Asian Conference on Disaster Reduction 2014 (ACDR2014)

Session1: HFA progress and challenges toward a post HFA

Sharing Good Practices from a
Local Government : Hyogo / DRI
4 March 2014

• Disaster Reduction and Human Renovation Institution (DRI)• Director, Research Department• Masahiko MURATA

The Great Hanshin-Awaji Earthquake
Outline of the Damage>

5:46 a.m. on January 17, 1995

Scale：M 7.3 Depth : 16 Km
Dead：6,434 Injured : 43,792
Financial damage: 10 tri¥($100bil)(2.5% of national GDP)

Com/ Half destroyed: 249,180 bld’gs

2The GHA Eq. Reconstruction Plan
( Hyogo Phoenix Plan 1995-2005 )Basic View: Creative Reconstruction
i.e.“Build Back Better than Before”
Key Principle:
Creation of a Disaster-Resilient Metropolis
where People Can Live Safely andSecurely
Anticipation of the

HFA 2005-2015
3

HFA Progress and Challenges
toward a post HFA by Hyogo / DRI
along with 5 Priorities for Action
1. Ensure that DRR is a national and a local priority
with a strong institutional basis for implementation
2. Identify, assess and monitor disaster risks andenhance early warning
3. Use knowledge, innovation and education to build aculture of safety and resilience at all levels
4. Reduce the underlying risk factors
5. Strengthen disaster preparedness for effective
response at all levels
41 Governance and Institutional Arrangements-1)
Ensure that DRR is a national and a local priority with astrong institutional basis for implementation

Achievements

1) Improvement of the Disaster and Risk
Management System of Hyogo
2) Establishment of the Kansai
Governments Union (UKG)

51 Governance and Institutional Arrangements-1)

1) Improvement of the Disaster and Risk
Management System of Hyogo• Creation of Superintendent of Emergency
Management• Establishment of the Disaster Management Centerwith Standby Accommodation (24-hour Monitoringfor quick response)• Formation of Network of 6 Regional Emergency
Management Bases with stored foods and items
6

11-1)
GovernanceandofInstitutional
Improvement
the DisasterArrangements-1
and Risk Management System of Hyogo

Hyogo Prefectural Emergency
Management & Training Center (54 ha)

Emergency Headquarters Control RoomMiki Earthquake Disaster Memorial Park (202ha)

Dis. Management Center

7
Storage warehouse (under the stand of the athletic stadium 5000m2)

1 Governance and Institutional Arrangements -2)2) Establishment of the Kansai Governments Union (UKG)
Region wide Union:○ A special local public entity with an assembly and administrative
commissions (Article 284 of the Local Autonomy Act)○ Flexible and multifaceted response to region wide administrativeneeds beyond prefectural boundaries.
Profile:○ Established: December 1, 2010
○ Member prefectures(6+1): Shiga, Kyoto, Osaka, Hyogo, Wakayama,
Tokushima, (Tottori ) (Kobe, Osaka, Sakai, Kyoto City joined later)

Aim:○ Achieving a decentralized society
Region dependent decision making on their own accountabilities○ Accountable for the region wide administration of the entire Kansai
RegionA single management through unified management & operation oftransportation and logistics infrastructure in the Kansai Region.
○ Taking on administrative tasks of local branches of the national
government
Dissolving duplication of the national and local governments to8create a streamlined, efficient system.

Collaboration/Coordination

Region-wide Disaster
Management Office,UKG1-2) Establishment of the Kansai Governments Union (UKG)
GEJ Support System by the UKG<Counterpart System>
In the wake of the Great East Japan Eq, UKG
members collaborated to provide quick andeffective support to the 3 heavily damaged
Iwate
prefectures via a Counterparts System.
Miyagi Team
(Hyogo/Tokushima/Tottori)

Miyagi

Fukushima
Fukushima Team
(Shiga/Kyoto)

Iwate Team
(Osaka/Wakayama)

Mobility, Efficiency, Speed, Continuity, and Accountability 9--- Positive Speedy Support without waiting for Requests ----

2 Risk Identification and Early Warning

Identify, assess and monitor disaster risks and enhanceearly warning

Achievements

1) Evaluation of Nankai-trough Great Eq. &Tsunami2) Implementation of J-Alert (Immediate
Emergency Information Dissemination
System)3) Delivering Satellite Phones to villages
which are prone to be isolated○ Phoenix Disaster Management System
Launched in 1997, revised in 2004

○ Hyogo Emergency Net
Launched in 2005, provided in 5 languages

10

2 Risk Identification and Early Warning2-1) Evaluation of Nankai-trough Great Earthquake
Possible Great Earthquakes
Metropolitan
M7 class: impending
to some extent

NB) Lines show major
98 faults.
In Japan, there areabout 2,000 active
faults, which cancause quakes at any
moment, at any place.

