Flood and Sediment DisasterMay 2018
Disaster Management Bureau, Cabinet Office
Disasters caused by flood and sediment frequently occur almost every year. Suchrisks would be increasing due to the climate change caused by global warming.
However, the damage of flood/sediment disasters can be reduced by understanding
its risk correctly, and preparing against it appropriately at home and in communities.
People can protect their own lives by making actions unemotionally and properly
against the danger. This brochure provides the insights for “preparedness” and“response” to flood/sediment disasters.

1. What is the risk of heavy rain?

The risk of heavy rain is increasing due to climatechange.

Annual Number of Days per Station (Days)

Annual Number of Days with Precipitation ≥200 mm

Annual Number of Days per Station (Days)

Year
Annual Number of Days with Precipitation ≥1.0 mm

Global warming has been ongoing. According to the Fifth Assessment Report (AR5)of the Intergovernmental Panel on Climate Change (IPCC), all scenarios, regardless of
future emissions of greenhouse gases, forecast a rise of global average temperature
towards the end of the 21st Century and increasing risk of the impact of climatechange .
In Japan, heavy rainfall events beyond 100 mm a day or 200 mm a day has been
increasing, while rainfall events beyond 1 mm a day has been decreasing. If therelatively high level of greenhouse gas emission continues in the future, it is estimatedthat the frequency of short-duration downpours will be increased in every region.

Recent major flood/sediment disasters
2014

2015

Year
2016

(Source: Japan Meteorological Agency website)

The concentration of population and buildings, accumulation of various
functions in urban areas and large sale, complicated use of undergroundspaces, resulting from economic growth, may increase human casualties
and property damage due to flood and sediment disasters. This will requireconsiderable cost and time for recovery and reconstruction.
In recent years, flood/sediment disasters causing major damage haveoccurred successively in various regions of Japan, such as sedimentdisaster caused by heavy rain in Hiroshima City in August 2014, Kanto/
Tohoku Torrential Rain in September 2015 and the Northern Kyushu
Torrential Rain in July 2017.
Heavy rain leading to flood and sediment disasters is caused by various
factors.

July 6 – 11

Typhoon 8 in 2014

July 30 – August 11

Typhoons 11 and 12 in 2014

August 15 – 26

Prolonged heavy rain in 2014

August 20

Heavy Rain in August 2014 (Hiroshima Sediment Disaster)

July 16 – 18

Typhoon 11 in 2015

August 22 – 26

Typhoon 15 in 2015

September 9 – 11

Kanto/Tohoku Heavy Rain in September 2015

September 27 – 28

Typhoon 21 in 2015

June 20 – 21

Heavy rain in western Japan in 2016

August 16 – 31

Typhoons 7, 9, 10 and 11 in 2016

September 1 – 5

Typhoon 12 in 2016

September 6 – 7

Typhoon 13 in 2016

September 16 – 21

Typhoon 16 in 2016

September 30 – October 5 Typhoon 18 in 20162017

June 30 – July 10

Seasonal rain front in 2017, Typhoon 3 in 2017 andthe Northern Kyushu Torrential Rain in July 2017

August 3 – 9

Typhoon 5 in 2017

September 13 – 18

Typhoon 18 in 2017

October 21 – 23

Typhoon 21 in 2017

October 27 – 30

Typhoon 22 in 2017

* The Office for Information and Countermeasure was set up in the Cabinet Office, or fatalities/missing
persons were reported.
* Descriptions in red indicate relatively significant damage.

Linear precipitation system causing the Hiroshima Sediment Disaster

Heavy rain due to typhoon

A phenomenon whereby cumulonimbus clouds occurring continuously in a windward
direction move leeward in succession and trigger torrential rain is called the “backbuilding phenomenon,” because they resemble a series of buildings. The phenomenon
continues unless the factors causing water vapor and rising air current are disappeared
sent, or the wind moving the cumulonimbus clouds changes. Then, the cumulonimbus
clouds line up to form a “linear precipitation system.”

Clouds surrounding the typhoon will cause heavy rainover a wide area. Clouds hitting a mountainous area ora slow-moving typhoon are particularly likely to cause
prolonged heavy rain in the same area, leading toserious damage.

Back building phenomenon in the 2014 Hiroshima Sediment Disaster

Total precipitation in Iwate Prefecture caused by Typhoon 10 in 2016
(00:00 August 29 – 12:00 August 31)

Upper figure: Time series precipitation intensity
distribution by live High-Resolution Precipitation
Nowcast (23:40 August 19 - 00:40 August 20)
Lower figure: Vertical cross-sections of the line
segments in the upper figure (00:40 August 20)
Yellow ellipses indicate individual cumulonimbus;
two red ellipses indicate cumulonimbus clustersof overlapped individual cumulonimbus clouds

Rain that triggers these meteorological disasters cannot necessarily be forecast accurately in advance, though
forecasts have become more accurate than before. There are many cases where there is little time from forecast to
evacuation, or evacuation has already become difficult due to heavy rain when residents decide to evacuate.

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Once intense
heavy rains occur …

· The river may suddenly swell or flood.
· Inundation on/under the floor will occur or the roads will become flooded.
· Water which cannot be completely drained away by ditches and sewage may flow into
underground shopping centers and basements.
· The ground loosens, causing debris flows and slope failures.

Inundation in Joso City, Ibaraki Prefecture (September 2015)

Intense heavy rains attacked Asakita, Asaminami and Nishi
wards in Hiroshima City for several hours from nighttime
on August 19 to dawn on August 20 in 2014. The intensive
downpour triggered numerous debris flow and landslides,
causing tremendous damage, including 76 fatalities andapproximately 400 completely or half-destroyed houses;
mainly in the residential area adjacent to the steep slope.

The sediment disaster in Hiroshima (August 2014)(Photo taken by MLIT on September 10, 2015)	During September 9 - 11 in 2015, heavy rain hit the Kanto/
Tohoku regions due to continuous inflow of moist air caused
by Typhoon 17 and low atmospheric pressure transformed
from Typhoon 18. In Joso City, Ibaraki Prefecture, roughly
200 meters of the Kinu River embankment was destroyed,
resulting in tremendous damage such as building outflow,
about 7,100 houses completely or half-destroyed, wideranging inundation and long-term flooding.
(Source: White Paper on 2015 Disaster Management)

Around Hakata Station Chikushi Exit flooded due to overflow of Mikasa River(July 2003)

From July 5 to 6, 2017, total precipitation peaked at over
500 mm in northern Kyushu, causing record 24-hour
precipitation in Asakura City, Fukuoka Prefecture and Hita
City, Oita Prefecture. This heavy rain resulted in 40 fatalities
and 2 missing persons mainly in mountainous areas as well
as housing damage, such as completely or half-destroyedhouses and inundation above floor level.

Asakura City damaged in the Northern Kyushu Torrential Rain (July 2017)(Source: Ministry of Land, Infrastructure, Transport and Tourism website)

FreeVector.com

Due to torrential rains at the end of the rainy season, hourly
and daily rainfall amounted to 104 mm (16:50) and 315 mm
respectively in Dazaifu City, located upstream of Mikasa
River on July 19, 2003, both of which were record figures.
Accordingly, Mikasa River flooded downstream, causing
significant damage, particularly in the vicinity of Hakata
Station and impacting significantly on the Japan Railway
and subway network for an extended period.

(Source: Photo taken by Cabinet Office)Protecting yourself from disasters requires understanding and preparedness. In particular for disaster management leaders
and residents in the community, this leaflet introduces the necessary knowledge and emergency supplies as well as dailycollaboration with the community, in order to protect residents from flood/sediment disasters.

22. What are the risks?

Protecting yourself from flood and sediment disasters requires understanding
the risk of these disasters in the community.

Hazard map
The hazard map shows the expected damage areas by forecasting the damage caused by flood, sediment and other natural disasters. The map showssuch information as the areas at risk of damage from disaster, the extent of damage and evacuation routes/sites. Note, however, that damage may occur
at places not designated as risk area on the hazard map, or at a scale larger than the information on the hazard map.

