COMPARATIVE STUDY ON PREPAR ATION OF
EMERGENCY RESPONSE, RECOVERY PLAN AND
STRUCTURAL COUNTER MEASURES FOR FLOOD
IN JAPAN AND SRI LANKA

A.M.R.N.K. Alahakoon
Assistant Director (District)
Disaster Management Centre
Sri Lankai
ADRC Visiting Researcher
FY2019B

COMPARATIVE STUDY ON PREPAR ATION OF EMERGENCYRESPONSE, RECOVERY PLAN AND STRUCTURAL COUNTERMEASURES FOR FLOOD IN JAPAN AND SRI LANKA

A PROJECT REPORT PRESENTED BY

A.M.R.N.K. Alahakoon
Assistant Director (District)
Disaster Management Centre
Sri Lanka
ADRC Visiting Researcher FY2019B

ii

I

DECLARATION
I do hereby declare that the work reported in this research project report was exclusively
carried out by me under the supervision of Ms. KODAMA Miki, Deputy Director, andResearch Department of Asian Disaster Reduction Centre. It describes the results of myindependent research except where due reference has been made in the text. No part of thisresearch project report has been submitted earlier or concurrently for the same or any other
VR course

II

COMPARATIVE STUDY ON PREPAR ATION OF EMERGENCY RESPONSE,RECOVERY PLAN AND STRUCTURAL COUNTER MEASURES FOR FLOOD
IN JAPAN AND SRI LANKA
A.M.R.N.K. Alahakoon
In the recent past, Sri Lanka has been experiencing an increase of intensity and frequencyof natural disasters. Therefore, this visiting research study was carried out to introduce theJapan flood hazard response and recovery plan activities in the pre disaster and postdisaster event comparative with Sri Lanka contents and it can be included to implement in
Sri Lanka. The study area was selecting the National Disaster Management Plancomparatively with Japan and Sri Lanka and went through deeply with two countries plans
and compared on preparation of emergency response, recovery plan and structural countermeasures for flood in Japan and Sri Lanka. The study was conducted to analysis throughthe secondary data collection on the focus on flood hazard. The study was identified thebest practices of Japanese government currently practicing as disaster preparedness countermeasures and identifying the best match technologies and other parameters which can bedirectly applied to Sri Lanka Disaster Management System focusing the attention to flood
hazard.
The research method mainly focused on gathering information from secondary data andparticipatory method. Specially participating community drill at Kobe Minato shonan
junior high school and Iza! Mikaeru Dai Caravan programme gave comprehensive ides on
the practical intervention of the Japanese DRM system. By visiting places such as disasters
museum like Great Hanshin Awaji Memorial museum, Earthquake museum in Awaji
Island, Higashi Matsushima City and Disaster Recovery Memorial Museum, DM
institutions such as Kobe Local Meteorological Office, Hyogo Disaster Management
Center, Rokko Sabo Office, Tokyo Rinkai Park, PASCO mapping institute, Takatori
Community Center and Cabinet Office etc collected more information on disaster
preparedness countermeasures and overall disaster management system in the Japan.
Further, during my study period participated to International forum such as International
Recovery Forum 2020 and International Disaster Reduction Alliance Forum 2020.
Gathering information with secondary data was the main resource for the investigation.
Based on this research, one of the objectives was to study the legal framework of thedisaster and the revolutionary changes in acts and the policy document in the event of aflood disaster. After gathering the information through reference documents, thepractitioner is ready to proceed with verification and additional information from aparticular authority or to visit them for presentation or clarification.
Finally, the Japanese government has invested a large amount of money in disastermitigation projects to improve civilians. Compared to other countries in the world, thehighest investment per capita seems to be the case of disaster mitigation. Japan is the best
example in the world that has developed all development projects taking into accountdisaster risk reduction measures.

III

ACKNOWLEDGEMENTSFirst of all, I would like to express my heartiest gratitude that I had an opportunity to gain
hands-on experience in Japan from many in writing this report. I must place on record mysincere gratitude both of the government of Japan and Sri Lanka.
I am sincerely grateful to the Asian Disaster Reduction Centre (ADRC), Ministry of
Defense of Democratic Republic of Sri Lanka and Disaster Management Centre (DMC)
for their great support and guidance to participating this program as a visiting researcher,
FY 2019B
I would like to express my gratitude to Prof. Masanori Hamada Chairman ADRC,
Executive Director Dr Koji SUZUKI ADRC Kobe, Research Director Mr. Masaru
ARAKIDA, All Senior Researchers, Researchers and All admin staffs for valuable advice,guidance, and encouragement in the accomplishment of this task.
I record with great appreciation the advice, suggestions, and encouragement provided by
My supervisor Deputy Director, Research Department Ms Miki KODAMA, Our course
Coordinator Senior Researcher Dr Makoto IKEDA, Asian Disaster Reduction Centre.
My special thanks go to all the lecturers who delivered a lecture to straightening myknowledge during this program.
I am grateful to gain the support of World Bank Consultant Mr S. Suthakaran guided me
throughout the study period.
Finally, I must thank my wife, Thejavine, my sons Hasaru, Chamiru, Janiru, my daughter
Danudi and my parents who had to give up all the time that I could not spend with themwhile I was juggling a full-time career and this course of study in Japan.

IV

TABLE OF CONTENTS
CHAPTER
Declaration
Abstract
Acknowledgement
Table of Contents
List of Tables
List of Figures
List of Abbreviations
1

2

3

4

Page No.
I
II
III
IV
VI
VII
IX

INTRODUCTION
1.1
OVERVIEW
1.2
BACKGROUND AND SIGNIFICANCE OF THE STUDY
1.3
JUSTIFICATION AND SCOPE OF THE PROBLEM
1.4
OBJECTIVES

458METHODOLOGY
2.1
DATA COLLECTION
2.2
DATA ANALYSIS
2.3
LIMITATION OF THE RESEARCH

9
10
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STUDY AREA
3.1
WHERE IS JAPAN LOCATED?
3.2
GEOGRAPHY OF JAPAN3.3
CLIMATE OF JAPAN3.4
WHERE IS SRI LANKA LOCATED?
3.5
GEOGRAPHY OF SRI LANKA
3.6
CLIMATE OF SRI LANKA

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14
17
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19

RESULTS AND DISCUSSION
4.1
GENERAL INTRODUCTION ABOUT FLOOD IN JAPAN
4.1.1 Natural Conditions
4.1.2 Social Conditions
4.2
HISTORY OF FLOOD HAZARDS AND FLOOD-CONTROLMEASURES IN JAPAN
4.3
FORMULATIONS OF RIVER LAW IN JAPAN FOR FLOOD
MANAGEMENT
4.4
EMERGENCY WARNING SYSTEM FOR SEVERE WEATHERPREPAREDNESS AND EVACUATION SYSTEM IN JAPAN
4.4.1 Emergency warnings/warnings/advisories
4.4.2 Bulletins on exceptionally heavy downpours
4.4.3 Real time River Flood Information
4.4.4 Flood Warnings and Advisories for designated rivers
4.4.5 Real-time flood risk map
4.4.6 Flood early warning system in Japan
4.5
EMERGENCY RESPONSE MANAGEMENT IN JAPAN

1

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24
26
27
31
33
35
36
36
37
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4.6
4.7
4.8

4.9
4.10
4.11
4.12
4.13

4.14
4.15
4.16

5

4.5.1 Emergency Management System in Japan
4.5.2 Flood Risk Mapping
4.5.3 Promotion of Flood-Conscious Societies
OVERVIEW OF FLOOD FIGHTING ACTIVITIES IN JAPAN
IMPROVING EQUIPMENT AND FACILITIES TO ENHANCEFLOOD DAMAGE PREVENTIONCASE STUDY: EMERGENCY RESPONSE IN JAPAN WESTERNJAPAN FLOODS, 2018
4.8.1 Response of Government Ministries and Agencies
4.8.2 Rescue Operation and Invocation of the staff allocation
System to support local governments in affected areas
4.8.3 Push-Mode Support
4.8.4 Deployment of the Information Support Team4.8.5 Support by Volunteers
4.8.6 Invocation of the Disaster Relief Act and the Act on Support
For Reconstructing Livelihoods of the Affected due toDisaster, And Designation as a Disaster of Extreme Severity
4.8.7 Watch-Over Care and Counseling Services
COMPREHENSIVE FLOOD MANAGEMENT MEASURESIN JAPAN
FLOODS IN SRI LANKASTATUS OF AMENDMENT OF FLOOD ORDINANCE IN
SRI LANKA
FLOOD CONTROL AND WATER MANAGEMENT CENTRE(MCUDP)FLOOD EARLY WARNING MECHANISM IN SRI LANKA
4.13.1 Early Warning Flow from DMC to the People
4.13.2 Emergency Operations Centre (EOC) in DMC
EMERGENCY RESPONSE IN SRI LANKA
4.14.1 Involvement of Armed Forces in Emergency Response
RELIEF, IMMEDIATE RECOVERY, REHABILITATION AND
RECONSTRUCTION
FLOOD AND WATER MANAGEMENT BY CASCADE TANKSYSTEM IN SRI LANKACONCLUSIONSREFRENCES

40
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41
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45
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54
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VI

LIST OF TABLES
CaptionTable 4.4.1
Table 4.8.1
Table 4.8.2
Table 4.8.3
Table 4.10.1

Category of information for severe weather preparedness
Number of Human casualties as of January 9, 2019
Number of Human casualties as of January 9, 2019
Damage of lifeline utilities as of January 9, 2019
Impact of flood from 2006 to 2016 in Sri Lanka

Page No.
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VII

LIST OF FIGURES
CaptionFigure 1.1:
Figure 1.2.1:
Figure 1.2.2:
Figure 1.2.3:
Figure 1.2.4:
Figure 3.1.1:
Figure .3.2.1
Figure 3.2.2:
Figure .3.3.1
Figure .3.3.2
Figure .3.1.1
Figure 3.5.1:
Figure 3.5.1:
Figure .3.6.1
Figure 3.6.2:
Figure 3.6.3:
Figure .4.1.1
Figure .4.1.2
Figure .4.1.3

Page No.

Four phases of emergency management characteristics
2
2016 Colombo flood situation in Sri Lanka
5River basing map of Sri Lanka
6
Flood Prone areas during (North East Monsoon (Dec – Feb)
7
Flood Prone areas during (South west Monsoon (May – Sep)
7
Location Map of Japan
11
Topographic Map of Japan
12
Prefecture Map of Japan13
four characteristics weather model of Japan
14
Climate Differences and Climate Zone of Japan
15
Location Map of Sri Lanka
17
Topographic Map of Sri Lanka
18
Pidurutalagala Mountain in Sri Lanka
18
Four Climate Season Maps of Sri Lanka
20
Annual Rainfall Map of Sri Lanka
21
Annual Temperature Map of Sri Lanka
21
Degree of urbanization in Japan from 2008 to 201822
Concept of Urban Flooding
23
Underground flood Hakata Station Fukuoka municipal
Subway of Japan, July 2003
24
Figure 4.1.1.1: World Map of summer monsoonal regions
25
Figure 4.1.1.2: Active Typhoon Map in Japan for July
25
Figure 4.1.2.1: Flooded residential area
In the western Japanese city of Kurashiki,
Okayama Prefecture, on July 9th 201826
Figure 4.2.1: Rivers and places
28
Figure 4.3.1: Formulation of river law in Japan
31
Figure 4.3.2: Outline of Law on Measures against Inundation Damages
32
Figure 4.4.1: Advisory / Warning / Emergency warning andWeather forecast are issued by JMA
33
Figure 4.4.2: Dissemination system of rising risk
35
Figure 4.4.3.1: Real time river flood information indication
36
Figure 4.4.5.1: Real-time flood risk mapping in Japan
38
Figure 4.4.6.1: Five-level disaster alert System
39
Figure 4.4.6.2: final evacuation message dissemination system
40
Figure 4.6.1: Progression of flood fighting activities in Japan
43
Figure 4.7.1: River disaster prevention stations and drainage pump vehicle
44
Figure 4.7.2: Development of optical fiber network
45
Figure 4.8.1: Daily precipitation from July 3rd to July 7th, 201846
Figure 4.8.2: Track of Typhoon Precipitation on 28th June and July
47
Figure 4.8.3: Floods in Hiroshima, Japan, July 201848
Figure 4.8.4: Kurashiki City before flood and after flood
49
Figure 4.8.5: Sediment disaster near Yoshida Town, Uwajima City,
And Ehime Prefecture
50
Figure 4.8.6: Levee breaches in the Takahashigawa River, Okayama Prefecture 51
Figure 4.8.3.1: Push-mode support system
56

VIII

Figure 4.8.7.1: Visiting the affected as part of watch-over care andCounseling services, Mabi Mutual
Support Center, Kurashiki City, and Okayama Prefecture
Figure 4.9.1: Three pillars flood management measures in Japan
Figure 4.9.2: Comprehensive Flood Control Measures in River Basin
Figure 4.9.3: Widen and dredge rivers under River channel improvements
Figure 4.9.4: Multi-Purpose Retarding Basin of Tsurumi River
Figure 4.9.5: Kingaoka Regulating pond
Figure 4.9.6: Sewerage system in Tokyo
Figure 4.9.7: Installation of Infiltration facilities system
Figure 4.9.8: Rainwater storage between buildings in apartment complexes
Figure 4.10.1: Increase of urbanization in Sri Lanak from 2005 to 2018.
Figure 4.10.1: traditionally villages located on low land and recent
Urbanization produces
Figure 4.11.1: Concept of the Flood Control and Water Management Centre
Figure 4.12.1.1: Early Warning Deamination System
Figure 4.12.2.1: Function OF Emergency call center
Figure 4.13.1: Emergency response mechanism in sub national level
Figure 4.14.1: Disaster Relief Mechanism in Sri Lanka
Figure 4.15.1: Organization of tanks and their connectivity
Within a typical tank cascade system
Figure 4.15.2: The ecosystem services and support to Biodiversity
Varies considerably between each typeFigure 4.15.3: Benefits of this tank cascade system