Tokai
Could happen at any
momentTrench-type quakes
near Chishima &Japan Trenches

Tonankai/Nankai
Possible in thefirst half of thiscentury

About once every 40
years
2011.3.11
Great East Japan
Earthquake
NankaiTroughRed: Magnitude 8 class
Others: Magnitude 7 class11

2 Risk Identification and Early Warning2-1) Evaluation of Nankai-trough Great Earthquake
Occurrence Probability

Tokai Earthquake○Epicenter:
Suruga trough○Probability:
May occur at
any time
Epicenter area

Keicho Earthquake (M 7.9)
102
years

Hoei Earthquake (M 8.4)
Number of deaths: 5,038

147
years
90
years

2014

68 years from the
Nankai Earthquake

Nankai Earthquake

70 years fromthe Tonankai
Earthquake

TonankaiEarthquake

No majordisasterfor 160
years

Expected
Tokai
Earthquake?

Ansei Tokai Earthquake (M 8.4)
Ansei Nankai Earthquake (M8.4)
Number of deaths: 2,658
Tonankai Earthquake (M 7.9)
Number of deaths: 1,251
Nankai Earthquake (M 8.0)
Number of deaths: 1,330

Tonankai / Nankai
Earthquake Epicenter :Nankai trough Probability :about 70%

Will Occur
Jointly

12

Nankai TroughPacific
Plate
Eurasian Plate

Philippine Sea Plate2-1) Evaluation of Nankai-trough Great Eq. & Tsunami

Estimation of the Greatest Eq. and the Damage
Expanded Epicenter Area Dec. 2011: M9
Massive Earthquakes and Tsunamis have
(2 timesin Westof 2003:M8.7)
been occurred periodically
Japan

B

C

D

E

A

Worst Scenario: 320,000 Death152-1) Evaluation of Nankai-trough Great Eq. & Tsunami

Estimation of the Greatest Tsunami Height
Movement of the CAO Japan

Action in Hyogo prefecture

Guidelines for Tonankai and Nankai
Earthquake Emergency Response Activities(Reduce Damage by half )Regional Dis. Management Plan based on past maximum
Ansei-Nankai Earthquake（in 1854, M8.4）

Occurrence of Great East Japan Earthquake“Unexpected” is not acceptable Thorough action to protect lives
CAO

Hyogo

Estimation of Tsunami height and inundation Area

Study of the greatest Earthquake ・Tsunami
Mar 2012: Seismic intensity and Tsunami HeightAug 2012: Inundation forecast map
Mar 2013: Damage Estimation

・Provisional Estimation of the L2(max) Tsunami
inundation(Published Oct 2011-Mar. 2012)
・ Precise Estimation of L2 Tsunami inundation

Estimated Tsunami Height

Hyogo 2013(2011Double
provisional)

CAO Estimation(2012/8/29)

Kobe

3.9 ( 4.2)m

4m

Amagasaki

4.0 ( 5.0)m

5m

Nishinomiya

3.7 ( 5.2)m5m

Ashiya3.7 ( 5.0)m

5m

Sumoto5.3 ( 7.3)m

6m

Minami Awaji

8.1 (10.9)m9m

Himeji2.5 ( 5.1)m

4m(Published 2013 Dec-2014Feb)

16

16

2 Risk Identification and Early Warning2-2) Implementation of J-Alert<Immediate Emergency Information Dissemination System>

Outline of J-Alert System The Immediate Emergency Information Dissemination System(J-ALERT) is a system that disseminates Weather-relatedInformation from the JMA and Emergency-relatedInformation from the Cabinet Secretariat to local
governments through satellites and immediately activatesboot devices of municipalities automatically, and realizes
immediate dissemination of emergency information directly
to the public.
 Fire and Disaster Management Agency (FDMA) sends
information number and target area code, etc. and all local
governments receive them.
 Only municipalities that correspond to those area codes will
provide automatic information dissemination by pre-recorded
voice or texts for each information code.
172-2) Implementation of J-Alert
J-Alert Conceptual Diagram
Local Government

National Government
CabinetSecretariat

Armedattackinfo. etc.
Meteo.
AgencyTsunamiwarning ・Earthquake
early
warning, etc.

Satellites

F
D
M
A
D
i
s
s
e
m
i
n
a
t
i
o
n

s
y
s
t
e
m

Municipal
building

Kanto
StationAutomaticboot device

J-AlertreceiverAutomaticboot device

Community
Wireless
SystemCable TV
Community FM

internet
Kansai
StationGround channel(back up for satellite
channel)Automaticboot device

Emergency
alert e-mail,Registration
based e-mail,
etc.