Example of a flood hazard map

LegendLocations of past levee collapse
Areas where early evacuation is necessary* In this area, there is a risk that houses may be flushed
away and/or immersed in water soon, causing flooding
over 3 meters deep if the embankment breaks down.

Collapse of levee on
July 12, 1940
Haguro-bashi bridge
Water Level/
Flow Observation
Station

Areas at risk of flood that might destroy
wooden houses
Areas where houses may be destroyed due
to bank erosion
Evacuation center
Expected flood depth

Chohyoh Budokan(martial arts stadium)

Itsuki Elementary School
Ohgon Community
Disaster Management
CenterOhgon District
Itsuki District

Collapseof levee on
August 6, 1921

Over 5 m
3-5 m
0.5-3 m0-0.5 m(Source: Website of Tsuruoka City, Yamagata Prefecture)

Kushibiki Junior High School

The hazard map of your city can be obtained from the disaster management bureau of the municipality. The Hazard Map Portal Site of the Ministry ofLand, Infrastructure, Transport and Tourism (MLIT)* allows all citizens to obtain the required hazard map by choosing the municipality and type of map.
* Since it may take time to update the Portal site with the latest information, please contact the municipality for the latest version of maps.

MLIT hazard map portal site (This site written in Japanese only)

Multi-layered hazard map (Since June, 2014)

My hometown hazard map (Since April, 2007)

Provides helpful risk information on disaster management layered
with one map
Multi-layered hazard map

You can search national-wide hazard maps.
My hometown hazard map

Expected flood and inundation
Sediment disaster risk area

Choose hazard map location you need to know
Prefectures

Enter an address

Expected tsunami and inundation

Choose information you need to know

Sediment disaster Tsunami

Choosing
by pictograph
Choose information you
need to layer with in a panel

Sediment disaster hazard map

Municipalities

Choose a municipality name

Tsunami hazard map

Choose a type of hazard map
Flood hazard map
Visit URL on the Internet

Flood

Flood hazard map

Expected flood and inundation plus Tsunami and inundation

Storm surge hazard map

Internal water hazard map
Visit URL on the Internet
Storm surge hazard map
Visit URL on the Internet

Volcano hazard map

Tsunami hazard map
Visit URL on the Internet
Sediment disaster hazard map
Visit URL on the Internet
Volcano hazard map-

https://disaportal.gsi.go.jp/

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2. What are the risks?

Sediment disaster hazard zone
Areas where sediment disasters are likely to occur are designated as sediment disaster hazard zones by the prefectural government. According
to the amendment of the Sediment Disaster Prevention Act in 2014, it is now mandatory for prefectural governments to publicize the results of basic
investigation and a corresponding goal was set to complete the basic investigation by the end of FY2019.

Outline of the Sediment Disaster Prevention Act

The designation of sedimentdisaster hazard zones is publicizedon the relevant prefecture’s website.

The Sediment Disaster Prevention Act* is intended to promote non-structural measures to protect people’s lives from sedimentdisasters, including the dissemination of information on areas potentially endangered by sediment disasters, improvement of alertand evacuation systems, restriction of new housing and land development and promotion of the relocation of existing houses.
* Official name: Act on Promotion of Sediment Disaster Countermeasures in Sediment Disaster Hazard Areas

Guidelines on sediment disaster risk management [MLIT]· Basic policies on measures to prevent sediment disasters· Implementation guidelines for basic investigation· Designation guidelines for sediment disaster hazard zones

Implementation of basic investigation [prefectures]· Implementation of necessary investigation for area designation andsediment disaster countermeasures

Designation of sediment disaster hazard zones [prefectures](Areas where sediment disasters are likely to occur)
Information transmission, improvement of alert and evacuation systems[municipalities]

Designation of sediment disaster special hazard zones [prefectures](Areas at risk of buildings being destroyed, which may cause severe
injuries or fatalities of residents)
License system for specified land development
Target: Sale of residential land and development of social welfare facilities

Structural regulation of buildings
Recommendations on relocation of buildings

Implementation of basic investigation
Investigation of topography, geology
and land use of areas anticipated to
be damaged from sedimentdisasters, such as mountainstreams and slopes

Designation of area
Designation of areas anticipated to be exposed tosediment disasters according to basic investigation<Alert and evacuation systems>· Municipal Disaster Management Plan
(Basic Act on Disaster Management)<Structural regulation of buildings>· Setting criteria for the structural
strength of residential buildings(Building Standards Act)

<Relocation support>· Loans of Japan Housing Finance Agency, etc.
(Source: MLIT)[Sediment disaster hazard zones(Yellow zones)]

Slope failure

Landslide

Debris flow

The phenomenon whereby thepart right under the surface of theslope becomes loose due to thepenetration of rainwater and/or
earthquake, leading to a sudden
slope failure. Once underway, theslope is disrupted very quickly, so
if it occurs near housing areas,
many people may be unable toescape, often leading to fatalities.

The phenomenon whereby
all or part of a slope slowly
subsides due to the influence ofgroundwater and gravity. Given
the huge volume of soil mass
involved, they cause tremendous
damage.

The phenomenon whereby
stones and earth/sand on a
mountainside/river bed are swept
away downstream at a strokeby ongoing extended rain or
intense heavy rain. The debris
flows at a speed of 20 to 40 km/h; destroying houses and fields
instantly.

Slope failure precursors

Landslide precursors

Debris flow precursors· Cracking in cliffs· Pebbles continuously falling· Water gushing from a cliff· Stop of spring water· Spring water becoming turbid· Ground rumbling· The ground cracking or sinking· Water spewing from cliffs andslopes· Well and swampy water
becoming turbid· Ground/mountain rumbling· Trees leaning· Cracks and steps being
generated· Mountain rumbling· River water suddenly becoming
turbid and driftwood beginningto mix· Smell of rotten soil
· The river water level falling
despite ongoing rain
· Sounds of trees splitting andstones hitting each other

Areas where injuries or fatalities among residents are
anticipated to occur in the event of the concentrated steep
slope failures, and the risk will be widely informed and alertand evacuation systems provided.

[Sediment disaster special hazard zones(Red zones)]
Areas where damage to buildings is anticipated causing
serious injuries or fatalities among residents in the event ofconcentrated steep slope failures, and a permit system forspecified development and structural regulations of buildings
will be implemented.
Example of a sediment disaster hazard zone map(Source: Website of Public Relations Office, Cabinet Office)(Source: Sediment Disaster Portal Hiroshima)

From past experiences, it is known that “precursors” can be felt
just before the disaster really happens but the disaster itself has
often been already happening by this time. Accordingly, it should
be assumed that there will be little time to evacuate. Residents
must take actions to evacuate immediately if sensing “something
wrong.”(About evacuation actions, see page 8)

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Various forms of information on heavy
rain are provided by various organizations
such as the Japan Meteorological Agency.

3. What type of “information” is available?
Information for severe weather preparedness

The Japan Meteorological Agency announces the information for severe weather preparedness such as weather warnings/advisories and bulletins toprevent or mitigate disasters caused by heavy rain and storms. To support the activities of disaster management related organizations and judgementof residents for ensuring their safety, JMA announces the “bulletins” a few days before such severe phenomena triggering disasters are expected tohappen, then announces advisories, warnings and emergency warnings in each stage of the danger intensification.
Emergency warnings/warnings/advisories and weather bulletin are as follows:
Category of information for severe weather preparedness

Type

Category

Emergency warning

Heavy rain (sediment disasters, inundation), windstorms, snowstorms,
heavy snow, high wave, storm surges
Heavy rain (landslide, inundation), flood, windstorm, snowstorm,
heavy snow, high wave, storm surge· Issued if there is significant likelihood that a serious disaster.

Heavy rain, flood, gale, gale and snow, heavy snow, high wave, storm
surge, thunderstorm, snow melting, dense fog, dry air, avalanches,
low temperature, frost, ice accretion, snow accretion· Issued if there is potential for the development of serious
adverse conditions.

