not considered as stakeholders in the
management of facilities and infrastructure then there is little chance to be implemented. For example, if
local community is not involved in post disaster situation in Great Hanshin-Awaji Earthquake, Kobe,
Japan in 1995 smooth recovery and reconstruction of the total area would not have been possible.
Cost of disaster risk reduction can be reduced to a great extent if the local community is
involved in decision making process with reconstruction and rebuilding and mobilization of local
resources, capabilities, knowledge and expertise. The potentiality of the community is proven great at
the time of disaster. Engagement of local community contributes to building social capital, raises
awareness of disaster risk and strengthens local capacities to address a wide range of development
issue
The community based disaster management two epoch-making turning points for disaster
reduction in modern Japan.21

20

http://www.adrc.asia

21

Miki Kodama, Local area network by “Building resilience of communities to disasters in Japan”, ADRC

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Research paper of VR Mongolia1959 Ise–Wan Typhoon

Improvement of Institutional Mechanism forDisaster Reduction1995 Great Hanshin–Awaji Earthquake (GHA
Earthquake)
Typical lessons learnt from this disasters:

Preventive Approach

Quicker Information Gathering Mechanism

Multi-sectoral Approach

Ensuring Building Safety

Investment for Disaster Reduction

Enhanced Capacities of Community

3.2.1 Recent Activities for Enhancing Community Capacity for Disaster Risk Reduction in Japan
In the recent years in Japan, “Community –based disaster Management” has drawn people’s
attention in the field of disaster management. This is an idea that it is important not only to provide
support for developing countries to implement sabo works and build levees, as well as to improve theirdisaster specialist’s technical skills, but also to provide to support for the improvement of the ability of
their local communities to prevent disasters in order to reduce damages.
The “preparations” for emergencies that have been made on a regular basis will be greatly
valued. Various preparations can be made for disasters, such as improving earthquake-proof equipment
in houses, preparing emergency goods that can be easily carried out in case of disaster, and preparing
the necessary materials and devices to directly respond to the disaster. Conducting the regularemergency drills is very important for being prepared for natural disaster situations.
It is impossible to stop “natural disasters” from happening, but at least we can prepare for them.
Recently developed new term, gensai “to reduce disasters” has commonly be used in Japan. We cannot
reduce the damage from disasters to Zero but we can do our best to reduce the destruction to a small
amount. Community based disaster prevention led by citizens that plays the central role in reducing
disasters.
Importance of Enhanced Capacities of Community (from GHA earthquake)
People were not well prepared for earthquake disasters since there was no record of greatearthquake in Kobe. Earthquake didn’t kill people, but collapsed buildings, fallen furniture killed people(nearly 80% crushing death), insufficient preparation for emergency evacuation. The percentage of
people rescued by the rescue parties was only 1.7%. Most people were rescued by local community.
(Chart 25)

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By himself/herself

34.90%

By family members

31.90%

By friends/neighbors
By passersby

28.10%
2.60%

By rescue parties

1.70%

By others

0.90%

0.00%

5.00%

the percentage of people rescued by themselves or byfamily members and neighbors:about 98%
10.00%

15.00%

20.00%

25.00%

30.00%

35.00%

40.00%

Chart25. Who rescued buried or confined persons? (source: lecture by Mr.Kuniaki Takenaka, Kobe Fire Bureau )Rescue workers couldn’t reach to individuals immediately. And lessons from the earthquake
need for capacity development and raising awareness of communities.
Capacity Development and Raising Awareness of Communities
Some Recent Significant Efforts by Japanese Government formulation of “Basic Framework for
Promoting a Nationwide Movement for Disaster Reduction -Actions with Added Value to Security and
Safety-”I) Involvement of various local groupsII) Development of more attractive educational tools to understand proper knowledge on disaster
reductionIII) Promotion of investment for safety in corporate sectors and households
IY) Facilitating networking of various stakeholders, andY) Sustainable disaster reduction activities by each individual and each sector of society
Involvement of various local groups
After the Great Hanshin-Awaji Earthquake, Kobe City lessons from the Earthquake and the city
government has focused on establishing and developing voluntary organization for disaster prevention
in communities for nationwide movement for disaster reduction.
The disaster countermeasures basic act, which is the most fundamental law of disastermeasures, regulates that the municipalities must make efforts to fulfill the “Disaster-management
organization based on the spirit of citizen’s neighborhood cooperation” (Section 2 of article 5). This basicact Support for development of voluntary disaster response groups:

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Chart26. Basic principle of voluntary disaster management organization (Source: lecture by Mr.Kuniaki Takenaka,
Kobe Fire Bureau)

Voluntary disaster response group from the nucleus of community disaster management
capability, and are supported to collaborate with local authorities toto provide comprehensive support for
efforts to improve and strengthen voluntary disaster response activities. Namely for involvement ofvarious local groups a) Incorporating disaster reduction into the existing
xisting community activities, b)
Educate key persons for regional
egional disaster risk management strengthen voluntary disaster response
activities.
In Japan, the term, “voluntary disaster management organization,” was used for the first time in
an official document in 1961. Since then, this term has gained recognition
recognition every time the country has
been challenged by disasters, and its importance gained dramatic recognition at the time of the Great
Hanshin-Awaji earthquake.

Chart27.. Scale of voluntary disaster management organizations (formation unit)

Change of voluntary
untary disaster management organizations.

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Chart28.. Change of voluntary disaster management organizations (as of April 1, each year)

Next development
evelopment of more attractive educational tools to understand proper knowledge on
disaster reduction is BOKOMI. It is also distributing various disaster prevention equipment and materials,
assisting the organizations in conducting the different emergency drills and offering them subsidies to
conduct disaster prevention activities.
Kobe city calls these community –based
sed disaster prevention organizations “Disaster Safe
Welfare Communities” Short name is BOKOMI. It introduces a series of emergencies drill programs
which can be conducted by community –based
based disaster prevention organizations and a serious ofdisaster preventions
entions educations programs mainly targeting to elementary schools.
The Kobe City Fire Bureau (KCFB) is assisting with training projects conducted by JICA (Japan
International Cooperation Agency) as part of human resource development in the disaster prevention
prevenfield in the developing countries. Community –based
based disaster prevention organizations, explainstheirspecific activities to the training participants who are involved in the disaster management in disasterprone- countries.