18

2-2) Implementation of J-Alert
Status of J-ALERT Implementation at municipalities(As of May 2013)
 Municipalities already installed J-Alert Receiver :1,735 / 1,742 (99.6%)<Hyogo:41 /41 (100%) > Of those, already installed automatic boot device (*) :1,359 / 1,742 (78.0%)<Hyogo: 30/41(73.2%); May 201341/41 (100%); Mar.2014>(*) On receiving info. by J-Alert receiver, activates boot device without
any operation by personnel at each municipality and immediately
disseminates the message to the public.
19

2 Risk Identification and Early Warning2-3) Delivering Satellite Phones to Villages which are
Prone to be Isolated
456 Villages are prone to be isolated* in Hyogo
No connection with other Area

Connecting with other area
Landslide Prone Area
Not Isolated Area

Isolated Area

Road Cutoff

Road Cutoff

Landslide Prone Area

Isolated Area

Branch point of dead-end road
Dead-end of road20

* No Access by car because of road cutoff etc.

20

2 Risk Identification and Early Warning2-3) Delivering Satellite Phones to Villages which are
Prone to be Isolated When disaster occurs, to keep communication with all
remote villages (besides land-line phone and mobile
phone, which may be disconnected in case of large
disasters) is important to secure villagers’ lives
 Hyogo decided to deliver satellite phones or othercommunication facilities to 456 isolation prone remotevillages 178 Villages (39%) got Satellite Phones with back-up battery
and portable power generator (by LPG gas/ not gasoline ) byfinancial support of the Pref. Government
 136 Villages have other radio communication
system Other villages have foot paths to neighboringvillages, which have satellite phone21

3 Knowledge and Education

Use knowledge, innovation and education to build aculture of safety and resilience at all levels

Achievements

1) Human resource development at DRI○ Education programs at Maiko High school(Environment and Dis. Mitigation Course),
Education Center for Dis. Red. of Uni. of
Hyogo○ Publishing of Dis. Man. Manuals for foreign
residents, Guide book for family223-1) Human resource development at DRI
The Great Hanshin-Awaji Earthquake Memorial

Disaster Reduction and Human Renovation
Institution (DRI ) Since 2002
(East Bild.)(West Bild.)

Executive Director

233-1) Human resource development at DRI

The outline of the DRI
MissionRealizing a safer and more secure civil society• Cultivating a Disaster Resilient Culture, reducing social
risk and vulnerability• Developing Policies for Disaster Reduction
6 Main Functions
1. Museum
Exhibits
2.Collection & Preservationof Primary Materials& Documents

4.Action Research on
DRR & Developmentof DRR Professionals
3.Training of Disaster
Management Practitioners

6.Exchange andNetworking

5.HQs Assistance inDis. Response
24

Experiences and lessons from the Great Hanshin-Awaji Earthquake83-1) Human resource development at DRIDRR Education through Museum Exhibit
World’s Largest DRR Educational Museum• Around 500,000 visitors every year to learn Kobe
Experiences <Got 5 mil. Visitors on 27 July 2012>• 60% are students for school excursion• 5% from abroad• Staff of local governments, Community dis. man.
personnel

253-1) Human resource development at DRI

Training of Disaster Management Practitioners
Governors,
Mayors

Local
Government
officials

Management
Courses

Top Forum
1day

Advanced
2days 10people

Expert; A & B
4 days 20people

Basic
4 days 40people

Local
Government
officials

Intensive
Courses<2-day Practical
Map Exercise.>

Supporting
National
Training inTokyo (2013--)26

4 Underlying Risk
Reduce the underlying risk factors
Achievements

1) Hyogo 5-year Infrastructure Implementation Plan
for Tsunami Disaster Reduction

2) Reinforcement of buildings(Houses, Public Buildings）○Phoenix Mutual Aid System
for Housing Recovery

27

Great East Japan Eq. & Tsunami
Great Tsunami (Much higher than the previous estimation and plan)
overflowed seawalls and destroyed them, and caused extreme
damageTo secure lives and property, enough preparedness forthe coming「国土交通白書2011」から引用
Nankai Trough Great Eq. and Tsunami is Crucial→Developed ‘Hyogo 5-year Infrastructure Implementation Plan for
Tsunami Disaster Reduction’ in Feb. 201328

4 Underlying Risk

4-1) Hyogo 5-year Infrastructure Implementation Plan for
Tsunami Disaster Reduction
Level 1 Tsunami

Equivalent level of Ansei-Nankai Earthquake
Once in 100 years○ Basic idea of measures