· Real-time risk map· Weather bulletins on Heavy Rains· Typhoon Information· Hazardous wind watch· Bulletins on exceptionally heavy downpours· Probability of Warnings· Weather bulletin on long-term high temperature· Announced every 10 minutes to show where the risk of disasters
is rising to supplement warnings.
· Announced as required several days before a warning to attract
attention, and amid ongoing warnings as necessary to explain
the progress and prediction of the phenomenon and the points tobe considered for disaster management.
· Announced as required to show weather conditions not subject
to warnings but likely to have significant impacts on society.

Warning
Advisory

Weather bulletin

Warning classes· Issued if there is a chance of a serious disaster.

The key to issuing heavy rain warnings is to combine them with the relevant real-time risk maps for collective use of the two. Specifically, when a heavy
rain warning or sediment disaster alert information is announced, it is important for residents to ensure their safety by checking when and where the risk
is expected to increase by the real-time risk map and being fully aware of the danger approaching the community.

Time zones andareas of rising risk

Dissemination of Rising Risk

Warnings (time series of risk levels) When

Probabilityof Warnings
Municipalities

Advisories

Disseminationof rising risk

Confirm whattime and whicharea are in thehigh risk

Residents

Warnings

Real-time risk maps for warnings Where
Sediment disaster

Detailed understanding of risk

Sediment disaster
alert information

Inundation

Emergency
warnings
etc.

Support mayor’s
decision on evacuation
recommendations
Promote voluntary evacuationof residents

Flood
High
Risk level

Bulletins on exceptionallyheavy downpours

Low

Emergency warnings/warnings/advisories
Once a warning level phenomenon occurs, there is a danger of fatalities. A warning is to be announced approximately 3-6 hours in advance to the
expected happening of warning level phenomenon which may cause serious disasters. Also, when a warning level phenomenon is expected to occur
about 6 hours later or even later, an advisory, which is likely to be replaced by a warning, is to be announced before announcing the warning. For
instance, when a warning level phenomenon is expected to occur on the dawn of the following day, the advisory comes with an indication of “Highpossibility of becoming a ○○ warning by dawn”.

Bulletins on exceptionally heavy downpours
Bulletins on exceptionally heavy downpours is announced by the Japan Meteorological Agency after a heavy rain warning is issued, in order to informthat the rainfall is at levels rarely observed and may cause sediment disasters, inundation and flood in small and medium rivers. The observation points
and municipalities where heavy rain was observed are specified clearly in this announcement. It is possible to check where the disaster risk is actuallyrising by referring to the “real-time risk map (sediment disaster, inundation, or flood).”5

3. What type of “information” is available?
River Flood Information

In main rivers ...

MLIT publicizes real time water level
information of major rivers on its website.

For helping residents’ evacuation, the Japan
Meteorological Agency, in collaboration with
the MLIT and prefectural agencies, forecasts
flood of specific sections of rivers while
indicating water levels and flow rates. The
forecast comprises four types of information:
information to call attention to flooding,information to provide a warning on flooding,information on flood hazard, and information
on flood occurrence. Each information isannounced with the name of the river such as“information to call attention to the ○○ riverflooding” or “information to provide a warningon the △△ river flooding.”

Title of flood forecast(type)The stage that the action of municipalities
and residents is requested

Criteria for announcement

Information on the ○○Occurrence of flood (level 5)River flooding occurrence(Forecast of flood water*)(Flood Warning)
Information on the ○○River flood hazard(Flood Warning)

Stage requesting attention to flood.

Water having risen to the hazardous water level (level 4).

Flood may occur any time soon.
Take responses to the occurrence of flood suchas evacuation (Evacuation recommendations)

Information to provide a
warning on the ○○River flooding(Flood Warning)

The water level is estimated to reach the hazardous waterlevel (level 4), or reached to the evacuation warning waterlevel (level 3) and estimated to rise further after a certain
period of time.

Stage requesting attention to the occurrence offlood, including preparations for evacuation (Prepare
to evacuate and start evacuating elderly and otherpersons requiring special care)

Information to callattention to the ○○River flooding(Flood advisory)

The water reached the flood alert level (level 2) and isestimated to rise further

Stage of being careful about the occurrence offlood* Flood forecast
According to the amendment of the Flood Control Act and the Meteorological Service Act in July 2005, areas at risk of flood and the water depth in thearea after the adjacent river overflows are included in the forecast, in addition to the water level and flow rate of the time when there is a risk of flood.
(Source: Japan Meteorological Agency website)
As of March 2017, flood forecast is implemented in some parts of the Tone and Abukuma Rivers.

Real-time flood risk map

risk map for flood
Forecast Real-time
warning
Forecast
Forecast at 15:00
up to 3 hours
ahead

Municipalities

Residents
Learning both “local information” and“forecast” enables an announcementof evacuation recommendations
before flood occurrence at the proper
time and a decision to startevacuation.

“Light purple” indicates
forecasting areas endangered byrises in the water level going
forward

Real-time risk maps for flood warnings
High

Extremely dangerous

Risk level* Since FY2017NEW!
The real-time flood risk map
includes information on small andLocal Water gauge and surveillancemedium rivers that are not the target
information camera, etc.
of flood forecast (rivers for which
Local informationwater level information is announced
Local situation
at 15:05
and others), that indicates the floodrisk level of approximately 1km
section each of the river by fivelevels in different colors on the map.
As forecasts up to 3 hours ahead
are updated every 10 minutes, it
is possible to check which riveris exposed to increased flood risk at a glance when a flood warning/
advisory is announced.
When the highest risk level “extremely dangerous” (dark purple) is
indicated out of the 5 risk levels, it may become difficult to evacuate
because the roads may already be covered in flood water. Also, given
the exceptionally rapid rise in the water level of small and medium
rivers, it is important to check the latest situations of the river witha water gauge and surveillance camera and promptly decide tocommence evacuation when the “very dangerous” level (light purple)
implying a further rise of water level appears.

In small and medium rivers ...

Flood Warnings and Advisories fordesignated rivers

Very dangerous

Low

(
Watch
Warning

recommendations” if the water( “evacuation)
exceeds the flood alert level“prepare to evacuate and start evacuating elderly andother persons requiring special care” if exceeding thewater exceeds the flood control team stand-by level)

Note the subsequent information

63. What type of “information” is available?
Sediment disaster alert information
When a potentially life-threatening sediment disaster is likely to occur anytime soon, the prefectural government and weather station will jointly
announce sediment disaster alert information to help municipal mayors issue evacuation recommendations and residents decide when to startevacuation. In municipalities where sediment disaster alert information was announced, it is possible to check details of rising risk areas with the realtime landslide risk maps.

Real-time landslide risk map

Risk level

The real-time landslide risk map indicates the risk of sediment disaster due to heavy rain by five levels with difference colors for each 5 kilometersquare area on a map. The forecast is updated every 10 minutes and it is possible to check at a glance where the risk is rising when a heavy rain warning(landslide) or sediment disaster alert information is announced.
When the highest risk level “Extremely dangerous” (dark purple) is indicated out of the 5 risk levels, the sediment disaster risk area/sediment disaster hazard
zone is in an extremely dangerous situation comparable toTime
Real-time landslideTimerisk map (real-time
7:00
Time
previous cases of serious sediment disaster. This means it
8:00
risk map for heavy
9:00
rain warning
is no wonder that life-threatening sediment disasters have(sediment disaster))occurred by that time. Accordingly, considering the time
taken for evacuation, the risk levels of “Very dangerous”
Sediment disasterrisk area(light purple) and “Warning” (red) are displayed based on
forecasts up to 2 hours ahead.
Life-threatening zones
People living in the sediment disaster risk area/(zones requiring
evacuation)
sediment disaster hazard zone are recommended toevacuate as early as possible. Elderly people in particular
Evacuation information to be issued for sediment
Examples of actions taken by residents in sediment
Color indication
are required to start evacuation when “Warning” (red)disaster risk areas, etc. in the Cabinet Office guideline
disaster risk areas in the Cabinet Office guideline
Evacuation instruction (Emergency)
Complete evacuation
High Extremely dangerous
emerges at the latest, while residents in general are
Very dangerous
Evacuation recommendation
Start evacuation promptly
required to do so when “Very dangerous” (light purple)
Prepare to evacuate and start evacuating elderly and other persons requiring special care Start evacuating elderly and other persons requiring special care *Warmingappears at the latest. Moreover, evacuation should be
Confirm real-time risk maps frequently
Watch
Note the subsequent information
Low Note the subsequent information
completed before “Extremely dangerous” (dark purple)* In particular, in areas endangered by sediment disasters that occur abruptly and are difficult to forecast, residents are strongly
emerges.
recommended to leave for the designated emergency evacuation site against sediment disasters as soon as the evacuation
preparations are completed.
(Source: Japan Meteorological Agency website)