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Chart29. Launch of voluntary
untary disaster management organization by Kobe citizens (1995-),(1995 Source: lecture by
Mr.Kuniaki Takenaka, Kobe Fire Bureau

For thehe above activities are conducted by team of BOKOMI in normal time:

Public relations/enlightenment activities of disaster management
management knowledgePreparation in case of occurrence of disaster (grasping of dangerous points, establishment of
information transmission system, etc.)

Disasterisaster management training

For example activities in normal time, at the time of disaster tablet3.
Table3.
3. Activities time of BOKOMI (Source: lecture by Mr.Kuniaki Takenaka, Kobe Fire Bureau)
Bureauin normal timeat the time of disaster

In Japan, governmental support for emergency drills and first aid training is mainly provided byfire stations. This kind of emergency drill programs and disaster prevention education programs are also
based on conditions in Japan. And to participate a junior team that consists of elementary school
children and junior high school students in the BOKOMI. Implementing a training
trainin on a regular basis andissuing a commission. BOKOMI’S disaster management education for children in cooperation withschool36

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Also in the many country assisting with training projects conducted by JICA (Japan
International Cooperation Agency) as part of human resource development in the disaster prevention
field. Community–based disaster prevention organizations, explains their specific activities to thetraining participants who are involved in the disaster management in disaster prone- countries.
Development of Attractive Educational
Tools for Proper Understanding• Wide Variety of Tools by Using Various Medium• Develop Educational Tool of High Quality• Publication of Risk Information (incl. hazard maps, risk assessment) in an easily understood manner
For example: Educational TV Program (source: NHK),

Wide Variety of Educational Tools(Disaster-management card game)
Japan have to, card game developed by NPO Plus-Arts. Game in which participants are shown a cardon which a situation may occur in the event of disaster (a scene of a person confined in a collapsed
house, for example) is painted and choose required tools from the required pre--distributed cards ofmaterials an equipment (draw bar, jack, saw, etc.) cards bar, cards.22
Efforts to implement disaster management education at school
Efforts to make a large number of people implement the game (grouping, use of slides,
preparation of answer sheet) (sheet)
Participants are to compete for building up points, using

Participants are to enjoyably learn about topics

cards depicting materials needed for each scene.

which will be useful in the event of an earthquake.

Chart30. Development of attractive educational for children (Source: ADRC reference material)

Promotion of Investment for Safety in Corporate Sectors and Households•

Promotion of Contribution to Disaster Reduction Activities by Corporate Sectors• Raising Awareness of Investment for Safety• Enhancement of Safety of Town as one of the Appealing Point of Town
Facilitating Networking of Various Stakeholders
Collaboration among Various Stakeholders (National and Local Governments, Schools, Community
22

lecture by Mr.Kuniaki Takenaka, Kobe Fire Bureau37

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Centers, Corporate Sectors, Volunteer Groups, etc)
Sustainable disaster reduction activities by each actor• Promotion of the Establishment of Community Stakeholders Meetings for Disaster Reduction
Activities• Reward Good Practices of Disaster Reduction Activities in Communities, Schools, & Individuals(Portal Site for Establishment of Community Stakeholders Meetings, Poster Contest and Award forGood Practices)
The Hyogo Framework for action on disaster management has formulated the disaster mitigation
activities among the communities according to the experience gained from the Great Hanshin Awaji
Earthquake in 1995. The Kobe experience is one of the best example of community mobilization to
mitigate the sufferings of the victims as well as involving the community with the decision making
process and in the rebuilding and reconstruction process. Basically in Japan, local community
organizations with responsibility for disaster preparedness cover half the population of the country.
3.2.2. Case studies in external on community participation in Japana) Themes in Iza! Kaeru Caravan disaster reduction activities:Non Profit Organization”
Iza! Kaeru Caravan- A new type of disaster drills system: (a new kind of disaster reduction
training program learning through fun.)Purpose of the Iza ! Kaeru Caravan- Introduction of the system of Kaeru Caravan and basic
idea of leaning disaster risk reduction in enjoyable ways which create an opportunity for further learning
Followings are the main Purpose: To develop original disaster prevention education system appropriate to local condition.
 To create program which is localized, sustainable and with extendibility by considering notcompleted as a ad-hoc activities.
 Original programs were developed through collaboration work with the local NGOs andpreparatory workshop
 Create a mechanism to organize “Enjoyable Disaster Prevention Drill” by local residents
themselves“Iza! Kaeru Caravan” has to, based on the experience of implementation, new programs weredeveloped in consideration of the following points:
Overcome lack of knowledge of children
Support evacuation of disabled people
Promote a spirit of teamwork
Transferring not only how to implement the event, but also background and process to create theevent.
Positive impacts of Iza ! Kaeru Caravan:
Fun” makes children active and inspires them to participate in the program again and again,38

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which bring significant learning effect to them.
”Fun” also makes staff members (Volunteer & DRR related persons) inspiring. And a sense ofachievement ensures a continuity of their implementation of the activities.
Program itself is “incomplete” and easy to customized/localized. Therefore, the program is
adapted in a way suitable for the local condition by involving many people.
Utilization of Mascot Character (Frog) works greatly to provide “Fun”, “Continuity” and“Customizing”.
The Potentiality of the community in Japan has been proven great at the time of disasters. As
the result of the engagement of the local community, the extent of damages of lives and property
reduced to the minimum. After the Great Hanshin Awaji Earthquake in Kobe, Japan, smooth recovery
and reconstruction of the area was possible due to spontaneous participations of local communities.
Getting to know “Iza! Kaeru Caravan!” is a Learning through fun; a new disaster reduction
training program for families.
The popularity of the “ Kaekko” Bazaar make the disaster response training much more
attractive with the young generation and their parents, a group who are new to such training. Since its
start in Kobe in 2005, these events have been nationwide in Japan, as well as in Indonesia, Guatemala
El Salvador, Central America and Mongolia. The event provided a fun environment for cultivating
children's interest in disaster management issues and emphasized the reality that disaster
preparedness efforts are not a special, one-time activity, but something needed to be done on an
everyday basis.