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IX

LIST OF ABBREVIATIONS
AD
ADRC
BC
CCTV
DCBA
DDMCU
DM
DM
DMAT
DMC
DRM
EOC
FDMA
FEMA
GFDRR
GN
ID
JMA
JMAT
LRRD
MDM
MIC
MHLW
MLIT
MOIWR
NBRO
NDRSC
NEOP
NFI
NGO
NMC
NPO
SDF
SLCDMPSLLRDC
SOP

Anno Domini
Asian Disaster Reduction Centre
Before Christ
Closed-Circuit Television
Disaster Countermeasures Basic Act
District Disaster Management Coordinating Unit
Disaster Management
Department of Meteorology
Disaster Medical Assistant Team
Disaster Management Center
Disaster Response Mechanism
Emergency Operation Centre
Fire and Disaster Management Agency
Federal Emergency management Agency
Global Facility for Disaster Reduction and Recovery
Grama Niladhari
Irrigation Department
Japan Meteorological Agency
Japan Medical Association Team
Linkage of Relief, Rehabilitation and Development
Ministry of Disaster Management
Ministry of Internal Affairs and Communications
Ministry of Health, Labor and Welfare
Ministry of Land, Infrastructure, Transport and Tourism
Ministry of Irrigation and water resources
National Building Research Organization
National Disaster Relief Services Centre
National Emergency Operation Plan
Non Food Items
Non-Government organizations
National Meteorological Centre
None Profit Organizations
Self Defense Force
Sri Lanka Comprehensive Disaster Management Program
Sri Lanka Land Reclamation and Development Cooperation
Standard Operation Procedures

Chapter1
INTRODUCTION
1.1 OVERVIEW
Emergency management is the organization and management of resources andresponsibilities for addressing all aspects of an emergency, especially, Mitigation,
Preparation, Response, Recovery and Rehabilitation. Emergency management includes
plans, structures and arrangements which are established to include the normal efforts ofgovernments, voluntary and private organizations in a comprehensive and coordinatedmanner to meet all emergency needs. This is also called disaster management.
Federal Emergency management Agency (FEMA) of the United State set eight principles
of emergency management. The summary of them are provided as follows.
Emergency management must be:
01. Comprehensive – Emergency management considers and takes into account all
hazards, all stakeholders and all aspects relevant to disaster.
02. Progressive – Emergency management anticipate future disasters and take preventive
and preparatory measures to build disaster-resistant and resilient communities.
03. Risk Driven – Emergency management use sound risk management principles (Hazard
identification, risk analysis and impact analysis) in assigning priorities and resources.
04. Integrated – Emergency management ensure unity of effort among all levels ofgovernment and all elements of a community.
05. Collaborative – Emergency management create and sustain broad and sincere
relationship among individuals and organization to encouraged trust, advocate a teamatmosphere, build consensus and facilitate communication.
06. Coordinated – Emergency managers synchronized activities of all relevant
stakeholders to achieve a common purpose.
07. Flexible – Emergency management use creative and innovative approaches in solving
disaster challengers.
1

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08. Professional – Emergency management value a science and knowledge based
approach based on education, training, experience, ethical practice, public stewardship andcontinuous improvement. Four stages of emergency management show in figure 1.1

Figure 1.1: Four phases of emergency management characteristics

 Mitigation - Mitigation is to lessen or minimize the adverse impacts of a hazardous
event. The adverse impacts of hazards, in particular natural hazards, often cannot
be prevented fully, but their scale or severity can be substantially lessened byvarious strategies and actions. Mitigation measures include engineering techniquesand hazard-resistant construction as well as improved environmental and social
policies and public awareness.
 Preparedness – Preparedness is the knowledge and capacities developed bygovernments, response and recovery organizations, communities and individuals to3effectively anticipate, respond to and recover from the impacts of likely, imminentor current disasters. Preparedness action is carried out within the context of disasterrisk management and aims to build the capacities needed to efficiently manage alltypes of emergencies and achieve orderly transitions from response to sustained
recovery.
Preparedness is based on a sound analysis of disaster risks and good linkages withearly warning systems, and includes such activities as contingency planning, thestockpiling of equipment and supplies, the development of arrangements for
coordination, evacuation and public information, and associated training and field
exercises. These must be supported by formal institutional, legal and budgetarycapacities. The related term “readiness” describes the ability to quickly andappropriately respond when required.

 Response – Response is the actions taken directly before, during or
immediately after a disaster in order to save lives, reduce health impacts,
ensure public safety and meet the basic subsistence needs of the people
affected. Disaster response is predominantly focused on immediate andshort-term needs and is sometimes called disaster relief. Effective, efficientand timely response relies on disaster risk-informed preparedness measures,
including the development of the response capacities of individuals,
communities, organizations, countries and the international community.
The institutional elements of response often include the provision of
emergency services and public assistance by public and private sectors andcommunity sectors, as well as community and volunteer participation.
 Recovery – Recovery is restoring or improving of livelihoods and health, aswell as economic, physical, social, cultural and environmental assets,systems and activities, of a disaster-affected community or society, aligningwith the principles of sustainable development and “build back better”, toavoid or reduce future disaster risk.

4

1.2 BACKGROUND AND SIGNIFICANCE OF THE STUDY
Flooding accounts for a third of the average annual economic losses caused by natural
disasters worldwide. Flood damage resulting from typhoons and torrential rainfall isincreasing each year. Sri Lanka is affected by a variety of natural disasters, including
climatic events such as cyclones, monsoon rains and the resulting floods and landslides(DMC, 2019). Droughts are also common due to variations in monsoons followed bylightning, coastal erosion, epidemics, and pollution. The 2004 December 26 Indian Ocean
Tsunami severely hit Sri Lanka. Among these, localized and seasonal floods represent thegreatest threat to populations, and the flood risk profile increases due to the expected
increase in the impact and frequency of hydro-meteorological risks (GFDRR, 2017).

Natural hazards can destroy decades of effort and investment in seconds. Given thatnatural hazards have a significant negative impact on long-term development, they
represent a threat to sustainable development. Each year, natural disasters cause serious
economic and social setbacks in the country's priorities for development and poverty
reduction.

When disasters strike, infrastructure such as houses, schools, hospitals, governmentbuildings, roads, bridges, crops, and livelihoods are also destroyed. The meager resources
allocated to development should be used for relief and rehabilitation activities. The amountspent on relief activities can be minimized if preparedness plans have been developed inpublic institutions. Similarly, development activities can sometimes lead to new risks
unless disaster risk considerations are included and significantly integrated into thedevelopment planning process. (DMC, 2005; Road Map for Safer Sri Lanka).

Since the 2004 Tsunami, the government of Sri Lanka has taken significant steps towards
strengthening legislative and institutional arrangements for disaster risk management. In
May 2005, the Sri Lanka Disaster Management Act No.13 of 2005, which provides thelegal basis for instituting a disaster risk management system in the country, was enacted.
According to Sri Lanka's Disaster Management (DM) Act of May 2005, all ministries,
public administrations, public corporations, government agencies, and private institutions
must develop a Disaster Management Plan. DM plans were developed from the national
level to sub-national levels for responding to disasters if and when they occur.

5

Sri Lanka has many flood-prone areas and was categorized one of the three most affected
countries in the 2017 estimate in terms Climate-related losses, second in the climate risk
index measures death and economic loss due to extreme weather conditions (Eckstein et al.,2019). Unusual events like the 2017 floods after a heavy monsoon, contributed to the stateof emergency since the event left more than 200 dead and displaced more than 600,000
people in 12 districts (Eckstein et al., 2019). Economic losses after the 2017 floods
increased by 50% compared to the previous decade between 2007 and 2016. We should beready to reduce the impact of flood risks during and after the floods. Therefore, thedevelopment of emergency response and recovery plan for flood is an urgent task for Sri
Lanka. Further, some structural measures against the flood should be considered.

Japan has been also facing a flood situation similar to that of Sri Lanka. They havedeveloped very good emergency response and recovery plans. Flood-related projects havebeen very effectively implemented in Japan to reduce flood risks.

1.3 JUSTIFICATION AND SCOPE OF THE PROBLEM
Sri Lanka is a small island in the Indian Ocean in the path of two monsoons, andfrequently affected by weather-related hazards. It is surrounded by 1,340 kilometers ofbeach frontage and with an abundance of breathtaking inland waterways, including rivers,
lakes, reservoirs and tanks. Floods mostly due to monsoonal rain or effects of low-pressure
systems and droughts due to failure of monsoonal rain are the most common hazards
experienced in Sri Lanka. Flood is more commonly occurred in Sri Lanka than the othernatural disasters. 2016 Colombo flood situation in Sri Lanka is shown in figure 1.2.1.

Figure 1.2.1: 2016 Colombo flood situation in Sri Lanka
Source:https://www.straitstimes.com/asia/south-asia/230000-displaced-by-sri-lanka-floods

6

The water resources map of 1959 identified 103 river basins of which about 10 rivers are
considered as major. Sri Lanka Rivers map showing in figure 1.2.2.

Figure 1.2.2: River basing map of Sri Lanka

Among these major rivers Kalani, Gin, Nilwala and Mahaweli are vulnerable to floods.
The increase in population and subsequent need for land have forced more and more
people to live and work in these vulnerable areas, thereby intensifying the risk to life andproperty in the event of major floods. Heavy rainfall and run off the large volume of waterfrom the catchment areas of rivers, deforestation, improper land use and the absence of
scientific soil conservation practices could be identified as the major factors for floods in
Sri Lanka. Moreover, with global heating due to the greenhouse effect, tropical countries
are expected to get less annual rainfall, but increased rainfall intensities.

The average annual rainfall ranges from 550 mm to 5500 mm. The highest rainfall
recorded 805 mm at Kanukken in 1897 and 508 mm at Nedunkerni in 1911. Due to the7Southwest and Northeast monsoon rains, floods occur in the Island. The districts of
Kegalle, Ratnapura, Kalutara, Colombo, Gampaha and Gall are subject to floods on
account of Southwest monsoon rains (figure 1.2.3) while Ampara, Trincomalee, Badulla,
Polonnaniwa, Batticaloa, Matale, Anuradapura, and Monaragala suffer from the Northeast
rains (figure 1.2.4).

Figure 1.2.3: Flood Prone areas during
South west Monsoon (May – Sep)

Figure 1.2.4: Flood Prone areas during
North East Monsoon (Dec – Feb)

Recently, flood and flash flood phenomenon has become a serious problem in Sri Lanka.
This phenomenon occurred due to rainfall intensity and uncontrolled development
especially in low areas such as Kegalle, Ratnapura, Kalutara, Colombo, Gampaha, Gall,
Ampara, Trincomalee, Badulla, Polonnaniwa, Batticaloa, Matale, Anuradapura, andMonaragala districts. The flood tragedies have perished many lives and also destroyed
infrastructure facilities such as buildings, roads, recreational park, houses, bridges andothers. This phenomenon also caused a major socio-economic impact on people and theirlivelihood. Most of these tragedies were triggered by the misuse of land-use practices.
Therefore, the development of emergency response and recovery plan for flood is anurgent task for Sri Lanka. Further, some structural measures against the flood should beconsidered. Japan has been also facing a flood situation similar to that of Sri Lanka. Japan
have developed very good emergency response and recovery plans. Flood-related projects
have been very effectively implemented in Japan to reduced flood risks. After thiscomparative study, I can identify recent gaps in the flood management system in Sri Lanka

8and can gain much more knowledge about Japanese flood management system. Some goodpractices in Japan for flood management can be recommended to Sri Lanka for improving
DRR measures.

1:4 OBJECTIVES To Study the flood emergency and recovery plans in Japan and how to adapt themto Sri Lanka.
 To study on immediate and effective emergency response, especially considering
gender-equitable and universally accessible approaches (children, women, elderly,
disabled etc.)
 To study on rehabilitation & reconstruction programs incorporating Disaster Risk
Reduction components.
 To study the structural counter measures for flood hazard in Japan and propose
appropriate measures for Sri Lanka.
 To recommend the mitigation measures and strategies to restore the ecosystem.

Chapter 2
METHODOLOGY
2.1 DATA COLLECTION

A. Primary Data Collection
Based on the secondary data acquired, primary data is collected through lectures and fieldvisits in Japan
B. Secondary Data
Following value is collected with secondary data:
DRR Plans in Japan and Sri Lanka
 Major disaster management laws/act, regulations and programs of Japan and Sri
Lanka.
 Flood Response and recovery plan in Japan and Sri Lanka.
 Details of structural counter-measures against flood in Japan and Sri Lanka.
 Other Required data and information based on emergency response and recovery
system in Japan and Sri Lanka.