The relationship between evacuation information/actions and the information for severe weather preparedness announced in each phase is shown in the following table:
Weather
conditions
Heavy rain is
expected in a few
days to 24 hours

The possibility of heavy
rain is strong

Possibilityof warnings Bulletins on
Heavy Rain

12hr - 3hr before
heavy rain

Advisories

Rain starts falling
Rain becomes heavier

Municipality’s
responses

JMA’s Information

・Increasing preparedness for disasters
・Confirming emergency contact of public
officers
・Paying attention to subsequent weatherchanges

Real-time risk
maps
Flood Warnings
and Advisories fordesignated rivers

High possibilityof switching towarning

Flood Alert
Information

Advisories

Watch(Advisory level)

Flood
Warning
Information

Warnings

Alert(Warning level)

Second disaster management system

Preparing for evacuating elderly and otherpersons requiring special care

(Providing for issuing “Prepare toevacuate and start evacuating elderly andother persons requiring special care”)

Prepare to evacuate and startevacuating elderly and otherpersons requiring special care
Third disaster management system

Emergency
warning

Bulletins on Exceptionally
Heavy Downpours

Heavy rain
observed only once
every few decades
over a wide area

Landslide Alert Information

Torrential rain
intensifies

Flood Risk
Information

Very dangerous
Life-threatening
disaster may occur
anytime soon

・Increasing preparedness for disasters
・Grasping dangerous places including sediment disaster risk
areas or expected flooding zones, etc.
・Confirming evacuation sites and routes

Confirming the latest information
frequently(Allocating contact personnel)(Enabling judgment to issue evacuation
recommendations)

Torrential rain is falling

Confirming weather informationand hazard maps

First disaster management
system(If “Warning” appears on the real-time flood risk map, andit exceeds the Flood Control Team Stand-by water level)

3hr - 2hr before
heavy rain

Resident’s
actions(If “Very dangerous” appears on thereal-time flood risk map and it exceeds
the Flood Alert water level)

Evacuation recommendations
Fourth disaster management system

・Elderly and persons requiring special care, living in dangerous places
including sediment disaster risk areas or expected flooding zones, etc.
and taking time to evacuate should prepare for evacuation

Starting evacuation of elderly and otherpersons requiring special care・Elderly and other persons requiring special care, living in dangerous places
including sediment disaster risk areas or expected flooding zones, etc., and taking
time to evacuate should evacuate promptly to safe places outside dangerous zones
including sediment disaster risk areas or expected flooding zones, etc.
・ Residents who live in areas endangered by sediment disaster that occurs very suddenly
and is difficult to forecast or areas along rivers endangered by sudden rises in thewater level should evacuate as soon as preparations for evacuation are completed.

Starting evacuation promptly

・Start evacuation promptly to safe places as outside dangerous
zones including sediment disaster risk areas or expected flooding
zones, etc.

(Enabling decision to issue evacuation recommendations)

Flood
Occurrence
Information

Extremely dangerous

Evacuation instruction(Emergency)

Unexceptionallyabnormal situation
which may be
encountered only once
every few decades

・Disseminating emergency warning toresidents
・Reconfirming areas subject to
Evacuation instruction (Emergency)

Not strange iflife-threatening disastermay have occurred

Completion of evacuation

・Evacuation should be completed before falling into thissituation
・Complete evacuation, in a prior stage, before the“Extremely dangerous” (deep purple) appears in real-timerisk map.

(Source: Japan Meteorological Agency)

For more detailed explanation of residents’ actions according to the color indications on the real-time risk map, please see the information/explanation pages below.
• Real-time landslide risk map: https://www.jma.go.jp/jma/kishou/know/bosai/doshakeikai.html#d• Real-time flood risk map: https://www.jma.go.jp/jma/kishou/know/bosai/riskmap_flood.html• Real-time inundation risk map: https://www.jma.go.jp/jma/kishou/know/bosai/riskmap_inundation.html

7

4. How to evacuate?

Once you notice the impending danger, you need to take appropriate evacuation
actions.

When a disaster occurs or is likely to occur, the head of the municipality will issue evacuation recommendations as follows, according to the Basic Act on
Disaster Management:* Not necessarily issued step by step (in this order).

Prepare to evacuate and startevacuating elderly and other persons
requiring special care
Persons requiring special care who takelonger time to evacuate and their supporters
are asked to leave for evacuation.
Other people should prepare for evacuation,
monitor subsequent information for severe
weather preparedness and water levels andstart evacuation voluntarily. In particular,
people in the areas where sediment disasteris likely to occur abruptly and difficult toforecast, and areas along rivers endangeredby sudden rises in the water level, people
are strongly recommended to leave for thedesignated emergency evacuation site forthe corresponding disaster as soon as they
complete evacuation preparations.

Evacuation instruction(Emergency)

Evacuation recommendations
Residents are asked to evacuate promptly
to the designated emergency evacuationsite for the expected disaster.
In case residents decide that evacuation to
the designated emergency evacuation site
may be life-threatening, they need to evacuate
to “a safe place in the neighborhood” or“secure indoor safety” as evacuation actions
improving the possibility of survival.

In an extremely dangerous situation wherea disaster may occur any time soon, those
who have yet to evacuate are asked urgently
to do so to the designated emergency
evacuation site corresponding to the
expected disaster.
In case residents decide that evacuation to
the designated emergency evacuation site
may be life-threatening, they need to evacuate
to “a safe place in the neighborhood” or“secure indoor safety” as evacuation actions
improving the possibility of survival.

When evacuation recommendations are issued, residents must take evacuation actions promptly. Note, however, that
evacuation recommendations may not be issued in time in case of the sudden occurrence of a disaster. Even if noevacuation recommendations have been issued, residents should take evacuation actions if they sense danger. The
important thing is to “make own decision.”
Leaving for evacuation means early evacuation to this place in principle.

○ “Designated emergency evacuation site” (designated by municipalities)· Emergency evacuation site for to protect people’s life from a disaster· Note that the site differs by hazard such as sediment disaster and flood* People can evacuate not only to designated emergency evacuation sites but also to places where humancasualties due to hazard are not anticipated to occur (e.g. relative’s or friend’s house) by making own decision.

In situations where residents cannot move due to heavy rain to the places where inundation is not anticipated to occur
including designated emergency evacuation site...

○ “Safe place in the neighborhood”· People may judge to take emergency evacuation to a “safe building in the neighborhood” (e.g.
private apartments)· Therefore, it is necessary to check an appropriate evacuation site from ordinary time
Reinforced concrete building nearby

In case it is dangerous to even go out ...