Why is it a “ Kaeru” (frog) character ?
“Kaeru” is the Japanese word of frog, “Kaeru” carries the same pronunciation as the word for
return or change. In “Iza! Kaeru Caravan!” context, this pun works as a friendly character of frog and theactivity of exchanging toys in “Kaekko” Bazaar.23
By the concept, is the mean to bring people’s bond together in Team Learning on “Iza! Kaeru
Caravan” in order to transfer this concept by using the power of team working or task force on the same
concept as according to each one usually have different field to conduct more interesting by outside
knowledge. It’s the opportunity to create “Iza! Kaeru Caravan” through the best screening test by Team
Learning. In this step we can use the “crossroad” game for support this idea before passing to transfer ofOrganization Learning on “Iza! Kaeru Caravan”. A Learning Organization is an ideal goal, how toachieve this goal. It continues on this point.
So Let’s learn on Iza! Kaeru Caravan. By the reason is “Time” go very fast , more than ten years hadgone quickly, the memories and lessons gained by the citizens of Kobe from the earthquake werebeginning to fade and be forgotten.
By the first step, we should address problems and issues that are complex and not easily
23

www.plus-arts.net Resource person: Mr. Hirokasu Nagata; Chairperson of +art NPO39

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resolved. For major activities on this step, are as follow:
1) Create educational materials kits and launch campaign on “on Iza! Kaeru Caravan!” Learn with Fun”
for well preparedness and “get ready to preparedness” both in normal time and during disaster incommunity.
2) Conduct the workshop for the staff or people in community about disaster prevention in general view(by using “Crossroad” card game and etc.) and getting involvement of different kind of target group
including artist, designer, and volunteer or social welfare group in the community.
Create and provide some materials and knowledge which related to “different target groups’s
consideration” in to the event drills as “ Iza! Kaeru Caravan”
3) Provide more materials, tools, private organizer, school, NEMA regional center for preparing “Iza !
Kaeru Caravan” in proper places or district to meet the requirement and needs of people.
The event provided a fun environment for cultivating children's interest in disaster management
issues and emphasized the reality that disaster preparedness efforts are not a special, one-time activity,
but something needed to be done on an everyday basis.
By this event, let’s try some activities of the demonstration site as the following;

Picture 1. "Emergency pack" is something that I
have organized by Social Unit Organization
Disaster Interdisciplinary Education, Kobe Gakuin
University

Picture 2. How to use Hi-Jack Lifting introduced by
NGO

Picture 3. What you can do to protect my life ?
Organized by Great Hanshin Earthquake
volunteer, "light of hope 1.17" story teller to get

Picture4.
Earthquake
building
competitive
manufacturing organized by Department ofEnvironment and Disaster ; Maiko High Schools

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ready to prepared!.

Picture5. Original games “ Disaster
Prevention” organized by NPO+arts

Picture 6. Challenge ropes tied to help disaster!
organized by Kobe City Fire Department

Picture7: Time Trial blanket on a stretcherorganized by NPO+Arts

Picture8: Just sit shaking experience "Zabuton
Earthquake" organized by Hakusan Kogyo
Co., Ltd.

Picture 9 : "Doctor" and learn about the living!
Organized by Support center in Kobe City Housing
relief (net Smile)

Picture 10: Disaster sugoroku learning for funorganized by 21

In this event, the organizer; and even incorporating a stamp rally, also challenged a new
approach. Group also increased the number of exhibitors, but little by little, I felt that this HAT isspreading circle of activities in Kobe. Each year a single program, it is a good event able to enjoy
learning more and more! For some information on the event, is highly needed to be well prepared in theearly stage.
Let’s use the example as Implementation “Iza! Kaeru Caravan” is different kinds of activities.
Review the significant activities on “Iza! Kaeru Caravan” in Kobe:
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Research paper of VR MongoliaThe lessons gained by the production of JICA Hyogo in various activities; for selected activities;

The outcome after finishing once activities which follow up program for sustainable activities; as thefollowing activities;

The organizer had convey the audience on Daily Awareness of Disaster Prevention byComprehensive Production of a Large-scale Exhibit on Disaster Prevention.

Plan and organize hands-on exhibits that allow parents and children to easily participate.
And also plus Arts is one of the Non Profit Organization which creates awareness andencourages of Community Participation in Japan which clarifies the lessons and skills learned from theGreat Hanshin Earthquake, making the disaster reduction part of the daily routine.
+ Arts project team started by using research to clarify the lessons and skills gained from theearthquake. They designed educational programs (including learning materials and games) tocommunicate this knowledge to children, and they developed a new type of disaster reduction training
event for family to experience Themes of + arts disaster reductions activities:

1. Making disaster reduction part of the daily routine
2. Putting creativity to work in disaster reduction
3. Disaster reduction measures that are fun to learn about
Disaster reduction learning materials and games are developed into 3 steps. New disaster
reduction training programs were held in seven locations throughout the Kobe City. While the Kobe
events were held as demonstrations with the NPO +arts taking a central role, the program held later
throughout the country were run primarily by local disaster reduction and educational professionals withNPO +arts providing support. (Learning Materials: Listening to the Stories of Earthquake Survivors,
Learning at Earthquake Themed Museums and Libraries, Reading Earthquake Diaries, Online Research)

There is very high challenge for me as Visiting Researcher to learn here and going back try out
for promotion “Iza! Kaeru Caravan” is one of the goals that we are going to achieve. But we have to setof the principles to make decisions and to conduct our activities towards this goal. So, let’s start step bystep from thinking in the way of “Learning Organization” which is focused on “Iza! Kaeru Caravan” asfirst stage of a small activity, one part of CBDRM’ activity.