C. Historical Document in Japan and Sri Lanka
Extract data on past flood management practices from some historical document inJapan and Sri Lanka, if possible. The lessons learned is referred to propose how to
improve the system.
D. Observations
Several exploratory visits to some areas during my course duration were used to checkthe reality of good practices on the ground. This fieldwork also includes a discussion
with three administrative level (National, Prefecture and local) stakeholders, especiallyon matters of flood management in Japan. Observations were made to understand thephysiographic relationships of DRR Plans in Japan.

910

2.2 DATA ANALYSISThe study is to compare Japan’s existing flood emergency management system with onesin Sri Lanka using the collected primary and secondary data to find the gaps and consider
adaptation to the Sri Lanka emergency management plan.
2.3 LIMITATION OF THE RESEARCH
Time: Three months’ period is not enough to gather all the data with other works. Due tothe time constraints, the number of documents reviewed is limited.
Field observation: Due to the time limitation, felid visit for direct discussion with flood
affected communities and the response and recovery agencies will not be realized.

Chapter 3
STUDY AREA
The study area is Japan and Sri Lanka:

3.1 WHERE IS JAPAN LOCATED?
Japan is an island country in Asia bordering the Pacific Ocean. Just off the east of Asian
continent, Japan is made up of 6,852 island in total. The latitude of Japan is 36.2048° N
and the country’s longitude is 138.2529° E as a part of the northern hemisphere. Figure
3.1.1 is shown the map of Japan.

Figure 3.1.1: Location Map of Japan

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3.2 GEOGRAPHY OF JAPANJapan is an archipelago of around 6,852 islands located in the Ring of Fire of the Pacific
Ocean. Almost continuous series of trenches, volcanic arches, and changing tectonic folds’
account for the fact that there are 75% of active volcanoes in the world and 90% ofearthquakes in the world occur along the Ring of Fire. Mountains cover more than 75% of
the earth's surface in Japan. Geologically speaking, Japan is still a young area because themountain is steep. Opposite to the north-south direction of central Honshu, there are threemain mountain ranges collectively known as Japanese Alps: Hida, Kiso and Akaishi Thereare 23 mountains with peaks over 3,000 m (9800 ft.), and highest mountain is themagnificent Mt. Fuji, 3,776 m (12,388 feet). Japan has 111 active volcanoes including Mt.
Fuji. With an average of 2,000 mild shocks per year, earthquakes of magnitude 6.0 and
greater occur average 16 times in a year in Japan. One of the largest earthquakes in Japanis the Great Kanto Earthquake of 1923, when the Tokyo-Yokohama area was devastatedand more than 105,000 people died. Japan Topographic map shown in figure 3.2.1.

Figure .3.2.1 Topographic Map of Japan1.
2.

https://www.data.jma.go.jp/svd/vois/data/tokyo/STOCK/souran_eng/intro/volcano_list_b.pdf
https://www.data.jma.go.jp/svd/eqev/data/higai/higai-1995.html

13Japan has four main islands, Honshu, Hokkaido, Kyushu and Shikoku. These islands
represent 97% of the total area of the country. Tokyo and many other major cities
including Yokohama, Osaka, Nagoya, Kobe, Kyoto, Kawasaki, Hiroshima and Sendai, arelocated in Honshu in Japan,
Hokkaido, the second major island in Japan and the northernmost prefecture, occupies
almost a quarter of Japan's arable land. Hokkaido leads 46 other prefectures in Japan.
(Figure 3.2.2).

Figure 3.2.2: Prefecture Map of Japan

Hokkaido producing abundant seafood and producing various agricultural products such as
soybeans (a major component of tofu and miso), wheat, corn, meat, and raw milk. Sapporo
is the prefectural capital and biggest city of Hokkaido and holds the annual Sapporo Snow
Festival. Kyushu is the third largest island of Japan with a lot of active volcanic mountains.
Fukuoka, Kitakyushu, Kumamoto, Kagoshima and Nagasaki are the cities with historical,
political, and commercial significance.

14

3.3 CLIMATE OF JAPANAn important feature of Japan's climate is net temperature change between four seasons.
From north to south, Japan covers a latitude range of about 25 degrees. The climate inwinter is influenced by seasonal wind blowing from Siberia and for the one in summer by
seasonal wind blowing from Pacific. Despite its rather small area, Japan has fourcharacteristics weather patterns (Figure 3.3.1.).

Figure .3.3.1 four characteristics weather model of Japan

Hokkaido, with a subarctic climate pattern, has an annual average temperature of 9.45
degrees centigrade, and average annual rainfall is about 1,205 mm. Pacific Ocean side ofJapan, from the Tohoku region in northern Honshu to Kyushu belongs to the temperatezone, and its summer is hot influenced by seasonal Pacific wind. Side of the country facing
to the Sea of Japan has a rainy and snowy weather, produced by the condition cold and wet
seasonal winds from the continent are stopped by the Central Alps etc. which penetrate
Central Japan like a backbone. Okinawa belongs to the subtropical region climatic zone
with annual average temperature 22 degrees or more, and the reception of more than
2000mm precipitation. Figure 3.3.2 shows major climate differences and climate zones inJapan.

15

Figure .3.3.2 Climate Differences and Climate Zone of Japan 3.3.1 Winter Season (December, January and February): Near the end of
November, seasonal cold winds begin to blow through Japan. These northwest
winds bring humidity from Sea of Japan in the form of rain and snow on the westside of Japan blocked by the ridge of mountains crossing the central part of thecountry. Hokuriku region (Fukui, Ishikawa, Toyama and Niigata) which faces the
Sea of Japan and separate from the rest of Japan by alpine is famous for its deepsnow. On the contrary, the Pacific side of the country usually has sunny weather inwinter season. In Tokyo, despite the clear sky, winter average temperature is about
5 degrees, 25 degrees difference from summer temperatures. Okinawa prefectureislands located in the southwest end has a subtropical climate, the small
temperature difference between the seasons. Winter temperature there much milder
than elsewhere country.
 3.3.2 Spring Season (March, April and May): After winter, seasonal cold winds
blowing from the continent become weaker and more intermittent. Low pressure air
mass from China enter the Sea of Japan and strong and warm winds from south are
moving to this low pressure area from Pacific Ocean. While the first of these winds
is announcing the coming of Spring Season, it sometimes causes an avalanches.

16

Also side of the country facing to the Sea of Japan sometimes very warm and dryweather, which can even cause a big fire.
 3.3.3 Summer Season (June, July and August): Before the true summer weather
comes, Japan has a rainy season from May to July, when there is a mass of highpressure cold air above the Sea of Okhotsk in Northern Japan and there is a mass ofhigh-pressure warm air over the Pacific Ocean. Along the line these hot and cold
air masses meet, rainy season front known as a baiu zensen (in Japanese) often
develop areas of low-pressure warm air. The baiu zensen extended from southern
China the Japanese archipelago, becomes causes of long-term continuous
precipitation. High-pressure air masses over the Pacific Ocean becomes dominantfrom mid-July, baiu zensen is pushed to the North, and the rainy season is over.
Country has hot summer weather with many days when temperatures rise to morethan 30 degrees centigrade.
 3.3.4 Autumn (September, October, and November): From late summer to
September, Japan is usually affected by typhoons. Typhoons originate frommassive low-pressure tropical air in the North Pacific between about 5 and 20
degrees latitude, which is a phenomenon similar to hurricanes and cyclones in otherparts of the world. As the typhoon begins to take shape, it gradually moves north.
Every year, about 25 typhoons occur during this period, an average of about four
arrive in Japan, sometimes causing major destruction. Since mid-late October,
Japan has generally enjoyed a fine weather, neither cold nor hot. It also benefits
from the particularly mild climate of early November.

17

3.4 WHERE IS SRI LANKA LOCATED?
Sri Lanka is an Island (Figure 1) with a land area of 65,610 square kilometers. It issituated between the 5.55′and 9.51′N, 79.41 and 81.54 E. The Island is 224 Km wide and
432 Km long at its furthest point. Figure 3.4.1 showing location map of Sri Lanka.

Figure .3.1.1 Location Map of Sri Lanka

3.5 GEOGRAPHY OF SRI LANKA
In generally Sri Lanka has a variety of terrain, but is mainly composed of plains. In thesouth central part of the country, there are mountain and river. The central part of thesouthern half of the island is mountainous with heights more than 2.5 Km. The coreregions of the central highlands contain many complex topographical features such as
ridges, peaks, plateaus, basins, valleys and escarpments. The remainder of the island ispractically flat except for several small hills that rise abruptly in the lowlands. These
topographical features strongly affect the spatial patterns of winds, seasonal rainfall,temperature, relative humidity and other climatic elements, particularly during themonsoon season. Topographic map shown in figure 3.5.1.

18

Figure 3.5.1: Topographic Map of Sri Lanka

Sri Lanka's highest Mountain is Pidurutalagala which is 2,524 meters in height andMountain of Pidurutalagala. Figure 3.5.2 showing Pidurutalagala Mountain in Sri Lanka.

Figure 3.5.1: Pidurutalagala Mountain in
Sri Lanka

19

Most of the island's surface consists of plains between 30 and 200 meters above sea level.
Hundred and three rivers in the Central Highlands and flow in a radial pattern toward thesea. Most of these rivers are short. There are 16 principal rivers longer than 100 kilometersin length, with twelve of them carrying about 75% of the mean river discharge in the entire
country. The longest rivers are the Mahaweli Ganga (335 km) and the Malwathu Oya (164km).
In the highlands, river courses are frequently broken by discontinuities in the terrain, andwhere they encounter escarpments, numerous waterfalls and rapids have eroded a passage.
Once they reach the plain, the rivers slow down and the waters meander across flood plainsand deltas. The upper reaches of the rivers are wild and usually un-navigable, and thelower reaches are prone to seasonal flooding. Human intervention has altered the flows ofsome rivers in order to create hydroelectric, irrigation, and transportation projects. In thenorth, east, and southeast, the rivers feed numerous artificial lakes or reservoirs (tanks) that
store water during the dry season. More than 90% of Sri Lanka's surface lies on
Precambrian strata, some of it dating back 2 billion years.
3.6 CLIMATE OF SRI LANKA
The Climate in Sri Lanka is tropical and consists of very distinctive dry and wet seasons.
The average temperature of Sri Lanka usually ranges from 28 – 32 degrees Celsius which
may differ due to global weather conditions as a whole. The temperature can vary frombeing as low as 16 degrees Celsius in Nuwara Eliya which belongs to the central highlands
and to as high as 32 degrees in Batticaloa along the Eastern coast of the island. However,there are certain areas along the coast that are cooled by the ocean breezes. The coldest
months according to the mean monthly temperature are December and January while thewarmest months are April and August. The Climate experienced during 12 months’ period
in Sri Lanka can be characterized in to four climate seasons as follows. Four climate
seasons shown in figure 3.6.1.
 First Inter-Monsoon Season (March – April) – Typical weather conditions
during this season are particularly uncomfortable with thunderstorm rains in theafternoon or evening.
 Southwest-Monsoon Season (May – September) – The warm season is easedaway by the windy weather during this particular monsoon season. Rains can be
expected during any time of the day.

20

 Second Inter-Monsoon Season (October – November) – Rains occur withthunder storms while the influence of the weather system like depression andcyclones in the Bay of Bengal is considered to be common. The whole island
experiences wide spread rain with strong winds.
 Northeast-Monsoon Season (December – February) – Cold and dry windy
weather can be expected during this season while cloud free and days filled withsunshine can be expected. Rain can be expected in several parts of the island as
well.

Figure .3.6.1 Four Climate Season Maps of Sri Lanka

Due to increase of global warming and climate change scenarios above mentioned time
period has slightly been changed. The rainfall pattern is influenced by the monsoon windsof the Indian Ocean and Bay of Bengal and is marked by four seasons. The mean annual
rainfall varies from under 900mm in the driest parts (southeastern and northwestern) toover 5000mm in the wettest parts western slopes of the central highlands. Sometimes
tropical cyclones bring overcast skies and rains to the southwest, northeast, and easternparts of the island. The average yearly temperature for the country, as a whole, ranges from
26° C to 28° C. Annual rain falls map and Annual temperature map shown in figure 3.6.2
and figure 3.6.3.

21

Figure 3.6.2: Annual Rainfall Map of Sri Lanka

Figure 3.6.3: Annual Temperature Map of Sri Lanka

Chapter 4
DISCUSSIONS AND RESULTS

4.1 GENERAL INTRODUCTION ABOUT FLOOD IN JAPANFlood risks are diverse and complex in the world. In the case of Japan, the country is fairly
mountainous, and rivers are relatively short and steep. Population density is very high.
Most residential and industrial areas tend to be located in lowland areas, along rivers. Risk
phenomena such as precipitation, runoff generation and concentration, downstream flood
wave propagation, flooding and flood damage change over time and change one after
another. It is influenced by the natural conditions of each region, human activities, and theJapanese disaster culture. In Japan, the loss of life and the economic loss of the nation due
to floods have decreased significantly in the last 60 years. However, new flood risks are
emerging in urban areas, such as increased flood potential, increased exposure to flood risk,
and new forms of damage. Figure 4.1.1 showing Degree of urbanization in Japan from2008 to 2018.