○ “Securing indoor safety”

Move to a room as far away from the mountain as possible on the upper floor of the house8

土

どんなときが危ないのか？

4. How to evacuate?

次の情報を見聞きしたらただちに避難をしましょう！
Disaster/Evacuation
Card

To prepare for evacuation in case of emergency, it is useful
to make a “Disaster/Evacuation Card” to recognize in advance where to evacuate and
土砂災害警戒情報※
避難勧告
平成26年7月9other necessary information.
長野県南木曽
死者１名

土砂災害警戒情報： ○△町・△△町・○○町

土砂災害に警戒！
！

Past disaster
information

Route toevacuation site

Necessary disastermanagement measures(e.g. measures for
persons requiring
special care)

Hazard area on
evacuation route○△町全域に土砂災害警戒情報

この情報が出された場合は、速やかに避難する必要があります。
この情報の前に避難準備・高齢者
Organize these sets of information by hazard type such as floodand sediment disaster
等避難開始※が出されることもあります※土砂災害警戒情報って？
す。
長い間雨が降り続いているときや急な大雨が降ったとき、山などに多くの水分が含まれることで、今にも土砂災害が起こりそうなときに出される情報のことです。
あなたがお住まいの市町村は、この情報をもとに避難勧告を出しています。

自ら※避難準備・高齢者等避難開始って？

このままの状況が続けば災害発生のおそれがあるため、土このままの状況が続けば災害が起こるおそれがあるため、砂災害のおそれがある場所にお住まいの方や要配慮者の方
避難に時間がかかる人や身の危険を感じた人に避難をして“Timetable” indicating theに避難を促す情報です。
もらうために出される情

evacuation actions and alertof evacuation for each type of
hazardDisaster/Evacuation
Card( ●● district×）
×× )災害・避難カード（●●地区×Flooding of X river“My map” describing theinformation such as routeto the evacuation site

Disaster
災害

Sediment disaster

Ｂマンション

Sediment
disaster
土砂災害

Evacuation center
避難先・場所and site‘A’ elementary
Ａ小学校
school
そこまで逃げられない（）

場合はＢマンション(‘B’ apartment
if it is impossible to
go to the specified site)

Signs of
避難の合図
evacuation
Sediment disaster
土砂災害警戒情報
alert information

Floodingof X river
Ｘ川のはん濫C Municipal
Ｃ市民会館Hall

東京都大島町

死者・行方不明者
39名

Sediment disaster

Sediment disaster

平成25年10月16日

Flood risk
information

はん濫危険情報*※災害に巻き込まれないために、日頃からどのような情報に注意すればいいのか
Check what kind of information you need to pay attention to avoid being caught
確認しておきましょう！
up
in a disaster!
Source: Brochure entitled “Protect Yourself from Sediment Disasters!” (Cabinet Office (Disaster Management Bureau))“Disaster/Evacuation
Card” must be:
内閣府政策統括官（防災担当）
問合せ先*〒100-8914
Fixed in東京都千代田区永田町1-6-1
a prominent placesuch as the fridge door, or（中央合同庁舎８号館）
電話：03-5253-2111
http://www.bousai.go.jp* Placed in the wallet and carried around.

To properly evacuate ...
· Check in advance the location of the evacuation site nearby.
· Even if no evacuation recommendations are issued, pay attention to the information for severe weather preparedness
to prepare for an early response.
· If evacuation is dangerous, it is also effective to stay in the upper floors of the building (vertical evacuation) insteadof evacuating outdoors. (People would be easily carried away when walking in flowing water.)· Persons requiring special care, such as the elderly people who cannot evacuate by oneself, take time to evacuate.
They need to take evacuation actions at an early stage with the help of supporters. It is also necessary to care for thesafety of supporters.

9

土砂災

おきたいもの情報

自分に関する
その衣服のポケットに入れっぱなしにできるところがポイントです。

5. How to prepare?

No one knows when disaster may occur. Be prepared against the expected disasterby stockpiling emergency supplies, preparing items to take out, and purchasing
insurance to avoid belated regret.
身元や連絡先を記したカードしておきたいもの（例）
外出先でいつも身につけておきたいもの（例）

病

自分に関する
Importance of dailyawareness and disaster preparedness 状 況 を 把 握するため· Prepare items to take情報
out.
In preparation for evacuation by a flood disaster, always buy a few more necessities than usually required and get ready to take them out together withvaluables
when heavy rain approaches.
ＬＥＤライト
革手袋
レインコートポケットラジオ
身元や連絡先を記したカード
病院の診察券、病名・処方薬を書いたメモ

靴

閉じ込められ
た時のため

状況を把握
するため
入れ歯や補聴器

Water
and food
水と食料<Necessities>

Whistle
笛 メモ帳・筆記具

Pocket radio
ポケットラジオ
通帳等の番号を控えたメモ

水

重要なことは、無意識に持って歩けるような気軽さです。大<In case of being confined><To grasp at current
situation>のではなく、できるだけ、普段の生活の中に組み込んで、平時に閉じ込められ入る、キーホルダーに付く、バッグや衣服のポケットに入れっぱ·
Confirm
emergency
contact
pointsandmeeting
placesamong
familymembers
and relatives
しょう。安価でどこでも入手しやすいものでないと、定期的に更た時のため

Confirm how to check the safety of family members and relatives and where to meet them when disaster occurs among family members and relatives
in ordinary times. Also, use services such as “Disaster Emergency Message Dial (171).”
笛
水チョコレート等
口を覆うハンカチーパー、ラップ、アルミホイル、大型ゴミ袋、水のペットボトルん。

家庭やオフィスに常備しておきたいもの（重要なことは、無意識に持って歩けるような気軽さです。大きさ・軽さもさることながら、サイフにCommunity cooperation(mutual support) is important
古い方から使い、日常生活で買い足していきましょう
速やかな避難入る、キーホルダーに付く、バッグや衣服のポケットに入れっぱなしにできるところがポイントです。
· For relief and evacuationin the event of large-scale disasters, the routine neighborhood relationship comes into its own.

え～のためthrough events organized mainly by neighbors or self-governing
もし被災したら？
· Residents can be familiar with disaster management initiatives in their community

associations. In participatory disaster drills, residents can also experience measures such as safety confirmation, rescue/relief, emergency feeding,evacuation actions, and livelihood at evacuation centers.
紐なしのズック靴
ＬＥＤライト· To reduce the damage caused by disasters, the community relationship in ordinary times is important.

家庭やオフィスに常備しておきたいもの（例）

なければ困る
速やかな避難もののため
In case a large scale disaster causes extensive damage to the house, it will be costly to repair and rebuild the house. Public support funds or donations

Utilization of insurance

from goodwill alone will not suffice for housing/living reconstruction. To smoothly rebuild housing/living, it is important to be prepared for disasters in a
常備薬 革手袋 入れ歯や補聴器
紐なしのズック靴
ＬＥＤライトレインコート“self-help” manner, such as subscribing to insurance andmutual aid.
By subscribing to insurance/mutual aid compensating for the damage from storm/flood/sediment disasters, money will be paid according to the extent
of damage. Note, however,that depending on the amount to be subscribed andthe contents of the contract, the full cost to reconstruct the house may
防災のために特別なものを用意するのではなく、できるだけなければ困るnot be paid. The contract of insurance already taken out must be reviewed to confirm whether the insured coverage and contents suffice.
無意識に更新されるものでまかないましょう。安価でどこでもThere are different もの
types of insurance/mutual aid for disasters such as thosewhich add compensation for disaster to the fire insurance (mutual aid) or
include it in basic compensation. Ensure the compensation required by fully新したり分散して置くことができません。
recognizing the disaster risk to the house.
Furthermore, regardless of the extent of building damage,
may be considerably damaged and水と食料
need to be repurchased.
House owners
常備薬household goods
入れ歯や補聴器
通帳等の番号を控えたメモ
例えば、ティッシュやトイレットペーパー、ラップ、アルミ
are recommended to prepare both for building compensation and for household property compensation.
などは、ある程度の量を蓄え、順々に古い方から使い、日常生活
In addition, the car owners are recommended to purchase a vehicle insurance
that compensates for hydrological disasters.

防災のために特別なものを用意するのではなく、できるだけ、普段の生活の中に組み込んで、平時に無意識に更新されるものでまかないましょう。安価でどこでも入手しやすいものでないと、定期的に更The reconstruction cost of completely destroyed houseもし被災したら？
by the Great

Number/proportionof homeowner households
East Japan Earthquake amounted to about 25 million yen on average,
新したり分散して置くことができません。
enrolling in insurance/mutual aid (buildings
while the cost covered by public funds was amounted only to about 4
例えば、ティッシュやトイレットペーパー、ラップ、アルミホイル、大型ゴミ袋、水のペットボトル
only) (Cabinet Officetentative calculation)
million yen, even including goodwill donations.

などは、ある程度の量を蓄え、順々に古い方から使い、日常生活で買い足していきましょう
With compensation for fire:
28.8 million cases (82%)
With compensation for flood disaster:
23.07 million cases (66%)
Compared to fire compensation, the rate of subscription forflood disaster compensation is still relatively low.