Protect from overflow of tsunami by seawall○ Measures to be taken①Upgrading of Seawall
Tsunami<secure the height, maintenance fordisasterprevention the soundness>②Quick and Secure Closedown ofmeasures
Water Gates (sluice gates)<automation, remoteness,
motorization>
Evacuation 1)Evacuation Support for Road-users,
such as highways (building of stairs
supportfor evacuation, etc.)
measures2)Provide Real-time Information to(Commonthe public (monitoring camera into the L2)
port)3)Awareness raising for DRR,
Dissemination of DRR Learning
Conducting Evacuation Drills
4)Designation of tsunami
evacuation buildings

Level 2 Tsunami

The greatest classification (M9.0)
Once in 1000 years○Basic idea of measures
Accept overflow partially, but reduce inundation damage
by improving of the structure of seawall.
Also, promoting evacuation measures.
○Measures to be taken
Reinforce①Overflow and back-flow countermeasures
ment ofReinforcement of backside of seawall
Existing
against overflow and back-flow of
facilities
overflowed wave
Tsunamidamagereduction①Reduction of Tsunami overflow area
Relocation of sluice gates to downstream②Waterproofing of water drainage
pumping station
Relocation of mechanical and electricalequipment to higher place

Evacuation
SupportCommon to the L1294-1) Hyogo 5-year Infrastructure Implementation Plan for Tsunami Dis. Reduction

Level2 Tsunami Countermeasures (Implementation of Resilient Seawalls)
Target: Seawalls, which may overflow by L2
Tsunami
Aims: Reinforce seawalls to be Resilient (notto be easily broken) by①Tsunami Power②Scouring (by overflowing; inland side)③Scouring (by back-flow; both side)

Overflow
Sea Side

Inland Side

Concrete
Apron

Scouring (inland side)

Methods : Reinforcement of Concrete Apron304-1) Hyogo 5-year Infrastructure Implementation Plan for Tsunami Dis. Reduction
Level2 Tsunami Countermeasures 2(Reduction of Inundation Area)
INDEX

Relocate sluice gates to downstream, to reduce Tsunami
overflow section of river bankand inundation area

Original Inundation Area
Reduced Inundation Area
ReduceInundation Area
Inland Side

Target Rivers (Example):
The Higashi, Nishinomiya

Existing sluice

ReduceInundation Area

No
Overflow
Overflow
Sea SideNo
Overflow
Overflow

New Sluice (Down Stream)314-1) Hyogo 5-year Infrastructure Implementation Plan for Tsunami Dis. Reduction
Level 1&2 Tsunami Countermeasures 3(Evacuation Support)

Designation of Tsunami Evacuation buildings (Published on the Web)

Improvement of Evacuation Routes

32

Solar Battery and LED for night evacuation

32

Steps to higher place4-1) Hyogo 5-year Infrastructure Implementation Plan for Tsunami Dis. Reduction
Level 1&2 Tsunami Countermeasures 3(Evacuation Support)‘Let’s Evacuate Together’Campaign

Organizing of drills
at communities33

4 Underlying Risk
4-2) Reinforcement of buildings (Houses, Public Buildings…）
Reinforcement of buildings against Eq.

Hyogo Promotion Plan of
Building Reinforcement

2006
Housing
Public Building

→

2015

78.5% →

97%

70%

92%

→

Shaking Examination at E-Defense, Hyogo
Wooden house under old Bld Code(1975)

Without reinforcement

Reinforced House34

5 Preparedness and Response<Strengthen disaster preparedness for effective response
at all levels>
Achievements

 DRR Training Courses for Community
Leaders (Hyogo Pref. Emergency
Management and Training Center) Support of Community Disaster
Management Groups
 Delivering of BCP guidelines for small andmedium–sized companies
35Base for International Disaster Managementand Humanitarian Support● DRA in the Kobe New Eastern City Center● Home to many international institutions related to
DRR, medicine, health, and environment, such as
UNISDR,OCHA,ADRC, IRP & WHO●JICA Kansai International Centre●WHO Kobe Centre●UNISDR●UNOCHA●IRP●ADRC●APN Centre ●EMECS●IGES●The Great Hanshin-Awaji
Earthquake Memorial
Research Institution●Hyogo Earthquake 21st Century
research Institute●Education Center for Disaster●Hyogo Emergency Medical Center●Japanese Red Cross Society
Hyogo Chapter●Hyogo Institute for Traumatic Stress●Kobe Marine
Observatory

Reduction,University of Hyogo●Disaster Reduction & Human
Renovation Institution(DRI)●International Organization ●Recovery Base

Thank you for your attention!!!
• Disaster Reduction and Human Renovation Institution (DRI)• Director, Research Department• Masahiko MURATA

DRI

37