Figure .4.1.1 Degree of urbanization in Japan from 2008 to 2018
Source: https://www.statista.com/statistics/270086/urbanization-in-japan/

22

23

Japan is exposed to all types of floods, in particular• Storm surge: Water pressed to shore (coast or large seas) by strong winds, which, whencoinciding with tide, can create considerable rise in sea levels• River floods: Such floods are the result of heavy rainfall over several days and over large
area. The water level rises also when the soil is saturated• Flash floods: Caused by intense rain over a small area. The soil is not saturated but therainfall exceeds the infiltration rate and runs off the surface• Tsunamis: Waves generated by large volumes of water being displaced (by earthquakes,
landslides or volcanic eruptions). Tsunamis can travel through the open sea for hundreds ofkilometers without losing their energy and increase in height when they reach shore – up to
10m.
In cities, rain water is released into rivers and oceans via sanitation. However, if theintensity of precipitation exceeds the design intensity of the sewer, floods will occur. In
addition, if the incoming water level is higher than expected, the sewer will not be able todischarge the runoff and cause flooding. Figure 4.1.2 showing Concept of Urban Flooding.

Figure .4.1.2 Concept of Urban Flooding
Source: http://www.mlit.go.jp/river/basic_info/english/pdf/conf_01-0.pdf
https://www.japan-zone.com/news/2018/07/09/japan-flooding-update

24

For example, in Japan, the recent flooding of a broken embankment has had catastrophic
damage and consequences. The general economic loss due to the flooding of the Nagoya
metropolitan area due to the 2000 Tokai flood was the worst in 40 years. In 2004, theembankment caused serious damage to some urban areas in the region, and the death ofelderly peoples in Niigata has become a serious problem. New risks have also been
identified in urban areas. In 2003, the underground shopping Centre Hakata Station in
Fukuoka, Japan's sixth-largest city, was flooded and lost life under the building. Figure
4.1.3 showing underground flood Hakata Station Fukuoka municipal subway of Japan,
July 2003.

Figure .4.1.3 Underground flood Hakata Station Fukuoka municipal subway of Japan, July 2003
Source: http://www.qsr.mlit.go.jp/bousai/index_c19.html

The river environment has undergone dramatic changes over the last 100 years, with rivers
being pushed into man-made waterways, placing them in an artificial, rather than naturalenvironment. Also, awareness of disaster prevention and prevention activities for flood in
the local community is decreasing. Mr. Takahashi (1964, 1971) investigated the floods inJapan and showed that floods were not purely natural phenomena and that social
conditions played important roles in different regions and regions.
4.1.1 Natural Conditions
The steep mountain ranges that cross the central part of the long and narrow Japanesearchipelago are most of their retreat. It can also be found in the summer monsoonal regionof Asia. Figure 4.1.1.1 showing world map of summer monsoonal region.

25

Japan

Summer monsoon Region Country
Figure 4.1.1.1: World Map of summer monsoonal regions
Source: https://www.researchgate.net/publication/259166095_A_globalscale_test_for_monsoon_indices_used_in_palaeoclimatic_reconstruction

Japan is characterized by the concentration of precipitation during the rainy and typhoonseasons. Mainland Japan enters into a typhoon season. It may have heavy rain when astrong typhoon passes near Japan when the rainy season is in an active mode. Figure
4.1.1.2 Active Typhoon Map for July in Japan.

Figure 4.1.1.2: Active Typhoon Map in Japan for July
Source: http://agora.ex.nii.ac.jp/digital-typhoon/index.html.en

Due to the Typhoon, the maximum flow becomes extremely large compared to the normal
flow, and the water flows downstream for a short time, and it causes flooding. But the longtime without rain causes the water volume to increase significantly, as a result, water

26

accumulates. Landslide disasters can easily occur on most of the vulnerable geology
resulting from deforestation and the crust caused by many tectonic lines. For this reason,
floods and landslides are very likely to occur in Japan. Its hydrological properties are more
supportive for the floods.
4.1.2 Social Conditions
In parallel with urbanization, Japan's population and wealth were concentrated in specificareas. For example, about 90% of the population lives in urban areas, about 25% of thenation, about 50% of the total population, and about 75% of the nation's total assets areconcentrated in urban areas. Flood plain floods, which make up about 10% of the country.
Therefore, when a disaster occurs, there is a possibility that damage will be enormous.
Figure 4.1.2.1 showing a flooded residential area in Kurashiki City in western Japan in
Okayama Prefecture on July 9, 2018.

Figure 4.1.2.1: Flooded residential area in the western Japanese city of Kurashiki, Okayama Prefecture, on July
9th 2018(Source: https://www.cgr.mlit.go.jp/photo/h3007gouu/higai/00006.html)

27

4.2 HISTORY OF FLOOD HAZARDS AND FLOOD-CONTROL MEASURES INJAPANThe history of Japanese flood control can be divided into four stages. The first step before
the Meiji Restoration of 1865 was to reduce flood damage associated with running rivers
by eliminating settlements from flood-prone areas. It was symbiosis with flood. Japanesein the Jomon period (10,000-4,000 BC) were hunters and did not require use of floodprone fertile fields for agriculture. However, they began using the plain for agriculture
during the Yayoi period (4,000-3,000 BC). The shift to agricultural lifestyles has resulted
in increased production capacity and concentration of the population on fertile flood plains.
The remains of the town during the Yayoi period reveal irrigation canals around the town,
as well as large ditches and embankments to protect the site from flooding. Paddy fields
have developed on flat land along small rivers, and Japan's population has increased from
0.7 million to 2.5 million between 50 and 200 C.E. The large river renovation project took
place during the Kofun era (200-600 AD) when iron tools were first developed for
agriculture. For example, Emperor Nintoku planned to excavate a canal, and a dyke wasbuilt in Manda. Figure 4.2.1 showing rivers and places which I described.

28

Figure 4.2.1: Rivers and places
Source - https://pdfs.semanticscholar.org/af57/d54d28bcc13a6e56cbbf71a28ca56363f669.pdf

Laws enacted between 600 and 900 AD have led to significant improvements in rivers.
Construction of embankments, ponds, and ditches was considered a duty of the Governors.
In the middle Ages, many valley ponds were built in the mountains between the 12th and16th centuries, and reserves were built on reclaimed embankments, with trees. River
improvements during the warning period (900-1600 C.E.) include the construction of flood
control on the Kamanashi River by General Shingen Takeda (1521-1573 C.E.), who areresponsible for Kofu district. General Takeda protected the Kofu basin from a series offlood risks by constructing a one-sided embankment along the Kamanashi River. These
measures have resulted in a 76% increase in paddy rice production during theapproximately 150 years from the Keicho era (1596-1615 AD) to the Houreki era (1751-

29

1764 AD). General Ieyasu Tokugawa (1793-1853 AD) improved the Tone and Arakawa
rivers when the Tokugawa Shogunate was established in Edo. Edo is now Tokyo.
General Ieyasu Tokugawa increased the area of farmland by limiting flood plains and usedflood control operations to transport flood water to the Tone and Ara rivers. Tadatsugu Ina(1550-1610), the retention chief of General Ieyasu Tokugawa, oversaw the development ofTone River. His technique, called the Kanto or Ina method, involved the use of natural
systems, strengthening natural dykes, constructing reservoirs, distributing flood power, andprotecting critical areas by constructing weak levee. His approach to flood control was totolerate minor damage from partial flooding as the sediment deposited by the flood
provided fertilizer to the farmland. In this way, the river and its immediate environment
can coexist. As a result, Japan's population has increased from 10 million to 30 million in
the period 1550-1700, and arable land has increased from 10,000-29,500 km2. Paddy
fields have undergone major river canal changes.
The rapid population growth meant that in 1865 the Japanese government adopted a policyof increasing food supply by developing riverside rice fields. As a result, many farmers
have lived in flood-prone areas. To protect these vulnerable farmers, continuous high riverdams have been constructed along the large rivers in the alluvial plains. This is the
beginning of the second phase of flood control in Japan, where river projects have been
implemented since 1865 to maintain floods in river canals. After the Meiji Restoration(1867), flood control policies were based on Western thinking adopted by government law.
Many foreign engineers invited by the Meiji government to Japan to pass on their skills to
local engineers. These foreign experts practiced river maintenance and water transporttechnologies developed primarily in Europe.
In 1873, the Meiji government adopted regulations governing the repair of rivers, ports androads. Under the direct control of the Meiji government, 14 watercourses, including Yodo,
Tone, and Kiso rivers, were involved in waterway maintenance projects related to transport
and water safety. Projects on other rivers were conducted by representatives of the Meiji
government. However, the floods and the shift from marine transport to land transport havechanged the river policy of the Meiji government. Following the approval of the JapaneseRiver Law in 1896, the Japanese government promoted a large-scale flood control project.
For example, improvements are being made to the Kuzuryu River, the Shinano River canalis cut off, and the Arakawa drainage works are being carried out.

30

Since the River Law of 1896 excluded private titles of rivers, all official work on rivers
was integrated into the executive right of the Minister for Home Affairs. In other words,
the Japanese government controlled all rivers in Japan. Irrigation and flood control policies
were adopted during the Taisyo era (1912-1926). The main purpose of these policies was
to increase agricultural productivity. In other words, flood control and agriculture wereboth sides of the same coin. Government policies on agriculture apply to a combination ofirrigation and crop management laws. Since World War I, the demand for industrial water
has increased due to the urbanization and industrialization of Japan. This has led to theserious question of whether agriculture should be replaced with industry in terms ofprioritizing water use. In the first stage of flood control described above, the stagnationwater associated with the flood was immediately removed from the land. However, during
the second stage, floods occurred frequently and the floods were controlled very slowly.
The third phase of the flood response involved a period of rapid urbanization andpopulation growth after World War II. The Japanese River Law was amended in 1964 due
to increased demand for water. In the third stage, multipurpose dams were built to control
floods, irrigation and hydropower. Mainly the first-class rivers were managed by the
Minister, the second-class rivers were by the prefectural governor, and other types of riverareas were by the mayor. The river manager was defined in river law and was revised in
1964.The master plan for the first-class river was determined by the River Council, which
operates outside the Ministry of Land, Infrastructure, and Transport. Although river
maintenance was almost unexpectedly required in terms of flood control and water use, thenegative environmental impact of public works was exacerbated by the adoption of therevised River Code. Flood control is important to save lives, but river work has rapidly
destroyed long-developed ecosystems. In 1997, the Japanese River Law was revised,
introducing artificial measures such as flood control, irrigation and environmental
management. That is, the fourth phase of flood control meant a change in flood control
approaches from disaster prevention to flood mitigation. The main points of the 1997 River
Law are to consider wildlife ecosystems, maintain a water circulation system, and examine
the relationship between rivers and neighboring areas. This represents a significant shift in
the political position of the River Law on the environment.

31

4.3 FORMULATIONS OF RIVER LAW IN JAPAN FOR FLOOD MANAGEMENT
Modern Japanese river policy has been around 100 years since the Enactment of the River
Law in 1896. This law has been revised many times to reflect changes in social andeconomic conditions.
Particularly noteworthy is the 1964 amendment which established a systematic frameworkfor flood management and water use including the introduction of an integrated river
system management. The 1964 amendment also instituted a planning system for riverwhich required river administration to draw up a master plan for project implementationfor each river system. In order to promote consistent and systematic improvements.
Although the master plan was to be drafted in consultation with the river council. The rivermanagers were basically expected to formulate the plans according to their own discretion.
The plans were not required to contain detailed specifications for river improvements andthus provided no concrete sense of what river development should look like. Due tosubsequent socio economic changes the river situation has changed dramatically in recent
years. Today rivers are considered not only in terms of flood management and water use.
But are perceived as pleasant waterfront spaces for people to enjoy. Figure 4.3.1 and 4.3.2
showing progress of River Law in Japan.

Act on Measures against Inundation
Damages in Designated Urban Rivers (2003)
Figure 4.3.1: Formulation of river law in Japan
Source: https://www.mlit.go.jp/river/basic_info/english/pdf/conf_04-0.pdf

32

Measures against
flood from rivers

Measures against floodaround rivers

Structural Measures

Non-Structural
MeasuresRiver Law

Flood Control Act(Prevention of Flood)(Countermeasures against
flood when it occurs)(1896, Amendment 2017)(1949, Amendment 2017)

Sewage Act

City Planning Act(1958, Amendment 2015)(1968, Amendment 2019)

Figure 4.3.2: Outline of Law on Measures against Inundation Damages
Source: https://www.mlit.go.jp/river/basic_info/english/pdf/conf_10.pdf

On the one hand the River Law stipulates the structural measures for the flood from rivers,on the other hand the Flood Control Act (No. 193 of 1949) was designated for the nonstructural measures for the flood from rivers. Major revision of the Flood Control Act wasmade in May 2015 to take into consideration frequent, unexpected flooding damage due tofloods, inland waters and storm surges. In the revised act, the existing statutory system was
expanded and a new system required the announcement of the largest expected inundation
areas caused by floods, internal waters or storm surges, and non-binding obligations were
stipulated. As flood hazards have become more frequent and catastrophic nationwide, theMinistry of Land, Infrastructure, Transport and Tourism noted that “catastrophic floods
that cannot be prevented by infrastructure will happen anyway.” Further, the Flood Control
Act was revised in May 2017, additionally stipulating obligations to develop a system forproviding a council for mitigating large scale flooding, a system of announcing water
hazard risk information by the mayor of municipalities and creation of evacuation
operation/implementation plans at the facilities used by persons requiring special carepursuant to the Municipal Disaster Management Plan, as well as the facilitation of flood
prevention activities involving private sectors and formulation of a system to designate
zones to mitigate inundation damage to achieve “No failure to escape” and “Minimizationof damage on socioeconomic.