Housing construction
もし被災したら？
Shortfallcost
Approximately
259
million yen* Estimated by the Cabinet Office tentatively, based on data compiled by the General
Insurance Rating Organization of Japan (aggregation of fire insurance contracts
covering buildings (houses) of all insurance companies as of the end of FY2015)
and data compiled by the Japan Cooperative Insurance Association Incorporated(aggregation of mutual aid contracts covering buildings (houses) of the National
Mutual Insurance Federation of Agricultural Cooperatives, National Mutual
Insurance Federation of Fisheries Cooperatives, National Federationof Workers and～今すぐできる7つの備え～
Consumers Insurance Cooperatives and Japan Life Co-operation League as of theAmount necessary forend of FY2015, excluding contracts for which it is difficult to disaggregate data for
housing reconstruction
houses only).

9

Money is also required forrebuilding livelihood such as:• Household goods
Approximately• Moving costs～今すぐできる7つの備え～
21 million
yen

Approximately
1 million yen
3 million yen＋* Numbers are taken from a case fromthe Great East Japan Earthquake

Donation
Financial support for affected people toreconstruct their livelihoods

Amount to be received
from public support/mutual
supportAccording to the Disaster Relief Act, the municipality is responsible for emergency repairs of “half-destroyed” houses until an upper limitof 584,000 yen (as of April 1, 2018). Low interest loans based on the Finance System for Disaster Recovery Housing are also available
for “partially destroyed” houses.

106. How to develop a community plan?
Power ofmutualsupportLimitation ofself-help

It is important to discuss and plan amongcommunity in advance over how to protect
your family and neighbors from sudden
flood and sediment disaster.

Limitation of
public support

There is a limit to what a person can do by oneself.

Prefectural and municipal governments might
not be able to provide immediate help.

“Challenges in a community should be solved by the community.” This is not limited to disaster management,
but community power is tested particularly during disaster. Accordingly, it is important at first to share among thecommunity the knowledge of disaster risks such as flood and sediment disaster, then fully deliberate on how toprotect the lives and property of families and community residents, and prepare countermeasures. It is not easy
process, but discussing the issue in the community is the first step towards supporting each other in the community
in an emergency.
It is also important to deliberate together with local governments, private companies, organizations and experts.
The “Community Disaster Management Plan” is a measure in order to consider the solution in the community. Most
importantly, the community can be empowered through planning process to prepare for disasters.
The Great East Japan Earthquake had people recognize how crucial it would be to link up self-help, mutual support and public support ascountermeasures for large-scale region-wide disasters. Subsequently, the “Community Disaster Management Planning” System was newly establishedto promote mutual support in the community, subject to the amendment of the Basic Act on Disaster Management in 2013. The “Community Disaster
Management Plan” is a plan concerning disaster management activities voluntarily implemented by local residents to improve mutual support of thecommunity (implemented from April 1, 2014).

1. Local community based bottom-up plan
The “Community Disaster Management Plan” is a bottom-up plan on disaster management activities voluntarily performed by local residents.
Furthermore, the plan (draft) formulated in this way can be proposed as part of the Local Plans for Disaster Risk Reduction.

2. Plan according to district features
The Community Disaster Management Plan can be designed according to the features of each district and the expected disasters. For instance, theformulating body of the plan, the organization responsible for disaster management activities, the extent of community (district) and the contents of theplan can be decided freely according to the features of the district, such as.

3. Plan to continuously improve community disaster management capability
It is important for local residents in a community to not only formulate a Community Disaster Management Plan, but also implement disastermanagement activities from ordinary times according to the plan, and continue such activities while periodically evaluating and reviewing the disastermanagement activities.

Community Disaster Management
Planning System is …

National
government

11· Collecting and providing information
on good practices

Prefectures· Dissemination and promotion of theplanning system, overview of the plansin the prefecture

Formulation of a Community
Disaster Management Plan
(Articles 42-III, 42-2,
Basic Act on Disaster Management)

Municipalities· Draft a Community Disaster
Management Plan
· Propose the Plan

· Based on the proposal, decide whether aCommunity Disaster Management Planneeds to be included in the Municipal
Disaster Management Plan
· In case it is decided to be necessary,
stipulate the Community Disaster
Management Plan in the Municipal
Disaster Management Plan

Local residents,
business operators, etc.

6. How to develop a community plan?

Naganuma
DRM Map: The Entire Naganuma District
⻑沼地区防災マップ：長沼地区全域
豊野

Naganuma District, Nagano City, Nagano Prefecture(model project in FY2014)

豊野支所

駅

豊野西小学校This district is in a flat, low-altitude zone located between Chikuma
and Asa rivers, which are frequently affected by heavy rain disasters.
The local residents, in cooperation with the City government and River
Office (national government), discussed among them and set its own
evacuation standards based on the water level of the Chikuma River.
Through the formulation of the Community Disaster Management Plan,
the residents themselves agreed with the City government about theirevacuation standards.

長野新幹線
車両センター

56km 標

赤沼公会堂

水位標
東屋

東屋
津野公会堂

57km 標

長沼小学校

長沼支所・長沼公民館仮）穂保高台公園予定地
東屋

ヤマト運輸（株）
りんごの郷

アグリながぬま58km 標

やすらぎの家すばる

かかりつけ薬局：

東屋

東北交番
古里小学校

東屋

東北中学校
農民館

グループホームながぬま

59km 標平成27
４月日
発発 行行 平成27
年年 月

消防局柳原分署

長沼地区住民自治協議会〒381-0003 長野市大字穂保 941
TEL・FAX026-217-2262
E-mailnaganuma.ju@ae.wakwak.com

0

0.5

1.0 km「この地図は、長野市長の承認を得て、長野市都市計画基本図 2,500 分の 1、
長野市地形図 10,000 分の 1 を複製したものである。
（承認番号 26 都第 13 号）–

Significance of the Community
Disaster Management Plan
● Resident enhance awareness on selfhelp and mutual support by deciding
and sharing the rules of the district
and conducting practical drills.
Theplan contributes to good relationships●
in community and more locally tailoredurban development in the district throughparticipatory planning process.

PromoteCommunity Activities
活動を発展させよう

Community Disaster Management
地区防災計画（案）Plan (draft)○ Cooperate with the prefectural and○ 行政と連携しよう
municipal
governments.
with activities in the○ Cooperate○ 地域の活動と連携しよう
community.
○
他の組織と話し合おう○ Discuss with other organizations.
○ 取組を発信しよう
the planning initiative.
○ Disseminate

Predisaster

InitialEmergency Recovery Reconstruction

Who
What

災害時の力を高めよう
Empowerto Cope with Disasters

How many○ 事前に対策をしよう
measures in advance.
○ Takeeducation and drills.
○ Facilitate○ 教育・訓練をしよう○ Review the contents.

In what ways

○ 中身を見直そう

During a disaster
災害時

In normal
times
平常時

What can we do together?
みんなで何ができるかな
What should I do?
自分では何をやるべきかな

What will government do?
行政では何をやってもらえるのかな
Whatkinds of disaster are expected?
どんな災害があるんだろうIsthe area around here resilient
この辺りって災害に強いのかな
against disasters?

The Disaster Management Bureau of the Cabinet Office introduces
guidelines for the community disaster management plan and model
district projects on the website entitled a “Community Disaster
Management Plan Formulated by Everybody.”
http://www.bousai.go.jp/kyoiku/chikubousai/index.html

12取り組んできたためと考えられる
 今回の豪雨では、甚大な被害が生じているものの、これらの取組により一定
6. How to develop a community plan?