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Comparative Analysis of community participation in Japan & Mongolia
Actually comparison of a highly developed country like Japan and developing country Mongolia
is not rationale. However, from the point of severity and intensity of disasters, both the countries havebeen facing disasters. Through initiation of more effective mitigation, prevention and preparedness
measures, the Disaster Management is seeking while raising awareness about the need for interorganizational and inter-disciplinary efforts at local, national, regional and international levels, in order toaddress the root causes and solutions of destructive natural hazards. Disaster prevention culture
depends on the involvement the community. In future, research and development practice in Japan
would explore the way in which understanding of disaster management and disaster reduction would bepossible and discovering future technologies on disasters.
Japan

Mongolia

Disaster prone. Volcanoes, earthquake, tsunami,

Mongolia is prone to a variety of natural hazards.

typhoon & floods, landslides

Major disasters are drought, earthquakes, epidemics,
famine, floods, forest fires, wind damage, snow
damage (Dzud)

Strong DM Basic Countermeasure Act (formulated

DM Countermeasure Act (formulated in 2003)

in 1961) Updated regularly

Amendment

Japan highly developed country and pioneer in DM

Mongolia developing country and pioneer in DM && DRR since 1959

DRR since 2004

Community mobilization and strong Community to

Community mobilization and community volunteers

response against any kind of disaster. Every citizen

expanding gradually. Study starting the concept ofknows the concept of self help, mutual help/

self help, mutual help/ neighbor help and community

neighbor help and community help during disaster

help during disaster

Strong activities voluntary organization for disaster

Still low activities voluntary organization for disasterprevention

prevention

Developed Tools for Proper Understanding:

Developing tools for proper understanding

Educational TV Program (NHK), Wide Variety of
Educational

Tools(Disaster-management

card

game)
Promotion of Contribution to Disaster Reduction

Promotion of Contribution to Disaster Reduction

Activities by Corporate Sectors

Activities by Corporate Sectors

Inculcating the culture of transferring the lessons

Still not yet.(museum, video films, community drills,

learnt from a disaster to next generation – Throughlearning centers for disaster)

telling story, museums, community drills, learning
centers, video films, etc.
Town

Watching(Preparedness)-

Disaster

Still not yet.

Management Cycle including that of community
education
Common educating children in basics of disastermanagement through participatory exercises like
Kaeru CaravanStarting framework ongoing project43

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Action Plan:
It is true that community participation in Japan is highly commendable. The best practices of community
participation in disaster risk mitigation in Japan could be replicated in Mongolia. The government andthe local community both can be benefited by introducing the best practices of Japan in the area ofDisaster Risk Reduction.
After the completion of the research, research findings will be published in the journals. Series ofseminars will also be organized to disseminate research results for wider audiences. In addition, theresults will be presented in disaster preparedness workshops at regional level.

CONCLUSIONCBDRM puts community participation at the heart of process so that the main stakeholder andmost vulnerable to disaster will have greater roles over the decisions and mitigation activities. As manyof the cases show, it is imperative to promote a culture of participatory planning and implementation ofdisaster risk reduction initiatives. Innovative approaches and tools exist and are being applied creatively
in urban and local governance and in community based approaches, as demonstrated by many of theexamples. However, they need scaling up with support from national governments. Many cities haveapplied innovative methods to provide access to secure land tenure, infrastructure and services for thepoor.
There have the “bottom-up” approaches at different levels of CBDRM but in some cases are still
keen on top-down approach as a result of the community participation mechanism in the past years that
not only partly obstacle but also need the more time for fully applying the CBDRM approach. However,those principles and mottos have strengthened the responsibility of relevant stakeholders. On the other
hand, those have mobilized traditional experience, resources and partly ensure the sustainability andeffectiveness of disaster management activities.
Conspicuously from research, and good practice the following benefits of the Community
Based Approaches to Disaster Mitigation have been noted:
1)

Community process and participation builds confidence, pride that they are able to make adifference and capabilities to pursue disaster mitigation and preparedness and bigger development
responsibilities at the local level. This leads to empowerment.

2)

Community involvement in risk assessment and risk reduction planning leads to ownership,commitment and individual and concerted actions in disaster mitigation, including resource
mobilization;

3)

Trusting and supporting the capacity building process results in a wide range of appropriate anddo-able mitigation solutions;

4)

Community Based Disaster Mitigation is cost effective, self-help and sustainable even if it is time
consuming.
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Mongolia:

Also global warming is powerful inspiration in the climate, nature, clime of Mongolia.

Because huge inspiration the frequency meteorological hazards on natural hazards. A strong
earthquake occurred in a desert place, barren place without human settlements is not disastrous for
Mongolia whereas if it takes place in any other country with densely populated areas it would cause
heavy losses and casualties which occur rather frequently.
CBDRM is new in terms of “terminology” but in practice, this approach has been employed at
different levels and in distinctive areas in Mongolia through many generations. The meaning andobjectives of CBDRM are well reflected in policies and fundamental principles of Mongolian
Government.
Conspicuously from research awareness and knowledge as most people still lack the proper
knowledge, understanding/appreciation of disaster protection, thus, the need for it to be mainstreamed
into national policies and initiatives.
Community awareness to recognize disaster prevention and mitigation by themselves isestablished. But the people of Mongolia have won universal admiration for their courage and endurance
when subjected to hardships year after year, as the government and international partners seek toprotect them against the assaults of Nature.
Also conspicuously from research awareness and knowledge as CBDRR to them to continue
the future research work.
In this step for getting more understanding CBDRR, we can get the outputs to transfer to create
some kinds of educational material; for create some activities.
Additionally, case studies a wide array of policy areas, highlight broader issues of institutional
strengthening and local capacity building on different hazard types and with different stakeholders, suchas: Strengthening connections between local communities and local governments (El Salvador),
Risk-awareness program for schoolchildren and communities (Saijo city, Japan). Please see endnotes
some case studies.
Japan has many experiences about natural disasters. It has gained the knowledge and developed theskills of responding and preparing for disasters through its past experiences. In Japan, 1995 January 17,
Kobe city experienced an exceptional, disaster, called the Great Hanshin –Awaji Earthquake, whichcaused 6,400 people deaths and approximately,10 trillion Yen damaged. Though the recovery process,from this great Hanshin Awaji Earthquake, Hyogo Prefecture learned many lessons and acquired
extensive technology-based expertise on disaster management. When disasters strike, communities
become the immediate victims, but they are also the first responders.
In the recent years in Japan, “Community based disaster Management” has drawn people’s
attention in the field of disaster management. This is an idea that it is important not only to provide
support for developing countries, but also to provide support for the improvement of the ability of theirlocal communities to prevent disasters in order to reduce damages, of lives and property. For effective
disaster management, it is important that the Central Government, Local government, Public
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corporations and private citizens must work out their roles appropriately. Especially in Japan, after theGreat Hanshin Awaji Earthquake, the role of local government and Local community has been
increasing. Such experience and knowledge of disaster mitigation action in Japan should be shared withother countries by taking into consideration of local conditions in each country.
Having more parties at stake would lead to active participations from as many sectors of thecommunity as possible into the project, decreasing/ shrinking the unknown areas, integrating theinformation useful, and hence sharing the responsibility.
When the project is failed, parties concerned share the responsibility, ready to review thepreceding programs and their actions, and hence take new measures for recovery / change strategies
for human security, Educational tools for children.
However Disaster risk reduction paradigm requires a multi-faceted approach either in
preparedness or in response. Because Active participation, sharing the important information andresponsibility from as many sectors of the community as possible to reduce the disaster risk at all level.