33

4.4 EMERGENCY WARNING SYSTEM FOR SEVEREPREPAREDNESS AND EVACUATION SYSTEM IN JAPANWEATHERThe Japan Meteorological Agency has published information on preparing for extreme
weather conditions, including warnings, advisory and bulletins to prevent or mitigate
disasters caused by heavy rains and storms. To support the activities of organizations
involved in disaster management and trials to ensure the safety of the population, the Japan
Meteorological Agency issued a “newsletter” several days before such a significant event
caused the disaster and issued warnings and advisory. Announce and emergency alerts ateach of the most dangerous stages. Table 4.4.1 showing Category of information for severe
weather preparedness and Figure 4.4.1 Showing Advisory / Warning / Emergency warningand weather forecast are issued by JMA.

Table 4.4.1 Category of information for severe weather preparedness(Source: “Flood and Sediment Disaster”, May 2018, Cabinet Office)Type

Category

Emergency
warning

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

Warning

Advisory

Warning Classes

Heavy rain (landslide, inundation), Issued if there is a chance of aﬂood, windstorm, snowstorm, heavy serious disaster.
snow, high wave, storm surge
Heavy rain, ﬂood, gale, gale and snow, Issued if there is potential for theheavy snow, high wave, storm surge, development of serious adverse
thunderstorm, snow melting, dense fog, conditions.
dry air, avalanches, low temperature,
frost, ice accretion, snow accretionReal-time risk mapWeather bulletins on Heavy
Rains



Typhoon Information



Hazardous wind watchAnnounced
every
10
minutes to show where therisk of disasters is rising to
supplement warnings.

Announced as required
several days before awarning to attract attention,

34

Weather bulletin

Bulletinson
exceptionallyheavy downpoursProbability of Warnings



Weather bulletin on long-termhigh temperature

and amid ongoing warnings
as necessary to explain the
progress and prediction of
the phenomenon and thepoints to be considered fordisaster management.
Announced as required toshow weather conditions
not subject to warnings but
likely to have signiﬁcant
impacts on society.

Figure 4.4.1: Advisory / Warning / Emergency warning and weather forecast are issued by JMA.
Source: https://www.jma.go.jp/jma/en/Emergency_Warning/Leaflet (Emergency_Warning_System).pdf

35

The key to issuing heavy rain alerts is to combine them with real-time risk maps associatedwith both population uses. More specifically, when a heavy rain alert or sedimentarydisaster alert is issued, residents are aware of the real-time risk map and the imminent
danger, so they can determine when and where the risk increases. It is important to ensure
their respective safety in community. Figure 4.4.2 showing dissemination system of risingrisk.

Figure 4.4.2: Dissemination system of rising risk
Source: “Flood and Sediment Disaster”, May 2018, Cabinet Office

4.4.1 Emergency warnings/warnings/advisories
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 awarning level phenomenon is expected to occur about 6 hours later or even later, anadvisory, 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 tooccur on the dawn of the following day, the advisory comes with an indication of “Highpossibility of becoming a warning by dawn”.

36

4.4.2 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 inform that the rainfall is at levels
rarely observed and may cause sediment disasters, inundation and flood in small andmedium 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
actually rising by referring to the “real-time risk map (sediment disaster, inundation, or
flood).
4.4.3 Real time River Flood Information
Ministry of Land, Infrastructure, Transport and Tourism (MLIT) publicizes real time waterlevel information of major rivers on its website (English https://www.river.go.jp/e/). Figure
4.4.3.1 showing real time river flood information indication

Figure 4.4.3.1: Real time river flood information indication
Source: “Flood and Sediment Disaster”, May 2018, Cabinet Office

37

4.4.4 Flood Warnings and Advisories for designated rivers
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 warning on the river flooding.

4.4.5 Real-time flood risk map
The real-time flood risk map includes information on small and medium rivers that are not
the target of flood forecast (rivers for which water level information is announced andothers), that indicates the flood risk level of approximately 1km section each of the riverby five levels in different colors on the map. As forecasts up to 3 hours ahead are updated
every 10 minutes, it is possible to check which river is 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 tocheck the latest situations of the river with a water gauge and surveillance camera andpromptly decide to commence evacuation when the “very dangerous” level (light purple)
implying a further rise of water level appears. Figure 4.4.5.1 showing Real-time flood risk
mapping in Japan.

38

Figure 4.4.5.1: Real-time flood risk mapping in Japan.
https://www.gov-online.go.jp/eng/publicity/book/hlj/html/201803/201803_03_en.html

4.4.6 Flood early warning system in JapanThe Japan Meteorological Agency (JMA) launched a new five-level disaster alert scale
used for floods and landslides in late May 2019. It is designed to simplify existing systems,
speed up evacuation and reduce the number of victims. For the first time, the alert system
includes clear instructions related to the numbers. For example, level 4 means that all
residents need to evacuate, and the elderly and disabled have to evacuate at level 3. In theprevious system, the Meteorological Agency and local governments issued their own
evacuation orders. Today, weather alerts from various organizations are being combined tohelp people better understand the situation. Figure 4.4.6.1 Five-level disaster alert System.

39

Figure 4.4.6.1: Five-level disaster alert System(Image Source: https://www3.nhk.or.jp/nhkworld/en/news/backstories/587/)

Level 1: Corresponds to “early warning information” issued by the JMA. It indicates thatpeople should be alert for weather updates.
Level 2: Level two means “heavy rain/flood/storm surge advisories” have been issued by
the JMA. People are required to take concrete action, such as avoiding areas where adisaster is likely to occur or reviewing the evacuation routes and meeting points on disasterhazard maps.
Level 3: Indicates “heavy rain/flood warnings” from the JMA or “evacuation preparation
information” issued by local governments. The elderly and people who need assistancemust start evacuating at this stage.
Level 4: Corresponds to “landslide alert information” issued by the JMA or an “evacuation
order” issued by local governments. All residents are required to evacuate to safe places
immediately.
Level 5: Is the most severe warning. It corresponds to the JMA’s “heavy rain emergency
warning.” At this stage, it is likely that severe disasters have already occurred. People
should make every effort to save themselves. Figure 4.4.6.2 showing final evacuation
message dissemination system.

40

Figure 4.4.6.2: final evacuation message dissemination system
Source: https://www.jma.go.jp/jma/en/Activities/image/forefig07.png

4.5 EMERGENCY RESPONSE MANAGEMENT IN JAPAN
4.5.1 Emergency Management System in Japan
Emergency response phase as part of the overall disaster management system in Japan, it ismanaged at three levels. Municipalities are directly responsible for implementing
Emergency response duties such as flood fighting, rescue, ambulance. Prefectures areauthorized to assist.
The national government and its capable authorities oversee the entire coordination processduring the response phase. Provide local governments with necessary information about
the hazard to the national government with the damage information, and if the scope of thedisaster elevates beyond the response capabilities of the municipality puts in action its own
disaster response forces. Extraordinary emergency, depending on the magnitude of thedisaster if this is the case, it is present at all three levels of the designated public agencies
and on-site interventions response headquarters was established. The central government
collects disaster information 24 hours a day at the Cabinet Office Information Collection
Center. In the event of a large-scale disaster, emergency response team composed by the
director-generals of the respective ministries and agencies will meet immediately at theCrisis Management Center in the Prime Minister's Official Residence, to understand andanalyze disaster situations, and report to the Prime Minister. Interdepartmental meetings

41

are held at the ministry or higher level to determine basic response policies as needed.
Depending on the extent of the damage, the government can establish a Headquarters for
Major Disaster Management (Headed by the Minister of Disaster Management) or
Headquarters for Extreme Disaster Management (Headed by the Prime Minister). In
addition, national government send investigation team led by the Minister of State forDisaster Management, or set up an on-site disaster management headquarters.

4.5.2 Flood Risk Mapping
Japan has strongly promoted flood risk mapping from 2005. The development of dynamic
flood risk maps that predict how floods will spread over time is also developing. These
hazards maps are varying in size from 1/2500 to 1 / 25,000 depending on the purpose.
Local government agencies have created a number of hazard maps. The Cabinet Office, theMinistry of Agriculture, Forestry and Fisheries of Japan, the Fisheries Agency, theMinistry of Land, Infrastructure, Transport and Tourism and other organizations haveproduced hazards maps on this subject. Many of these hazards maps are open to the public,
utilizingtheportalsite

developed

by

MLIT

on

the

Internet(https://disaportal.gsi.go.jp/index.html). Based on the lessons learned from the experiencesin the heavy rain in September 2015, more focus has been put on to facilitate creation ofrisk maps and to inform the public to effectively utilize the maps for disaster preparedness
as a country's basic strategy. The Cabinet Office, other relevant government agencies andlocal governments have been promoting the development of community disastermanagement plan utilized the risk maps.

4.5.3 Promotion of Flood-Conscious Societies
Progress of flood risk management in Japan includes the adoption of the National Strategy
for Large-scale Disaster Risk Management (MLIT, 2005). This strategy introduces a seriesof new measures in addition to traditional "hard" structural measures, such as socioeconomic impact simulation and goal definition, better cooperation and communication
with citizens.
The purpose of the latter measure is to increase local and individual capacities to respondto the flood. In addition, the Ministry of Land, Infrastructure, Transport and Tourism has
proposed an "Emergency Action Plan for the Management of Disasters Associated with
Heavy Rainfall." The plan has five main elements.
•

Improve disaster information services

42•

Ensure the sharing of disaster information•

Maintain and improve the functions of disaster prevention facilities•

Rebuild local disaster management capacity•

Thorough review of disaster preparedness.

Further, with the bitter experience of the typhoon in August 2016, the Flood Control Act
was revised, including the creation of a Mega flood Management Committees system, in
June 2017. Emergency action plan was compiled for rebuilding flood-conscious societies,
and promoted the integrated and systematic taking of structural and non-structural
measures. Furthermore, the plan was revised based on the basic policy “Flood Risk
Management for Wide-area and Long-lasting” for measures to “enhance the measures forthe prevention and mitigation of damage across society, and to make integrated,
multilayered preparations for disasters, through prior preparations and enhanced
cooperation among a wide variety of stakeholders” “presented by in January 2019.

4.6 OVERVIEW OF FLOOD FIGHTING ACTIVITIES IN JAPANIt is essential to prevent or mitigate water levels in rivers caused by heavy rainfall before
damage occurs. This involves examining the condition of the embankment and, if
dangerous areas are identified, sandbagging them before destroying them to reinforce theembankment. Activities of this nature, such as river inspection and sand deposition, arecalled flood fighting activities.
Japan's flood control activities have naturally evolved from countries where people have toprotect their property. But it was probably from the 16th century that these efforts began togain an organized character. The current flood defense method is thought to have beendeveloped experimentally mainly during the Edo period (1700-1867) and applied
throughout Japan. Today, flood control activities are implemented according to the flood
control law.
If there is a danger of floods due to heavy rains, the first step is to disseminate flood
forecasts, promote flood control activities, and inform residents near the river.
Subsequently, if the imminent threat of flood damage requires the implementation of flood
control activities, the authorities will issue a flood alert, activate the flood control systemand continue to inform the population near the river. Figure 4.6.1 showing progression offlood fighting activities in Japan.

43

Figure 4.6.1: Progression of flood fighting activities in Japan

In accordance with the Flood Control Law, the responsibility for flood control rests withthe municipality collectively referred to as the flood control agency. There are about 3,200
flood organizations in Japan. In addition to the establishment of the flood control team.
These organizations may use fire services for directly controlled flood control activities.
On the other hand, the perpetual government is responsible for ensuring that flood control

44

agencies can carry out appropriate flood control activities. This includes developing flood
control plans that enable flood organizations to effectively prevent flooding. Other
prefectural responsibilities include issuing flood forecasts and warnings, notifying,providing emergency evacuation guidelines, and subsidizing flood control budgets.
Prefectural governors and administrators of flood control organizations need to create aflood plan that integrates the various elements needed to combat the flood, including
observation, precaution, communication, contact, transport and operational logistics,
Cooperation and mutual support between the floods Organization.
In case of emergency, the flood control agency will maintain the necessary authority tocarry out flood control activities, such as setting priority road intersections and hazardous
areas. At the same time, the Minister of Land, Infrastructure and Transport and theGovernor Permanent have the authority to manage flood control authorities and teams.
Permanent governors have the additional possibility of requiring a SDF (SDF) dispatch.

4.7 IMPROVING EQUIPMENT AND FACILITIES TO ENHANCE FLOODDAMAGE PREVENTION
Another important aspect of flood damage prevention is the provision and maintenance ofappropriate facility and equipment. This involves maintaining the functions of floodfighting depots established by flood fighting administrators. Maintaining facilities such as
river disaster prevention stations and other regional flood fighting hubs as well as drainage
pump vehicles for pumping out inside water and installing CCTVs for quick assessment ofriver flooding conditions and information outlets and networking them with fiber optics.
Figure 4.7.1 Showing river disaster prevention stations and drainage pump vehicle andFigure 4.7.2 Showing development of optical fiber network.