推進 急激に変化する気象条件においては、行政からの避難勧告等の発令（公助
隣住民への避難の呼びかけ（共助）によって避難することも重要[Examples of community
initiatives in the July 2017 the Northern Kyushu Torrential Rain]

求められる対応In the July 2017 the Northern Kyushu Torrential Rain, evacuation
Affected Asakura City (July 2017)
recommendations were issued in Asakura City, Toho Village and Hita
City based on the information for severe weather preparedness and the
local situation in rapidly worsening weather conditions. Each of the local
governments had also addressed disaster management in advance, in
cooperation with residents’ associations, taking advantage of the existence（居住地近隣への指定緊急避難場所（又はそれが困難な場合には
of local communities. The residents in the areas affected by this disaster
had
experienced the Northern
KyushuTorrential
Rain
in
July
2012
and
thus
were
必要性，行政からの情報が入手できない場合に備え、ハザードマップの活用等により、避難場所・避難経
highly aware of disastermanagement. They had formulated a voluntarily
る理解を平時から深める必要性，避難支援等関係者の状況は平日日中・平日夜間・土日祝日で異なるこ
disaster managementmap
in each district, prepared a list of persons requiring
必要性（支援者自身の被災リスク軽減と支援力の強化の両面を考慮），出水期前に多数の住民と自治体
special support for evacuation as well as their supporters, and carried out
evacuation drills. Accordingly, it is recognized that communication among theneighbors contributed to reduce the damage.

 住民が自ら水害・土砂災害から身を守るための手引書の作成や、住民・行政計画の作成等を推進することにより、自助・共助の取組を促進。手引書の作成
た、自助・共助を強化する各自治体の取組についても参考事例として記載し、組の重要性についても周知

グを踏まえた対応＜①地域の防災力＞

高く、平成２９年７月九州北部豪雨の際には、住民が自ら危険を判断したり、近隣住られていた
 水害への理解を促し避難に関する取組を促進するため、地形情報等を活用し、平成２４年７月九州北部豪雨の経験を踏まえ、行政と住民が日頃から防災・減災に報提供を推進 災害発生との関連の強い“危険度分布”等の新たな情報の一層の理解・活用に、これらの取組により一定程度、被害の軽減も図られたと考えられる
 水害・土砂災害時に適切に避難行動がとれるよう、専門家の助言を踏まえる<Initiatives
in the community>
Matsunaga District voluntary disaster-prevention map (flood/sediment disasters)

Asakura City
(voluntary disaster management map)
朝倉市（自主防災マップ）
避難勧告等の発令（公助）のみではなく、自ら危険を判断し避難すること（自助）や、近することも重要· In Asakura City, work began in FY2011 to formulate

東峰村

・朝倉市では、平成２３年度から各地区
・年1回、6月
a “Voluntary Disaster Management Map” for eachの「自主防災マップ」を作成。平成２６
えた避難訓
district,and all districts completed formulation of the
年度までに市内全地区分のマップを作
1,000人がmap
by FY2014.
書の作成や、住民・行政・専門家等が一体となったワークショップ等による地区防災
成済み
· The
map was formulated by the workshop method,・公助（村がす
取組を促進。手引書の作成にあたっては、今回の現地調査・ヒアリングを通じて得られ
whereby board members of the community participated
・地域の役員が参加し、意見を出し合い
助（自分ででAppearanceof workshop
ワークショップの様子
in the formulation process under collaboration
も参考事例として記載し、地域の災害の危険性への理解促進に向けた平時からの取ながら地域と行政の協働で作り上げて勧告」等のbetween the community and the prefectural and
場所（又はそれが困難な場合には次善の策として自主避難場所）の確保や平時から避難場所と避難経路を把握する
いくワークショップ手法によりマップをるサポータ
municipal
governments. The map was distributed to
資料４－２（参考）九州北部豪雨における名簿の活用
資料４－２（参考）九州北部豪雨における名簿の活用
活用等により、避難場所・避難経路等の状況を踏まえて住民自身の判断で早期に避難する重要性・必要性に関す作成し、地区内の全世帯に配布
allhouseholds in the district.
避難路や危中・平日夜間・土日祝日で異なることから、それぞれの場合に分けて、要支援者の避難支援の方法を予め定めておく
福岡県東峰村の活用内容·・いざというときにあわてることのないよThe map is utilized福岡県東峰村の活用内容
fordisaster management at
・避難済みの出水期前に多数の住民と自治体職員の参加による避難訓練を実施する重要性，想定外の災害が起こりうること等）
homeand in the community,
for example, to confirm○○ 年１回、６月に村民を対象とし、土砂災害に備えた避難訓練を実施。村民のう、避難場所や避難経路、家族や近所などに「避年１回、６月に村民を対象とし、土砂災害に備えた避難訓練を実施。村民の（参考）九州北部豪雨における
the evacuation site androute as well as contact
約半数の約1,000人が参加
め、地形情報等を活用して山地部の中小河川で水害の危険性が高い地域について情約半数の約1,000人が参加の方々の連絡先などを日頃から確認
示するなど
information of families
andneighborsfrom ordinary（村がすること）、共助（地域がすること）、自助（自分でできること）
を分け、
○○
公助
（村がすること）、共助（地域がすること）、自助（自分でできること）
を分け、公助
福岡県東峰村の活用内容するなど、家庭や地域の防災に活用
times
in order to avoid panic
in case of emergency.
村からの「避難勧告」等の発令に合わせ、要支援者に対するサポーターによる村からの「避難勧告」等の発令に合わせ、要支援者に対するサポーターによる避難支援、避難を通じた避難路や危険箇所の確認等を実施
避難支援、避難を通じた避難路や危険箇所の確認等を実施
情報の一層の理解・活用に向け、周知活動などの平時からの取組を促進○ 年１回、６月に村民を対象とし、土砂災害に備○○ 避難済みの確認をスムーズに行うため、玄関などに「避難済」の目印（黄色
避難済みの確認をスムーズに行うため、玄関などに「避難済」の目印（黄色
約半数の約1,000人が参加
いタオル）を掲示するなどの工夫を凝らした訓練を実施
専門家の助言を踏まえるなど地域の実情に応じた防災訓練の実施を促進いタオル）を掲示するなどの工夫を凝らした訓練を実施

Toho Village (evacuation drills, assistance for persons
東峰村（避難訓練・要支援者支援）requiring special care)

ショップの様子· An evacuation drill for villagers is conducted once a year in June
・年1回、6月に村民を対象とし、土砂災害に備
to prepare for sediment disasters. Approximately 1,000 people,
えた避難訓練を実施。村民の約半数の約
about
half of the villagers, participate in the drill.
1,000人が参加· Public
support (what the village government does), mutual
support(what the communityand self-help (what、共助does)（地域がすること）、自・公助（村がすること）
individuals
can
do)
were
separately
consideredin advance.
助（自分でできること）を分け、村からの「避難As soon as the “evacuation recommendations” were issued
勧告」等の発令に合わせ、要支援者に対す
fromthe village government, they drilled supporters’
るサポーターによる避難支援、避難を通じた
assistancefor evacuation of persons requiring special careandconfirmed evacuation routes and hazard area by through
避難路や危険箇所の確認等を実施
actual evacuation activities.
・避難済みの確認をスムーズに行うため、玄関· Various ideas were devised for the drill, including showingなどに「避難済」の目印（黄色いタオル）を掲
the “Evacuation completed” sign (yellow towel) on the house
示するなどの工夫を凝らした訓練を実施
entrance
to smoothly confirm that the evacuation of theresidents had been completed.

13

公助（村がすること）、共助（地域がすること）、自村からの「避難勧告」等の発令に合わせ、要支援
避難支援、避難を通じた避難路や危険箇所の確認○ 避難済みの確認をスムーズに行うため、玄関な
いタオル）を掲示するなどの工夫を凝らした訓練○

避難訓練の様子
避難訓練の様子
避難訓練の様子The
evacuation drill

避難完了の目印
避難完了の目印
避難完了の目印The “Evacuation
completed” sign

「要支援者」と「サポーター」をあらかじめ設定「要支援者」と「サポーター」をあらかじめ設定
Distributed to each household “Evacuation towel” in which「避難7か条」を書いた「避難タオル」を各戸配布“7 Clauses for Evacuation” are written

避難訓練
Evacuation Action Plan for Persons Requiring
Special Support「要支援者」“Persons requiring special care” and “Supporters” are listed up in advance「要支援者」と「サポーター」をあらかじめ設定