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LESSONS LEARNEDDisaster risk reduction paradigm requires a multi-faceted approach either in preparedness or in
response. Basically institutional infrastructure must be built-up and accordingly role of the local people
might be enlightened. Accordingly I have mentioned some core of my research in following
sub-headings.
This will require more research on understanding the nature of linkages between poverty andvulnerability in different social, political, economic and hazard-specific contexts. This understanding willlead to development of specific frameworks and methodologies for integration of poverty and disaster
reduction programs. At present, livelihood frameworks that recognize people’s vulnerability context,
community-based disaster management approaches and risk transfer and finance mechanisms aresome of the approaches that can be used for this integration. In the coming years, poverty reduction anddisaster reduction programs will have to develop innovative, multi-dimensional, inter-sectoral
approaches to mutually support each other.
Also I gained versatile knowledge about disasters like tsunami , earthquake, flood, landslides,
volcanoes from different disaster related public and private organizations of Japan through intensive
field visits to different disaster related organizations. Disaster preparedness planning, projection of
future disasters and the way to overcome these disasters with minimum loss of lives and properties anddevelopment of modern technologies to underline the causes of disasters have been widely practiced inJapan. Despite having such best precautions, modern early warning systems, equipments, disaster
drills. Recently occurred disaster on 11 March2011 had been devastating. It killed 17500 people officiallyand missing about 40,000 people and preliminary loss of properties estimated to $310 billion dollars.
However, the disaster management practice in Japan is highly commendable. Following are the major
experiences and lessons I learned from the ADRC, Visiting Researcher Program:•To minimize the extent of damage from disasters, it is important for self help, mutual help andneighbors help. Then aid from government and public organizations comes.

•

Community based action plans and training improves community's problem solving skills.

•

Because disasters are unpredictable, it is important to maintain the projects and people's
awareness of disasters.

•

Transparency of activities and dissemination of knowledge and information encourage people's
participation in activities•

CBDM efforts need stable financial resources.

•

There should be coordination with government, non government organizations, local
government and municipal bodies.

•

Stock and storage of emergency goods and services and first aid medical services should be
prompt to disaster affected areas and necessary food and relief materials should be dispatch assoon as possible to the affected people.

•

Community based disaster prevention culture lead by community members and civil society canplay a vital role for disaster mitigation.
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Conducting regular drills/training and simulation is effective to reduce disaster related deaths.

•“Disaster Risk Reduction begins at school” It will be necessary to inform and ensure participationof communities, government and individuals to ensure that disaster risk reduction is fully
integrated in school curricula in high disaster risk countries and that school building are build andretrofitted to withstand natural hazards.