Figure 4.7.1: River disaster prevention stations and drainage

45

Figure 4.7.2: Development of optical fiber network

4.8 CASE STUDY: EMERGENCY RESPONSE IN JAPAN WESTERN JAPANFLOODS, 2018
Western Japan was hit by significant rains from late June to early July 2018. The rain front,
which moved from central China to the Sea of Japan, was stagnant in northern Japan. Later,
it travelled north and arrived on July 4 near Hokkaido. On July 5, the rain front moved
south and stagnated in western Japan. July 5-8, 15 lines the precipitation system wasformed over the western part of the Tokai region. In nine of these systems, Total rainfall
over 3 hours exceeded 150 mm. Also, Typhoon Prapiroon (1807) Tropical storms andchanges to typhoons around the south southeast sea of Okinawa Island on June 29 Intensity
around Okinawa Island on July 2. Due to the rain front and typhoon Prapiroon (1807), Hotand very humid air continued to flow around Japan, causing heavy rain massive areas
throughout Japan, particularly in Western Japan. Figure 4.8.1 showing daily precipitationfrom July 3rd to July 7th, 2018.

46

Figure 4.8.1: Daily precipitation from July 3rd to July 7th, 2018

The total precipitation from June 28 to July 8 exceeds 1,800 mm in part of the Shikoku
region, 1,200 mm in the Tokai region records 2 to 4 times the average monthly precipitateon July. Also, the highest 24-, 48-, and 72-hour precipitation in recorded history there aremany observation points in Kyushu, Shikoku, Chugoku, Kinki, Tokai, and Hokkaido. It
recorded torrential rains have affected a large area of Japan over a long period. Figure
4.8.2 showing Precipitation distribution during the event and Distribution of the maximum
72-hour precipitation during the event. Figure 4.8.2 Showing Track of Typhoon
Precipitation on 28th June and July 8th, 2018.

47

Figure 4.8.2: Track of Typhoon Precipitation on 28th June and July

The heavy rains in July 2018 caused river floods, inundation, sediments and other disasters
leading to the worst storm disaster in 36 years. Many prefectures are most affected by thisflood such as Okayama, Hiroshima and Ehime prefectures. In Hiroshima Prefecture, debris
flows occurred simultaneously in various places including Hiroshima City Kure City and
Saku Town. Figure 4.8.3 showing Floods in Hiroshima, Japan, July 2018.

48

Figure 4.8.3: Floods in Hiroshima, Japan, July 2018
Source: http://floodlist.com/asia/japan-floods-july-2018

In Okayama Prefecture, a flood occurred in Mabi town, Kurashiki city urban and otherareas damaged due to the breach of levees along the Odagawa River and other rivers.
Figure 4.8.4 showing Kurashiki City before flood and after flood

49

Figure 4.8.4: Kurashiki City before flood and after flood.
Source:https://www.google.com/search?q=:+Kurashiki+City+before+flood+and+af
ter+flood

Violation of this lifting the water level remained high for a long time due to the "backwater
phenomenon" at the point where the tributary, the Odagawa River, met the main stream,
the Takahashigawa River. In Ehime prefecture, the flood was caused by heavy rain
exceeds the capacity of river management facilities. Debris flow generated in Yoshida
town and Uwajima City. Caused a sediment disaster and destroyed a water treatment plant.
Figure 4.8.5 Showing Sediment disaster near Yoshida Town, Uwajima City, and Ehime
Prefecture.

Figure 4.8.5: Sediment disaster near Yoshida Town, Uwajima City, andEhime Prefecture.

50

Nationally, the heavy rainfalls caused damage to 346 points in 47 governmentadministered rivers of 22 riverine systems, and 267 prefectural government-administeredrivers of 69 riverine systems. Inland inundation occurred in 88 municipalities in 19
prefectures. 2,581 sediment disasters occurred in 32 prefectures (debris flow: 791;
landslide: 56; cliff failure: 1,734). Figure 4.8.6 Showing Levee breaches in the
Takahashigawa River, Okayama Prefecture.

Figure 4.8.6: Levee breaches in the Takahashigawa River, Okayama Prefecture

237 dead (115 Hiroshima Prefecture, 66 Okayama Prefecture, 31 Ehime Prefecture and 25
other prefectures), 8 people missing and 432 severely or lightly injured are recorded.
(Information by Fire information and Disaster Management Agency, as of January 9,2018). Table 4.8.1 Showing number of human casualties as of January 9, 2019.

51

Table 4.8.1 Number of Human casualties as of January 9, 2019

Prefecture
Fatality
Okayama
Hiroshima
Ehime
Others
Total

Fatality

Missing
persons

Seriously
injuredLightly
injured

66
115
31
25
237

3
5
-

9
61
33
20

152
85
02
70

8

123

309

Damage to houses included 6,767 completely destroyed, 15,234 half-destroyed or partiallydamaged, and 28,469 flooded. (Information by the Fire and Disaster Management Agency,
as of January 9, 2019. Table 4.8.2 Showing number of house damages as of January 9,
2019.
Table 4.8.2 Number of Human casualties as of January 9, 2019

Prefecture
Okayama
Hiroshima
Ehime
Others
Total

Completely
destroyed
4,828
1,150
625
164
6,767

Half
destroyed
3,302
3,602
3,108
1,231
11,243

Partially
damaged
1,131
2,119
207
534
3,991

Above-floor Below-floor
flooding
flooding
1,666
5,446
3,158
5,799
187
2,492
2,162
7,559
7,173
21,296

Damage to lifeline utilities included power outages affecting a maximum of approximately
80,000 Households (approximately 60,000 households serviced by the Chugoku ElectricPower Company and approximately 20,000 serviced by the Shikoku Electric Power
Company). Power supply for residential areas was recovered on July 13, 2018. Table 4.8.3
Showing Damage of lifeline utilities as of January 9, 2019.

Table 4.8.3 Damage of lifeline utilities as of January 9, 2019

Service

Maximum number ofHouseholds affectedPower80,000(Approx.)Water

263,593

RecoveryRecovered on July 13 (residential areas)
Recovered on August 13 (excluding theareas
where houses were damaged)

There were also disruptions to gas supply affecting approximately 290 households. Thiswas recovered on July 8. (Information by the Ministry of Economy, Trade and Industry, as52of January 9 2019). The total number of shelters in all prefectures was 3,779 at its peak,including 436 in Okayama Prefecture, 660 in Hiroshima Prefecture, and 462 in Ehime
Prefecture. The maximum number of evacuees was approximately 28,000 (approximately
2500 in Okayama Prefecture, approximately 12,000 in Hiroshima Prefecture, andapproximately 800 in Ehime Prefecture). (Information by the Fire and Disaster
Management Agency, as of July 7, 2018).

4.8.1 Response of Government Ministries and Agencies
From July 2, 2018, the government held a series of Inter-Agency Disaster Alert Meetings
to prepare for emergencies. Through Cabinet Meetings, the government ministries andagencies coordinated with each other for managing the disaster under the direction of thePrime Minister. Based on the damage information gathered by the Cabinet Office
information-gathering teams, the government established the Major Disaster Management
Headquarters headed by the Minister of State for Disaster Management at 8:00 a.m. on
July 8. The Headquarters held a total of 23 meetings. The Prime Minister attended most of
the meetings and led activities to grasp the extent of the damage, the overall coordinationof response measures, and the prevention of secondary disasters.
Response Activities
Date

Activity

July 2

Inter-Agency Disaster Alert Meeting

July 5Press conference by the JMA (regarding the heavy rain that would last until
around the 8th); Inter-Agency Disaster Alert Meeting
Press conference by the JMA (regarding the possibility of the announcementof an emergency warning); instruction given by Chief Cabinet Secretary Suga;
Inter-Agency Disaster Management Meeting Hiroshima Prefecture invokes
the Disaster Relief Act with respect to Hiroshima City and Saka Town, Akigun (date of Invocation: July 5).
Cabinet meeting; instructions given by Prime Minister Abe. Deployment of
Cabinet Office advance information-gathering teams (to Okayama andHiroshima Prefectures)
Establishment of the Major Disaster Management Headquarters (a total of 23
meetings were held by September 6) Deployment of a Cabinet Office advance
information-gathering team (to Ehime Prefecture) Hiroshima Prefecture
decides to invoke the Act on Support for Reconstructing Livelihoods of theAffected due to Disaster with respect to Hiroshima City (date of invocation:
July 5). (The Act was invoked with respect to 88 municipalities in 12
prefectures as of September 26.)
Deployment of a government investigation team led by H.E. Mr. Okonogi,
then Minister of State for Disaster Management to Okayama and Hiroshima
Prefectures Establishment of a Team to Support the Daily Lives of theAffected

July 06

July 07

July 08

July 09

53

July 11

Relief Goods Procurement and Transport Team was established under theTeam to
Support the Daily Lives of the Affected.
Prime Minister Abe visits one of the affected areas (Okayama Prefecture).

July 12Cabinet approval on the use of contingency reserves (approx. 2 billion yen)

July 13

Prime Minister Abe visits one of the affected areas (Ehime Prefecture).

July 14

Designation as a Specified Disaster

July 10

H.E. Mr. Okonogi, then Minister of State for Disaster Management visits oneof the affected areas (Hiroshima Prefecture). The first announcement of thepossibility of designation as a Disaster of Extreme Severity The
announcement of the Support Measures for the affected of the Heavy Rain
Event of July 2018
H.E. Mr. Abe, Prime Minister visits one of the affected areas (Hiroshima
July 21
Prefecture). The second announcement of the possibility of designation as a
Disaster of Extreme Severity
H.E. Mr. Abe, Prime Minister instructs the government to develop a package
July 22for the restoration of lives and livelihoods of the affected.
Designation as a Disaster of Extreme Severity (Cabinet approval on the 24th;
July 24
promulgated on the 27th)
H.E. Mr. Okonogi, then Minister of State for Disaster Management visits one
July 31of the affected areas (Ehime Prefecture).
August 02 Approval on the Support Package for the Life and Livelihood Restorationfrom the Heavy Rain Event of July 2018
August 03 Cabinet approval on the use of contingency reserves (approx. 105.8 billion
July 15

yen)
August 05 H.E. Mr. Abe, Prime Minister visits one of the affected areas (Hiroshima
Prefecture).
August 21 H.E. Mr. Yamamoto, Minister of State for Disaster Management visits
to 22

affected areas (Okayama, Ehime, and Hiroshima Prefectures).

November Approval of the FY2018 supplementary budget, including expenses forrecovery and reconstruction from the Heavy Rain Event of July 2018 (503.4
07
billion yen)
4.8.2 Rescue Operation and Invocation of the staff allocation system to support local
governments in affected areas
The government began rescue operations immediately in early July. Police, fire, disaster
Administrative agencies, Self Defense Force (SDF), Ministry of Land, Infrastructure andTransport (MLIT), etc. The organization has dispatched rescue teams from all over Japanto the affected areas to carry out rescue and search activities. As well as activities for theprevention and survival of secondary damage.

54

The Ministry of Internal Affairs and Communications (MIC) invoked the staff sharing
system to support Local governments in affected areas, a national system to send
government staff to support affected local governments, for the first time since its
establishment in March 2018. 29 prefectures and cities sent 15,033
Government officials to 20 local governments in the affected areas until September 15 tohelp the management of shelters, issuance of Disaster Affected Certificates, and otheradministrative tasks. This system uses a counterpart method, meaning that each affectedmunicipality is paired to a supporting prefecture or designated city basically on a one-onone basis. For the Heavy Rain Event of July 2018, Okayama City was supported by
Yokohama City while Kurashiki City was supported by Tokyo, Saitama, Fukuoka, andNiigata Prefectures. The system was amended in March 2019 based on the lessons learned
from the disaster.

4.8.3 Push-Mode Support
The government implemented "Push Model Support" for the heavy rain event in July 2018.
It was conducted during the 2016 Kumamoto earthquake. Under the coordination of the
Cabinet Office from July 8, Departments and agencies are asking the supervised industry
to get help. Under this Food, air conditioners, toilets, and other relief supplies weredelivered to the affected area as of July 26th. Figure 4.8.3.1 Showing Push-mode support
system.

55

Figure 4.8.3.1: Push-mode support system

4.8.4 Deployment of the Information Support TeamIn the event of a disaster, various organizations carry out support activities simultaneously.
Information sharing is essential for efficient disaster response by these organizations. For
this reason, the government established the Information Support Team (ISUT) led by themembers of the Cabinet Office and sent it to the Hiroshima Prefectural Government in thedisaster-affected area.

4.8.5 Support by Volunteers
A series of Disaster Volunteer Centers were established in the affected areas, to which
many volunteers came to offer support. A total of 260,000 volunteers from across Japancame to disaster-affected areas, including Hiroshima, Okayama, and Ehime Prefectures, tohelp remove mud from houses and tidy up rooms and furniture. In order to coordinate
support activities among volunteers, NPOs and local governments, information sharing
meetings were held on a regular basis in Tokyo, Okayama, Hiroshima, and Ehime
Prefectures.

56

4.8.6 Invocation of the Disaster Relief Act and the Act on Support for Reconstructing
Livelihoods of the Affected due to Disaster, and Designation as a Disaster of Extreme
Severity
Due to this disaster, the Disaster Relief Act was invoked with respect to 110 municipalitiesin 11 prefectures, while the Act on Support for Reconstructing Livelihoods of the Affected
due to Disaster was invoked with respect to 88 municipalities in 12 prefectures. A series ofmajor disasters caused by the seasonal rain front, including Severe Tropical Storm Maliksi(1805), Tropical Storm Gaemi (1806), Typhoons Prapiroon (1807) and Maria (1808) andthe Heavy Rain Event of July 2018, comprised a Disaster of Extreme Severity in 2018. On
July 24, the Cabinet issued a Cabinet Order to designate this series of disasters as a
Disaster of Extreme Severity.