2

告等が発令できたとの意見があった。

＜訓練の目的＞実、停電に備えた対応の再確認、衛星携帯電話の導入促進
等） ※防災関係機関の災害対応力を向上させるため、防災関係機関が連携して災害時に朝倉市における防災体制の強化の取組
発生する状況を予め想定し共有した上で、「いつ」、「誰が」、「何をするか」に着目して、■自治体（職員）
防災行動とその実施主体を時系列で整理した計画。タイムラインの中には、災害発生前
6. How to develop a community plan?
な防災体制の確立～避難勧告等の発令伝達等の訓練～の早い段階から段階的に切り替わる市町村の防災体制についても含む。
伝達される多様な情報から、住民への避難情報の周知す勧告等に関するガイドライン」を周知（防災体制の構築にあたっての教訓等（職員の参集状況は平日日
職員の情報判断力、情報伝達能力の向上
じてそれぞれの場合に分けた上で災害種別や段階ごとに職員の参集基準や体制等をマニュアル化（業務継続計画■地域住民
・降雨による土砂災害を想定した避難勧告等の発令・伝達、避難判断のため
難勧告等の発令訓練等を実施する重要性，元防災担当職員の活用事例
等） governments>
土砂災害発生が危惧される状況において、適切に避難行<Initiatives
in cooperation with prefectural and municipalのロールプレイ形式の訓練を福岡県と朝倉市にて実施（平成28年10月）。
情報収集力と避難判断力の向上
Exampleof initiatives to strengthen the system
・訓練の経験があったことから今回の災害対応において、躊躇なく避難勧
躊躇なく避難勧告等を発令するためのallowing
evacuation
recommendations to be issued
告等が発令できたとの意見があった。
市町村の災害対策本部機能の強化に向けて体制強化の取組例
without hesitation～防災情報システム活用事例集～（抜粋）＜訓練の目的＞·・福岡県・朝倉市における取組を周知
Publication of■自治体（職員）initiatives by Asakura City and Fukuoka Prefecture

・降雨による土砂災害を想定した避難勧告等の発· Role-play type drills
were conducted jointly by Fukuoka Prefecture and伝達される多様な情報から、住民への避難情報の周知するタイミングなど、
Asakura
City to 職員の情報判断力、情報伝達能力の向上
issue and deliver evacuation recommendations and judge
令・伝達、避難判断のためのロールプレイ形式の
thestart of evacuation for assumed sediment disasters caused by rain.
訓練を福岡県と朝倉市にて実施。
■地域住民■ Local governments (officers)
土砂災害発生が危惧される状況において、適切に避難行動をとるための
Improvementof their capacities to judge and deliver■自治体（職員）(Local（自治体）モニターに表示される情報か
government) Decision of whether to provide additional information（自治体）モニターに表示される情報から住民への追加情情報収集力と避難判断力の向上
information
based on a wide range of information received,to theresidents based on the information displayed on the monitor
報の提示を判断
ら住民への追加情報の提示を判断伝達される多様な情報から、住民への避難情
suchas the capacity to decide the announcement timings ofevacuation information to residents.
報の周知するタイミングなど、職員の情報判断力、
Local residents■情報伝達能力の向上（住民）スクリーンに表示されImprovement of their capacities to gather information andmake evacuation decisions enabling them to take appropriate■地域住民
evacuation actions in hazardous situations where sediment
土砂災害発生が危惧される状況において、適disasters are likely to occur.
切に避難行動をとれるための情報収集力と避難判断力の向上Establishment of a system of issuing evacuation
recommendations without hesitation（自治体）モニターに表示される情報から住民への追加情(Local（住民）スクリーンに表示される情報をも
residents) Decision of whether to evacuate based on（住民）スクリーンに表示される情報をもとに避難するかを判断とに避難するかを判断
the information displayed on the screen

躊躇ない避難勧告等の発令体制を構築
報の提示を判断

In Hita City, Oita Prefecture, a riversurveillance camera is set up, which
presents the real time situation ofrivers on its website.

5

出典：福岡県砂防課・朝倉市提供

出典：福岡県砂防課・朝倉市提供

Lessons learned from the Northern Kyushu Torrential Rain in the July 2017
○ Residents need to confirm a designated emergency evacuation site in the neighborhood (or, if difficult, a voluntary evacuationsite as a second-best solution) and grasp at the evacuation site and route.
○ It is important for residents to evacuate early by making own decision, while taking into account the state of evacuation sites/
routes through utilizing hazard maps or other means, in order to prepare for a possible lack of information from the prefecturaland municipal governments.
○ Because the situation of persons requiring support for evacuation differs depending on the timing – daytime on weekdays,
nighttime on weekdays or weekends/holidays, the methods to support the evacuation of these persons need to be decided
in advance according to differing situations. (This will reduce the risk of supporters themselves and consequently strengthen
supporting capacity across the entire community.)○ Accordingly, residents are recommended to discuss among community over a community plan in advance. The plan should
be made together with the prefectural and municipal governments and tailored to the actual circumstances of the community
by taking into account the advice of experts*. With regard to small and medium rivers in mountainous areas in particular,
little information is available and thus residents are recommended to consider how to gather information in cooperation withprefectural and municipal governments.
* Cooperation of specialists with technical knowledge about rivers and earth/sand is also important.
○ It is important for both residents and local government officers to jointly carry out evacuation drills before the rainyseason starts.
○ For all that, DON’T forget that unexpected disasters may also occur.

14

Reference:

The Cabinet Office (Disaster Management), MLIT and The Japan Meteorological Agency (JMA) publicize
various information on flood and sediment disasters on the website, respectively.

[Information for emergency]
Weather warning/advisory (JMA)
https://www.jma.go.jp/en/warn/

Weather warning

Risk of sediment disaster (real-time landslide risk map) (JMA)
https://www.jma.go.jp/en/doshamesh/

Real-time Landslide Risk Map

Disaster prevention information on rivers (MLIT)
https://www.river.go.jp/kawabou/ipTopGaikyo.do

Disaster prevention on rivers

Real-time flood risk map (JMA)
https://www.jma.go.jp/en/suigaimesh/flood.html

Real-time flood risk map[Information for ex-ante preparation]
MLIT Hazard Map Portal Site (MLIT)
https://disaportal.gsi.go.jp/

Hazard map

Sediment Disaster Prevention Act (MLIT)
http://www.mlit.go.jp/river/sabo/linksinpou.htm

Sediment Disaster Prevention Act

Decision and dissemination of evacuation recommendation (Cabinet Office)http://www.bousai.go.jp/oukyu/hinankankoku/index.html

Evacuation recommendations

Guide for Municipalities’ Response to Flood Damage (Cabinet Office)http://www.bousai.go.jp/taisaku/chihogyoumukeizoku/index.html

Flood disaster (guide)

Collection of cases on Disaster/Evacuation Card (Cabinet Office)http://www.bousai.go.jp/oukyu/hinankankoku/saigai_jireisyu.html

Evacuation card

Protect Our House from Flood Disaster and Earthquake
Recommendation for taking out an insurance or mutual aid (Cabinet Office)http://www.bousai.go.jp/kyoiku/hokenkyousai/index.html

Insurance (Cabinet Office)Community Disaster Management Plan Formulated by Everybody (Cabinet Office)http://www.bousai.go.jp/kyoiku/chikubousai/index.html

Community disaster management

Countermeasures for storm and flood disasters (Cabinet Office)http://www.bousai.go.jp/fusuigai/index.html

Countermeasures for storm andflood disasters

Enhancement of preparedness for disaster management during rainy and typhoon seasons (Cabinet Office)http://www.bousai.go.jp/kohou/oshirase/pdf/20170531_01kisya.pdf
Disaster management and risk management e-college (Fire and Disaster Management Agency)
http://open.fdma.go.jp/e-college/

Other portal sites are also available

Government of Japan
Production: Office in Charge of Disaster Preparedness, Public
Relations and International Cooperation, Cabinet Office(Disaster Management Bureau)
03-3502-6984

https://bosaijapan.jp/

The focused readers of those who is developing plans to prepare for flood and sediment disasters in the community as well as
those taking the community’s initiative in supporting the evacuation of local residents when a disaster is anticipated to occur or
has actually occurred. It is recommended to use this brochure as a trigger to prepare for disasters in community.
Cover photo: Triple water turbine damaged in the Northern Kyushu Torrential Rain in the July 2017 (Asakura City, Fukuoka Prefecture)15