Tools for Disaster Risk Reduction:
Emergency drills are most effective tools to minimize the loss of lives and properties during
disasters. The government of Japan and its local governments have focused on the importance of theemergency drills conducting everywhere of the country to make people conscious about disasters.
“What was heard can be forgotten, what was watched can be learned, and what was performed can beunderstood.” One of the most interesting drills is Card Game.
The following are the merits of game;
1. Positive participation can be expected because of the attitude towards the word “game” although it
is not merely play.
2. Participants can find their lack of knowledge or problems for themselves during the game3. Learning about feelings
4. Participants can notice other people’s ways of thinking.
5. Participants can think about what issues in real disaster prevention are represented by the rules of
the game.
It is true that, active participation, sharing the important information and responsibility from as many
sectors of the community as possible can reduce the disaster risk at all level
The Great Hanshin –Awaji Earthquake Memorial DRI Museum:This museum built in memory of the deceased and victims of the Great Hanshin-Awaji
Earthquake. Actually the Library is very informative and touchable also. The DRI library collects andpreserves many materials related to the Great Hanshin –Awaji Earthquake and disaster reduction.
Firstly, the tremendous destructive power of earthquakes is portrayed using sound and dramatic images
on a big screen. It made me very gloomy. In fact, it demonstrates the problems faced by Japanesepeople during the recovery and reconstruction process after the earthquake up to present day.
Personally, I must appreciate the courage and morale of Japanese people, putting their hard labor, had
overcome the disaster. I knew the approaches to disaster prevention and reduction by citizens andinternational disaster reduction organizations. At the last movement of my visit, I saw the animation film.
That film was a love of “life” and the courage to live depicted through the story “the fall of Freddy the leaf”
It is the truth of life. I was impressed to see the management of the museum at Kobe, Japan.
The Volcanic geology, and volcano education Center, Shimabara, The Preventive Measuresfor Sediment Disaster: :Japan is situated at the active Volcano Zone in Asia. I knew about the proper location or places
prone to sediment of disaster occur in Japan.
I gained the knowledge about 3 pillars of the sediment disaster counter measures. These are:
1. Protecting life and Property-Using hard ware Measures (Soil erosion control project, landslide
prevention, Steep slope collapse prevention works)
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2. Protecting life-using software Measures (preparing hazard Map, and preparing warning system)
3. Controlling land development-Controlling new residential development
I watched the erosion control facilities and knew about the History of sediment related disasterand concerned legislation. I found that, the landslide prevention and Slope failure prevention is the main
roles of national and prefectural government in sedimentation disaster reduction. At the end, I
overviewed a hazard map about sediment related disaster.
Landside Museum at NIGAWA-YURINO-Area:
This area was suffered by the worst mass movement disaster caused by the Great Hanshin
Awaji earthquake. I gained information about the Landslide Museum. The entire model about preventive
landslide in the museum was very informative. I learned that the museum is very effective for raisingpublic awareness on the landslide disaster. If we can construct this kind of museum in my country, it
would be great help to enhance our people’s knowledge on disaster especially in the landslide.
Bangladesh is also the landslides prone countries. So I was interested to understand Japanese model
which I will prefer to use in my country also. I was informed that when earthquake occurred, a100m-wide,
100-long hillside on the right bank of the NIGAWA River Collapsed. Approximately 100,000m of
displaced soil crushed 13 houses and blocked the Nigawa River, killing 34 people. An emergency
project for landslide rehabilitation was planned and initiated in the after effects of the earthquake. The
project was completed in 1997. I realized that if we want to live a natural environment, we need tounderstand the devastating power of nature and learn how to protect ourselves from natural disaster byvisiting land slide project in Kobe, Japan.
NHK National Broadcasting Authority, Japan:
NHK has been serving Japan by collecting rare documents and pictures and video footage ofdisasters and accidents. NHK by using modern studio and most sophisticated cameras and equipments
have made the organization a symbol of reliability. NHK broadcasting stations throughout the country
aim to broadcast programs that are more attractive and easily understood by the viewers. NHK has
been putting special importance to disaster related news, early warning on tsunami, earthquake andvolcanoes. Japanese media played significant role in recent 3/11 earth quake and tsunami whichcaused huge loss of lives and properties of the people of northeast part of Japan.
Cabinet Office of Japan Tokyo:
Japan is a disaster prone country. Every year there is a great loss of people’s lives andproperties in Japan due to the Natural Disasters. Along with a series of reforms of the central
Government of Japan, It has created the posts of State Minister for Disaster Management, appointed a
Deputy Cabinet Chief Secretary and established the Cabinet information Collection Center. The Cabinet
Office has a supporting role regarding disaster management matters. The Cabinet office has developed
the Central Disaster management Communication systems involving government offices and public
Corporations via hot line.
Japan Meteorological Society Tokyo:
The Meteorological Society of Japan at the time of disasters play key role in issuing early
warning regarding earthquake, tsunami ,volcanoes, landslides and floods.. Japan Meteorological
Agency has been promptly issues warnings and information on earthquakes and Tsunamis to mitigate
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the disasters and protect lives and properties. In the event of large scale earthquake in ocean areas
JMA announces estimated Tsunami heights and their arrival times in advance which can be regarded as
Tsunami warnings and Advisories. In the event of earthquakes, JMA announces hypocenter magnitude
and where strong shaking has been felt which can be called as Earthquake Information.
Disaster Management of Energy Supplies at Osaka Gas Company Limited:
I joined one lecture on Disaster Management of Energy Supplies at Osaka Gas Company
Limited. The company Executive and Technical Experts demonstrated us how Osaka Gas Engineering
Company has constructed the main Building of the company on base isolater which is earthquake
resistant. Also the Company has been Supplying Gas to the whole prefectures area among 6.63 million
Households. After the Great Hanshin-Awaji (Kobe) Earthquake fire had been escalated due to gas line
damage and it had taken many valuable lives and properties of prefectures. On the basis of the pastexperience company has introduced disaster preventive city gas production and new supply
connections,/networks, monitoring and control system, which is safe and earthquake proof.
The Role of Community Radio Broadcasting by FM-YY in Japan:
Community Radio plays a significant role at the time of Disasters in Japan. The concept ofcommunity Radio in Japan was replicated in Indonesia and other places of the world. Community
volunteers operate this radio at the time of emergency and helps people to safe their life and properties.
The Emergency Disaster Management by Hyogo Prefectural Emergency Management
Training Centre, Miki City.
This Emergency Disaster Management center provides training facilities to the emergency
disaster management volunteers. For whole year training schedules and training programs are preparedfor volunteers. Fire drill exercises are also organized on regular basis. This center is situated in the heartof Miki City. The Environment has also been protected here. A modern stadium has been constructedwith Helipad so that in the time of emergency relief goods can be dispatched to the affected people
within shortest possible period. At the time of emergency affected people will be given temporary shelterat the stadium located here.

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RECOMMENDATIONS FOR COMMUNITY PARTICIPATION ON DISASTER RISK REDUCTION IN
MONGOLIA
The most powerful tool for disaster management is community empowerment and community
sustainability. Because the following recommendations are proposed to improve risk reduction efforts
through the strengthening of key stakeholders’ abilities to mitigate, prepare for and respond to adisaster:I.