4.8.7 Watch-Over Care and Counseling Services
Affected people may need to move into a very different environment after the disaster,such as temporary housing. They also may face various issues regarding the reconstructionof their lives. In order to ensure that affected people are able to lead their lives with a senseof ease, the Ministry of Health, Labor and Welfare (MHLW) provided watch-over care andcounseling services to prevent isolation, give advice on life-related issues, and create social
opportunities among residents in the areas affected by the Heavy Rain Event of July 2018,namely, Okayama, Hiroshima, and Ehime Prefectures. Figure 4.8.7.1 Showing visiting theaffected as part of watch-over care and counseling services, Mabi Mutual Support Center,
Kurashiki City, Okayama Prefecture.

Figure 4.8.7.1: Visiting the affected as part of watch-over care and counseling services,
Mabi Mutual Support Center, Kurashiki City, Okayama Prefecture.

57

4.9 COMPREHENSIVE FLOOD MANAGEMENT MEASURES IN JAPANIn June 1977, the river Committee issued an interim report on promoting comprehensive
flood management measures in response to the increase and acceleration of surface waterrunoff due to rapid urbanization. The measures incorporate three pillars proposed by theriver council, creating a comprehensive flood management program for designated rivers
and promoting civil engineering projects for river rehabilitation. Figure 4.9.1 showing
three pillars flood management measures in Japan.

Figure 4.9.1: Three pillars flood management measures in JapanThe basin improvement plan should include a consensus on the required capacity of flood
management reservoirs to be built under new development proposals and other policy
measures ordered for large-scale development projects. Damage mitigation approaches
include building regulations in disaster-prone areas, promoting water-resistant buildings,
and publishing flood histories. Figure 4.9.2 showing Comprehensive Flood Control
Measures in River Basin.

58

Figure 4.9.2: Comprehensive Flood Control Measures in River BasinRiver improvements – The Tsurumi River benefits from major public works, including
construction and dredging. The total volume of sediment removed from the riverbed tocross the river channel is three to four times the volume of Tokyo Dome. The flow
capacity of the Tsurumi River has doubled since 1975, when comprehensive flood control
was launched. Figure 4.9.3 showing Widen and dredge rivers under River channel
improvements.

Figure 4.9.3: Widen and dredge rivers under River channel improvements

59

Multipurpose Retarding Basin – The Tsurumi river multipurpose retarding basin is
located in Kozukue/Toriyamachisaki in Yokohama’s Kouhoku ward where the Tsurumi
River and the Toriyama River merge. The master plan ultimately aims to divert a volumeof 800 m3 /s (out of the peak design discharge rate of 2600 m3 / s at the Sueyoshi Bridge)
through the retarding basin and the control reservoirs in the mid and upper reaches of theriver.

The Yokohama international sport stadium was built in the Yokohama general athleticpark in located in the retarding basin. It was one of the largest sport stadiums in Japan
with a capacity of 70,000 people and a total floor area of 166,000 m2. In order to avoid
compromising flood management capacity, the Yokohama international sports stadium
employs raised floor construction. Figure 4.9.4 Showing Multi-Purpose Retarding Basinof Tsurumi River.

Figure 4.9.4: Multi-Purpose Retarding Basin of Tsurumi River

Constructing flood control pond (Discharge Control Facility) - Flood pond normallycontrol temporarily stores rainfall so that it does not inundate rivers all at once. Facilitate

60

designed to temporarily hold rainwater in order to prevent flashing into the river are called
discharged control facilities. There are currently approximately 3,000 facilities (with astorage capacity of approximately 2.77 million m2) installed in the Tsurumi river basin.
Figure 4.9.5 showing Kingaoka Regulating pond.

Figure 4.9.5: Kingaoka Regulating pond

Sewerage improvement (water retention in sewer lines) – In order to prevent flooding
following a heavy rainfall, rainwater is temporarily store in the sewer lines. Figure 4.9.6
showing Sewerage system in Tokyo.

Figure 4.9.6: Sewerage system in Tokyo.

61

Installation of Infiltration facilities – Sub-grade permeation facilities include permeable
sumps, drainage trenches and drainage wells. Figure 4.9.7 showing

Installation of

Infiltration facilities system.

Figure 4.9.7: Installation of Infiltration facilities system

Rainwater storage between buildings in apartment complexes shown in figure 4.9.8.

Figure 4.9.8: Rainwater storage between buildings in apartment complexes62

4.10 FLOODS IN SRI LANKA
Location of Sri Lanka in the path of two opposing monsoon systems Receive monsoon
rainfall for most of the year. Monsoon rains bring rainfall during part of the balance period
really shortens the dry season to months. This weather configuration, combined withfrequent cyclones, The Island is vulnerable to floods. Previous records show that a flood ishappening it happened during most of the year, except for the driest month. A small part of
Sri Lanka is completely flood-free, some areas are more prone to floods. River falling into
the sea West coast from Deduru Oya to Nilwala Ganga is frequently affected Flooddownstream. In addition, with the largest Mahaweli River Thus, Walawa in the south is
two rivers that are prone to flooding. Some rivers Drain east like Kumbukkan Oya, Gal
Oya, Maha Oya, Heda They are also affected by the flood. Also almost all the original
river. In addition, almost all the rivers originating from the central highlands are subject toflooding in the hilly region.
Sri Lanka is exposed to many types of floods, in particular: Bank-full discharge – Most important in terms of incidence and impact. This typeof flood occurs when surface run-off entering the river exceeds the discharge
capacity of the river channel.
 Flash Flood – Sudden accumulation of water on low-lying areas leads to flash
floods. Common occurrence in urban areas.
 Breaching of reservoirs and channel bunds- Mostly occurring in the dry zone.
 Tsunami – Along the coastal areas
In Sri Lanka, urbanization and population growth have been accelerating in Colombo
Metropolitan area within Kelani River basin, as well as neighboring districts in such as
Attanugalu, Kalu and Bolgoda basins. The urbanized districts in the East and North, suchas Batticaloa, are also frequently affected by flood. By comparison between past and recent
floods the number of affected people is increasing in high urbanized districts more rapidly
than low urbanized districts. Figure 4.10.1 showing Increase of urbanization in Sri Lanakfrom 2005 to 2018.

63

Figure 4.10.1: Increase of urbanization in Sri Lanak from 2005 to 2018
Source: https://www.statista.com/statistics/603515/sri-lanka-urban-population

Especially in Colombo Metropolitan area, the population in flood prone area is rapidly
increasing, not only in Kelani river basin but also in the small and medium size river basinssuch as Attanugalu, Kalu Oya and Bolgoda basins. It means that the exposure to flood risk
is increasing. In Sri Lanka, most of traditional villages are located on hill side, while flood
plains have been utilized as paddy fields that naturally retard flood during heavy rainfall.
However, urbanized housing developments has intruded into the flood prone area without
appropriate land use plans. This process creates new risk. Figure 4.10.2 showing
traditionally villages located on low land and recent urbanization produces new risk.

Figure 4.10.1: traditionally villages located on low land and recent urbanization produces

Heavy rains in several years resulted in huge flooding in the many district in Sri Lanka
overflowing of the main Rivers and its associated water streams. In the aftermath of
Tsunami incident in 2004, many floods have been reported in the North, East, North
Central and North-Western Provinces of the island. All these events have created series of64socio-economic and environmental impacts at different levels across the country. Table
4.10.1 showing impact of flood from 2006 to 2016 in Sri Lanka.
Table 4.10.1 Impact of flood from 2006 to 2016 in Sri Lanka
Table 4.10.1 Impact of flood from 2006 to 2016 in Sri Lanka

Year

No of

No

of

Affected

Death

People

No of

No of

No of

No of

completely

Partially

InjuredMissing

DamagedDamagedPeoplePeopleHousesHouses

2006

605903

34

22

1

1334

5412

2007

499881

16

12

2

1635

9690

2008

1262506

44

11

3

1305

6323

2009

453429

3

2

0

140

1534

2010

1163932

24

10

1

1180

7199

2011

724349

40

49

1

6390

14268

2012

158411

25

13

0

942

6698

2013

450343

2

0

0

84

281

2014

1174073

35

32

3

4877

15220

2015

237331

15

18

1

419

5046

2016

444505

26

20

0

379

2518

Total

7174663

264

189

12

18685

74189

4.11 STATUS OF AMENDMENT OF FLOOD ORDINANCE IN SRI LANKA
Flood Ordinance No. 22 of 1955 has not been amended for around 60 years since 1955.
Irrigation Department (ID) has been authorized to plan and implement the structural
measures for flood control in the Ordinance. However, the non-structural measures havenot been included in the legal authority given to ID by the Ordinance. After the enactmentof the Ordinance, the situation has drastically changed. For example, the various flood
control related agencies, Disaster management Centre (DMC), Sri Lanka Land
Reclamation and Development Cooperation (SLLRDC) and Urban Development Authority(UDA) have been established, although the responsibility sharing among the agencies is
not clear. It is necessary to amend the Ordinance to adapt to the current situation. For
example, ID for river flood, SLLRDC for urban drainage and local government for local
flood. The proposal for the amendment was prepared by the related agencies through aseries of discussions for one and a half years in Ministry of Disaster Management (MDM).
This amendment work is also a component of Sri Lanka Comprehensive Disaster
Management Program (SLCDMP). The status is that ID submitted the proposal to the65

Secretary of Ministry of Irrigation and water resources (MOIWR) as of December 2016.
The system in the Ordinance to collect the flood control cost as tax from local residents has
not functioned at all. However, the system will remain even in the amended Ordinance,since the effort to delete the system will face strong opposition from stakeholders. The idea
has the background that the objective of all the British legislation in Sri Lanka in 1920s
was to collect tax. The future schedule of the amendment is as follows: The legal section of
MOIWR will revise the proposal in the form of a bill. MOIWR will send the bill to the
Ministry of Justice to finalize the bill. The amendment approved after the deliberation of
the bill by the Parliament. In parallel with the amendment of Flood Ordinance, ID is in theprocess of amending the Irrigation Ordinance. The important point of the amendment is to
give authority to ID in securing the land (Irrigation Reservation) to prevent uncontrolled
development along the rivers.

4.11 FLOOD CONTROL AND WATER MANAGEMENT CENTRE (MCUDP)
There are overlaps in basin monitoring works and lack of coordination mechanism among
the relevant agencies in Sri Lanka. In order to solve these problems, the Cabinet approved
the establishment of Flood Control and Water Management Centre in October 2016. The
target basins of the Centre are the metro Colombo region including Greater Colombo Basin.
Further, whole Kelani river basin is included to the hydrological model which will be
operated by the Centre because they must predict water level of Kelani River to protect
central area of Colombo City. Concept of the Flood Control and Water Management
Centre is shown in Figure 4.11.1. The main functions of the Centre are basin monitoring,accumulating rainfall and water level data observed by relevant agencies, analysis andforecasting by using hydrological models, disaster response including pump/gate operationand development planning by using the hydrological data.

66

Figure 4.11.1: Concept of the Flood Control and Water Management Centre

4.12 FLOOD EARLY WARNING MECHANISM IN SRI LANKA
The Department of Meteorology (DM) issues weather forecasts (three times a day) and sea
weather forecasts (twice a day). In addition, warnings for heavy rainfall, strong wind,cyclone and tsunami are also issued when severe weather condition is expected. Standard
Operation Procedures (SOP) about issuance of the warnings have been prepared for eachwarning types. When severe weather condition (e.g. heavy rainfall) is expected, officers of
National Meteorological Centre (NMC), Director General and other Directors share theinformation, and a warning signed by the forecaster is issued to relevant agencies andmedia. The warnings are disseminated to DMC, NBRO, President’s Office, Cabinet Office,Ministry of Fisheries and Aquatic Resources Development, forces, police, Coast Guard,
regional office of DM, media, etc. The warning is sent to the agencies from theCommunication Center of DM by using FAX. In addition, NMC sends the warnings via email to some agencies. In order to disseminate the warnings to public and media, DM
uploads the warnings to the DM website and records it on answer phone. Irrigation
Department. The ID informs the DMC the observed water level and rainfall by using FAX.
Frequency of data transmission is once a day during normal times or every 3 hours during
flood situation. In addition, ID issues flood warnings to relevant agencies and media. The
flood warnings are issued based on the observed water level at 34 gauging stations.

67

Rainfall, spilling from Final Report Data Collection Survey on Disaster Risk Reduction
Sector in Sri Lanka. All reservoirs and dangerous area information are mentioned in thewarnings as necessary.
The SOP about issuance of flood warnings is included in the National Emergency
Operation Plan (NEOP). However, the actual framework and organization relating to theflood warning release is different from the SOP, because ID has not caught up with the
SOP completely. ID issues the warnings according to the following procedures.

I. Hydrology Division of ID collects observed water level data from local gauging station.
Additionally, they collect observed rainfall data from regional offices of ID and DM.
II. When the observed water level exceeds flood warning level (4 warning levels), thewarning is issued by ID. Signature of Additional Director General is required on the firstwarning for large floods. After the first warning, director of hydrology can issue second
warnings for large floods. The director is also authorized to issue warnings for small floods.
III. The warnings are disseminated to DMC and media by using FAX.
IV. At district level, regional/divisional offices of ID usually disseminate the water level
information to DDMCU, local media, forces and police, directly. In some cases, the media
contact the regional/divisional offices to ask for the river condition.