For stakeholders:• Government of Mongolia has to integrate disaster reduction activities into normal practice of good
governance and into the regular planning and budgeting process.
• Communities have inherent capacity to respond to any disaster. Community help themselves andthey are not the passive recipient of aid or help. Therefore, in disaster management strategy,
communities should be involved in managing risks that may threaten their life and property.
• Government has to provide financial and technical and morale support to disaster related training
centers, NGOs who would act as change agents in the community participation process on disasterrisk reduction. (Train the people in community about disaster management in general to be thevolunteer in that community)• Development of participatory land use and development plans that incorporate disaster risks
considerations• Greater sharing of information on the government’s preparedness, mitigation and response planningand actions initiated at the time of national disasters is necessary in order to achieve transparency of
purpose. An effective communication with the media has to be made, so that the extent of the crisisand the efforts of the government to respond to the crisis are correctly reported.
• Networking among the communities should be further strengthened to share the experience andknowledge and expertise on disasters.
• Awareness creation, sensitization and capacity building of media in disaster risk reduction arenecessary for effective use of the reach of media and civil society.
• Strengthen SAARC Disaster Management System for member countries to play central role in DRR.
• There is no disaster related museum in Mongolia. Like Japan, some disaster related museums canbe established so that school children and members of the public can learn about disaster reduction
activities through visits to disaster reduction museum.
• Application of microfinance and micro insurance to increase social protection and resilience• Strengthening of local governance, including the disaster risk reduction capacities of local
governments• An evaluation and impact assessment may be undertaken in respect of the ongoing relief andrehabilitation efforts by the government to determine their effectiveness (strengths and weaknesses).
• Urgently develop retrofitting strategy for public facilities, schools and hospitals with tools forprioritization to demonstrate proper earthquake technology.
• We have to establish voluntary organizations for disaster prevention in communities or, disaster safe
welfare communities, in Mongolia.
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II. For Policy Planning and Monitoring Division, Disaster Management Department, Fire Fighting
Department, State Reserve and Recovery Department of NEMA:• Greater need for formalization of disaster management plans at the community level• Comprehensive Action plan should be developed for increasing seismic safety of public facilities,
schools, hospitals and life lines to minimize the future losses of lives and properties that may result
from major earthquake.
• Development of disaster mitigation tools for communities at risks by involving schoolteachers andstudents in the process, in order to assess hazard and risk of community.
• Develop and implement a public awareness strategy involving communities and develop a perception
through public information campaign that area is disaster prone.
• Participatory Learning Action (PLA) introduced by community based disaster management should be
strengthen so that community’s capacity for managing disaster related project will increase.
• Experience and knowledge on the Great Hanshin-Awaji earthquake can be replicated and shared indisaster related training institutions in Mongolia to face future disaster challenges.
• Community awareness programs on disasters such as Kaeru Caravan, school retrofitting program,disaster training /drills and simulation program in Japan can be replicated in Mongolia and should be
rigorously applied in schools and communities in Mongolia.
• Strengthen the Community member’s capacity building processes that promote self help, unity within
the framework of local disaster reduction.
• Essential relief equipment (rescue vehicles, fuel supplies, telecommunications, mobile, fax etc.),
materials and supplies (food, shelter materials, medicines, water purification tablets, etc.) necessary
to respond effectively to natural disasters and human resources to tackle any catastrophe must be
catalogued prior to the seasons of flooding and earthquake. Special needs of the vulnerable groups
including the disabled, children and the elderly should be taken care of.
• National development plans and national disaster risk management planning must be integrated inorder to protect valuable developmental assets from being adversely affected by natural or humaninduced hazards. Gender issues should be considered in the planning and implementation of all
aspects related to flood risk management. Steps may be taken to establish an effective system for
Damage and Need Assessment (DANA).
• A mechanism for continuous training should be put in place to improve the capacity and skills of all
those who are involved in disaster management. Arrangements for the necessary training of relevant
staff should also be made to build up capacity for making assessments after any natural disaster. The
Disaster Management Department may be strengthened in terms of human resources and logistics toundertake the responsibility.
• The awareness campaign and advocacy program may be intensified in order to apprise the common
people of the devastation of past natural disasters, as well as to prepare them for future catastrophic
events.
• Need to establishing the database for the affected people for victim registration and tracking.

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Research paper of VR Mongolia• Establish national disaster information management database system accessible to all stakeholders
and to the communities.
III. For Disaster Research Institute:
Disaster risk reduction paradigm requires a multi-faceted approach either in preparedness or in
response. Because Active participation, sharing the important information and responsibility from as
many sectors of the community as possible to reduce the disaster risk at all level.
• Continue research and analyze CBDRM, CBDRMit, the additional element in disaster management
necessary to reverse the worldwide trend.
• Research and analyze local perceptions and adaptations to disaster risks as a basis for a disaster
reduction strategy in Mongolia.
• Research and analyze Methodology to enhance communities’ awareness of disaster risk and todevelop their ability to cope with and to respond disasters correctly.

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BIBLIOGRAPHY
1. Regional Workshop on Best Practices in Disaster Mitigation, 2009.
2. Reference material, ADRC, 2012
3. Implementing the Hyogo Framework for Action through Gendered CBDM, Disaster Management in
Hyogo Prefecture , 2005-2015
4. The Contribution of the Surveying Profession to Disaster Risk Management, 2006
5. Risk and poverty in a changing climate, 2009
6. Annual Disaster Statistical Review 2010 – The numbers and trends
7. Police Agency of Japan, date: 21 April 2011
8. Global Assessment Report on Disaster Risk Reduction, 2011
9. Lorna P. Victoria, Director, Center for Disaster Preparedness
10. ADPC-CBDRM-11, 2003
11. UNISDR, Risk and poverty in a changing climate,2009
12. “Disaster management” of JICA training material, 2012
13. “National Post” on 13 October 2011
14. Miki Kodama, Local area network by “Building resilience of communities to disasters in Japan”,
ADRC
15. Disaster Management in Japan (Cabinet office, Government of Japan)
16. JICA, Hyogo “Bokomi” Guidebook Kobe City Fire Bureau (KCFB)
17. Location of the sea of Japan (LME) book Terazaki, 1999
18. Handbook for the utilization of DMAM for community based disaster management
19. Disaster Prevention and People: Working Towards the creation of a strong society
20. Sustainable community based disaster management (CBDM) practices in Asia
21. ISDR, Local Governments and Disaster Risk Reduction, Good Practices and Lessons Learned,
2010
22. www.unisdr.org
23. www.plus-arts.net
24. www.adrc.asia

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ENDNOTESCASE STUDIESAs part of this initiative, the idea of publishing a compilation of good practices and lessons
learned by local governments in disaster risk reduction emerged from a consultative meeting held inBarcelona in May 2008 between UNIDSDR, UNDP, the ILO International Training Centre and theAdvisory Group of the Local Government Alliance for Disaster Risk Reduction. The compilation
showcases the essential roles played by local and regional authorities in loc addressing disaster risks at
sub-national and local levels, but also the challenges and constraints to sustain or scale-up these
efforts.
It makes the case for increased local-level risk reduction action, and is aimed to stimulate moreinterest and commitment in this area from governments, practitioners, policy and decision makers.
For example the cases that address specific policy areas include “Community risk assessment as a partof the country’s comprehensive disaster risk reduction programme (Bangladesh), other cases highlightbroader issues of institutional strengthening and local capacity building on different hazard types andwith different stakeholders, such as:•

The Comprehensive Disaster Management Programme: Empowering local governments(Bangladesh)•Strengthening connections between local communities and local governments (El Salvador)•

Risk-awareness programme for schoolchildren and communities (Saijo city, Japan)•

Memo’Risks: Students survey community risk knowledge (France•

Community-based poverty reduction for disaster risk reduction (Nepal)
We will continue to serve local governments and citizens through contributing to innovative

ways to learn and develop sustainable urban communities, safe from disasters.
The challenge is to locate, collect and create access points for a range of tools and resources fordisaster risk reduction. Research, monitoring and evaluation should be considered in all project andprogramme development. Support to localize and indigenize training programmes to reach communities
and local governments in all areas.
Box 2. The Comprehensive Disaster Management Programme (CDMP), in Bangladesh
The Comprehensive Disaster Management Programme (CDMP) is a whole-of-government strategy led by the
Bangladesh Government’s Ministry of Food and Disaster Management, and implemented by a range ofgovernment and private organizations. The community intervention part of the programme aims to increase
community resilience and strengthen local government capacity to manage risk reduction as part of theirdevelopment responsibilities. The programme has developed and implemented a standardized community risk
assessment, and helped develop local action plans for mainstreaming disaster risk reduction into the work ofgovernment authorities. Most importantly, the programme provides a local funding structure to implement priority
actions, motivating local authorities and communities to take part. The CDMP has been successfully piloted anddesigned for national roll-out.

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Box 3. The Reducing Vulnerabilities in Ahuachapan and Sonsonate Programme (PRVAS), in El Salvador
Based throughout the watershed areas of Ahuachapan and Sonsonate in El Salvador, PRVAS is a disaster risk
reduction programme coordinated by a consortium of NGOs and donors, working to bring local communities into
dialogue with local and national governments and funding sources. Where local governments are committed to theprocess, this has resulted in strong multistakeholder engagement, community capacity building, and collaborative
disaster preparedness exercises.

ISDR, Local Governments and Disaster Risk Reduction, Good Practices and Lessons Learned, 2010

Box 4 The ‘Mountain-watching’ and ‘Town-watching’ project (Saijo city, Japan)
In 2004, Saijo City was hit by record typhoons that led to flooding in its urban areas andlandslides in themountains. As a small city with semi-rural mountainous areas, it faces unique challenges in disaster risk
reduction. First, Japan’s aging population represents a particular problem. Young able-bodied people are very
important to community systems of mutual aid and emergency preparedness, and as young people tend to moveaway to bigger cities, smaller cities and towns in Japan have an even older population than the already
imbalanced national average. Secondly, people within a small city with semi-rural areas may not often be familiar
with how to help people in a different physical environment just on the other side of town.
To meet both of these challenges, the Saijo City Government has instigated a risk awareness programme
targeting schoolchildren, and focusing on different physical environments of the city, from the mountainside to thetown.

ISDR, Local Governments and Disaster Risk Reduction, Good Practices and Lessons Learned, 2010

Box 5 Memo’Risks: Students survey community risk knowledge (France)
The Memo’Risks initiative has been operating in the Loire River catchment area of France since2004, and brings together local governments and schools to survey local disaster risk awareness.
Students are rallied by city Mayors to investigate the possible hazard impacts on their town, to map risks, and tosurvey the preparedness and risk knowledge of the local population. The survey results become a valuable data
resource on perceptions of risk and the level of risk knowledge in the local population. Importantly, the process ofcollecting, presenting and publicising the results is used by the local government to raise disaster awarenessthrough the media, to increase community participation in disaster risk reduction, and to form the basis oftargeted disaster risk information campaigns.

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Box 6Community-based poverty reduction for disaster risk reduction (Nepal)

People living in the flood plains of Nepal face complex disaster risks that are not just the result of natural hazards,
but of poverty and poor development practices. Risk assessment in South
Central Nepal found a varied mix of factors that was resulting in not only high flood risk, but also slow-onset
disasters, such as crop failure in times of drought. Using the existing provincial
authorities’ channels for local development, this initiative tapped into Village and District level
Development Committees to mainstream disaster risk reduction into poverty reduction. The initiative worked toprotect agriculture, mitigate drought and improve flood preparedness. It was NGO and local government-led, withwide-ranging multi-stakeholder involvement.

ISDR, Local Governments and Disaster Risk Reduction, Good Practices and Lessons Learned, 2010
Box7. School Disaster Education Program
Disaster reduction materials already been inserted to the school curriculum from the elementary stage to above
levels. For the purpose of the disaster education is to learn new ways for the preparedness and apply newtechnologies with it. School evacuation drills are conducted in several ways; Drills during the break time, andDrills with out pre notice to the children. Parents are actively involved to all the programs in the schools.
Students are specially trained as;
1. Fire fighting and first aid
2. Refuge Drills
3. Disaster Drills
4. Digital Hazard Mapping
5. Welfare Works
6. Camp Management
Since their child hood, they are learnt all kinds of disasters and they are giving that message to their parents andneighbors. That is a one of an important system to disseminate the disaster related knowledge to the public.
This is very common in Japan to hear of the past experiences of the survivors of the major disasters, This would
be a great chance to share the experience and gain lessons to prepare for the future disasters.

Besides training, promotion of capacity development through experience sharing, South-Southexchange and knowledge transfer; networking and partnership building; and joint project development
and implementation. This is a pressing issue for everyone. Local governments must become the driversof adaptation and mitigation strategies that will result in greatly reduced disaster risk and loss potential.
The campaign will focus on sharing practical measures on effective climate change adaptation and thelinks to disaster risk reduction.24

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