4.12.1 Early Warning Flow from DMC to the People

68

The technical agencies send warning messages to the relevant agencies. Emergency
Operation Centre (EOC) of DMC is always included in the addressees as DMC has the

Figure 4.12.1.1: Early Warning Deamination System in Sri Lanka

main responsibility to transfer the messages to the local level. The warning messages aresent from EOC to District Disaster Management Coordinating Unit (DDMCU), from
DDMCU to the local organizations, and then, finally, to the GN and local residents. Land
phone, SMS, Media and Email are the communication tools. GN often use megaphone todisseminate the warning to the people. As mentioned above, warning messages to
DDMCU come not only from DMC but also from the other technical agencies such as ID
and National Building Research Organization (NBRO). In disaster situation, DDMCU
works in close collaboration with such local offices of the technical agencies shown in
Figure 4.12.1.1 The central information communication line (center and right flow)
basically functions well, whereas the local administration line (left flow) is not functionalat the moment. Furthermore, there seems to be no regulations and processes for “decision
making” on matters such as “evacuation direction” and “evacuation order” to the people byLocal Authorities.

4.12.2 Emergency Operations Centre (EOC) in DMC
An EOC at the national level is an important pre-requisite to ensure an effective andcoordinated response in any emergency. The EOC is well equipped, adequately staffed andwill operate 24x7 to coordinate all incident information and resources for management. It
will receive, analyze, and display information about the incident to enable decision-making.
The EOC will also find, prioritize, deploy, and track critical resources. It will enhance
decision making, communication, collaboration, and coordination. It is staffed withpersonnel from different skills required for the operations. The EOC will have allnecessary equipment with conference facilities and display systems. It will comprise one
fully-fledged 24x7 Operations Centre with a call Centre. Function of Emergency callcenter shown in figure 4.12.2.1
69

Figure 4.12.2.1: Function OF Emergency call center

4.13 EMERGENCY RESPONSE IN SRI LANKA
Since the onset of the floods, the Government of Sri Lanka with the cooperation ofnational and international non-government organizations (NGOs) has been assisting floodaffected communities. The relief assistance started with providing cooked meals and healthcare facilities including administration of first aid, and distribution of non-food items (NFI),
such as standard hygiene pack (adult and baby), sleeping mats, lanterns and bed sheets.

Most importantly, the military deployed forces and infrastructure to conduct search andrescue operations in highly affected and vulnerable areas. Emergency response mechanism
in sub national level shown in figure 4.13.1.

70

4.13.1Figure 4.13.1: Emergency response mechanism in sub national level

Involvement of Armed Forces in Emergency Response
DMC has coordinated with the Ministry of Defense and established National and District
S&R teams and equipped and trained them. Arrangements are being made to plan out andselect platoons of the Armed forces in different locations of the country so that in case of adisaster the military platoon in the closest vicinity will be contacted for assistance in
response. Under preparedness planning for emergency response these would have alreadybeen selected and necessary awareness given to selected teams about the likely hazards inthe respective geographical areas and specific preparedness measures etc. As alreadymentioned under section 6.2 Emergency Operations Centre (EOC), DMC has coordinatedwith the Military and established an evacuation plan for Tsunami vulnerable coastal
districts where the detachment commander takes the initiative to activate the evacuation
plan even at mid night when all others are fast asleep. With such an arrangement,
availability of trained manpower, communication equipment, transport etc. will be
guaranteed. Above all discipline will be ensured. Such camps are there in all districts andlinking up with them will be very easy. In a disaster with the training and contact prearrangements having done the required teams can be called without any delay at all anddirectly by the provincial / district administrations or the DDMCU. The Police, Sri Lanka
Army, Sri Lanka Air Force and Sri Lanka Navy will have to be strengthened forundertaking such activities.

4.14

RELIEF,IMMEDIATERECOVERY,REHABILITATIONAND

RECONSTRUCTION
In the National Policy for DM high priority has been accorded to several aspects during
and after a disaster. These includeI.

response, relief and immediate recovery of essential services,II.

Medium and longer term reconstruction and rehabilitation to a higher

71

standard than before the occurrence of the disaster.
National Disaster Relief Services Centre (NDRSC) has been established within the
Ministry of DM and assigned with the relief functions. This shows that immediate
recovery of essential services, reconstruction and rehabilitation should be given adequate
attention in the national and sub-national level planning. DMC will coordinate with allministries and agencies handling different functions related to immediate recovery,
rehabilitation and reconstruction, to ensure effective management of activities in thesephases. In these activities due consideration will be given to the recommendations of theReport on the Sri Lanka Case Study of the Evaluation of the Linkage of Relief,
Rehabilitation and Development (LRRD) regarding interventions in connection with thetsunami disaster in December 2004 of the Tsunami Evaluation Coalition13. At the sametime attention will be given to immovable cultural property after a disaster by way ofconservation / restoration of same. Presently National Disaster Relief Services Centre(NDRSC) has been established within the MDM and assigned with the main functions.
Providing emergency funds for dry rations, meals and for drinking water.

Distributing and coordinating relief items to disaster affected communities (stock,collect and distribute relief items in coordination with the district, division and GN
divisions).

Ministry of finance is responsible for providing funds for immediate / emergency
rehabilitation of infrastructure after a disaster. Long term rehabilitation and reconstruction
will be the responsibility of the respective sector agencies. Disaster Relief Mechanism in
Sri Lanka shown in Sri Lanaka.

Figure 4.14.1: Disaster Relief Mechanism in Sri Lanka

72

4.15 FLOOD AND WATER MANAGEMENT BY CASCADE TANK SYSTEM IN
SRI LANKA
Cascade system is a connected series of tanks organized within a micro-catchment of the

Figure 4.15.1: Organization of tanks and their connectivity within a typical tank cascade systemdry zone in Sri Lanka. The tanks are used to store water from a seasonal stream. Irrigation
tanks are often not isolated tanks but are part of a larger interconnected system of tanks
called a ‘tank cascade system’. It has connected with series of tanks organized within amicro-catchment.

A ‘cascade system’ is the traditional unit used in the management oftanks. From ancient times it is referred to as ‘Ellangawa’. The term is made up of theSinhalese words ‘ellan’, meaning hanging and ‘gawa’, meaning one after the other. The
figure 4.15.1 shown the organization of tanks and their connectivity within a typical tankcascade system.

Different river basins have different numbers of cascade systems within them. For example,
the Mee Oya river basin has only one associated cascade system, while the Malwathu Oya
river basin has 179 associated cascade systems.
Traditionally, there is one village tank (Maha Wewa/Pahala Wewa) for use by each village.
The village tank is the main component of the tank cascade system. Water from allother tanks in the system drain into the village tank. This tank is used for agriculture,73

as well as other community activities.
Although the main purpose of the tank cascade system was to provide water for irrigation
purposes, the tank cascade system included tanks that had other purposes too. The
purposes of the other tank types are connected in different ways to provide a good andconstant supply of water to the village tank. The proper functioning of the village tank istherefore dependent on the condition of all the other types of tanks that are found in thetank cascade system. The ecosystem services and support to biodiversity varies
considerably between each type of tank shown as Figure 4.15.2.

Figure 4.15.2: The ecosystem services and support to biodiversity varies considerably between each type

Kulu Wewa (Forest tank): constructed in the upper catchment of the village in order toprovide water for wild animals, filter debris and silt, and capture the rainwater that willenter into the village tank through seepage. By providing water for wild animals, these
forest tanks reduce the likelihood of these animals coming into the village to look for waterand damaging crops.
Kayan Wewa: built where the upper catchment has been cleared or degraded. It is used totrap sediment and controls salinity.
Olagam Wewa: lies close to the village, but is not associated with a permanent settlement
or cultivation. It is used as a source of water for seasonal cultivation.
Goda wala (Water hole): constructed for the trapping and deposition of silt, to avoidsiltation and sedimentation of the main village tank.
Ihala Wewa (Storage tank): constructed for the storage of water, and is associated74with paddy cultivation and other community activities.
In the old system of the tank cascade each tank did not have a village. There were tanks toserve specific purpose. The tank located at the highest elevation of the entire tank system
and across the main stream of the cascade serve the purpose of detailing silt and debris.
Also it reduced the energy of flow water that caused erosion. In the system there weretanks within the forest areas also serving the purpose of maintaining a micro-eco system

Figure 4.15.3: Benefits of this tank cascade systemthat helped improve the ground water table. There were tanks store excess water during therainy season for use in the dry season for agriculture. In addition to agriculture production
benefits the small tank cascade system offered several other benefits such as flood control,
fish breeding, maintenance of water table, extending the period of water availability, soil
conservation and reduction of siltation. Benefits of this tank cascade system shown as
figure 4.15.3.

While this system is well functioning in the past, it is currently inactive in some areas dueto the several reasons and large number of tanks were completely abandoned.

Chapter 5
5. CONCLUSIONSJapan, one of the most disaster-prone countries in the world, has developed a sophisticatedand comprehensive disaster management system. Based on the three-layered national
system of government and the country's administrative boundaries, the formation andevolution of the disaster management system in Japan has been strongly influenced byunfavorable geographical location, as well as by climate and topographic disasters andvarious Large-scale disasters have been the driving force for more change andimprovement. Although it inherits basic elements from previous systems, the current
management of disasters in Japan has been formed in the last 50 to 60 years. The rapid
development of the country during this period allowed it to make considerable investments
in DMS and integrate the latest technological advances in the country.

Rather than being administered by a central disaster management system in Japan, thesystem is decentralized and there has been a growing trend towards decentralization inrecent years. As one of the most prominent features of the system, decentralization allows
more government agencies to get involved in disaster management, although in various
Figure 4.4 Land use in Haliela DS area, 2016

measures and with different responsibilities it promotes ability to deal with development
disasters in each agency or region individually and improves the overall disaster76

management system.

When talking about disaster or emergency response in Japan, it is important to distinguishthe main additional, specialized and voluntary response forces and organizations. Throughthe main agencies, we assume that the municipalities and the Japanese Coast Guard haveprimary responsibility for ensuring and conducting rapid response operations in the landarea, the second in the territorial waters of Japan. The specialized agencies are trained
emergency medical assistance teams: DMAT and JMAT and specialized teams fromvarious public companies designated for disaster management within the framework of the
DCBA. In turn, the additional relief forces are administered by national governmentorganizations such as FDMA, MLIT and MHLW which take disaster response measuresonce the scale of the disaster is beyond
municipal government. At the samethe capabilities of intervention of a75

time, the MLITT, the FDMA and the

MHLW are central agencies for national supervision and coordination of emergency
response activities, as well as large-scale disaster assistance.

In Sri Lanka, there is a system which is established for the emergency response based on
the risk of the hazard level. But compared with Japan Government plan and the system forthe emergency response is well established and disseminated throughout the country.
Administrative level and role of the government officers in Sri Lanka are very
comprehensive to manage the disaster. However, lack of experience to handle the large
scale disaster, lack of resources and political interferes in the Disaster Management
activities are more influence in the DRR.

Through this study, most of the DRR activities and response management system in japan
can be extracted and apply to Sri Lankan Disaster Management System. Existing DMS in
Sri Lanka should be revised according to the Japan standard and established it country
administrative level.

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A Better Integrated Management Of Disaster Risks: Toward Resilient Society To
Emerging Disaster Risks In Mega-Cities, Eds., S. Ikeda, T. Fukuzono, And T. Sato, Pp.
23–40.Terrapub and Nied, 2006.
Comprehensive Study on Disaster Management in Sri Lanka Final Report, March 2009,
Japan International Cooperation Agency
Disaster Management Act No 13 of 2005
Disaster Management in Japan, White Paper, 2015
DMC, 2005; Road Map for Safer Sri Lanka
Emergency management planning guide 2010–2011, Statutes of Canada
Factor Analysis of Water-related Disasters in Sri Lanka, June 2017
Flood and Sediment Disaster”, May 2018, Cabinet Office

Flood Management in Japan Koji IKEUCHI Director of River Planning Division, Water
and Disaster Management Bureau, MLIT, JapanGFDRR Annual Report 2017
Guide to disaster management measures Cabinet Secretariat, Government of Japan
Disaster Management Bureau, Cabinet Office, and Government of Japan

International Organization for Standardization, Draft International Standard iso/Dis 31000
Risk Management – Principles and Guidelines on Implementation (2009)
Mitigation of Flood Hazards In Japan M. Takezawa1, H. Gotoh1 & Y. Takeuchi2 1nihon
University, Tokyo, Japan
National Emergency Operation Plan 2016 -2020
National Emergency Operation Plan 2016 -2020
Official Web-Page of Federal Emergency Management Agency, USA.
Available At: www.Fema.Gov
Sri Lanka Comprehensive Disaster Management Programme, (2014-2018)https://www.straitstimes.com/asia/south-asia/230000-displaced-by-sri-lanka-floods
https://www.data.jma.go.jp/gmd/cpd/longfcst/en/tourist_japan.html
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77

https://www.statista.com/statistics/270086/urbanization-in-japan
http://www.mlit.go.jp/river/basic_info/english/pdf/conf_01-0.pdf
https://www.japan-zone.com/news/2018/07/09/japan-flooding-update
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