ASIAN DISASTER REDUCTION CENTER
Visiting Researcher Program (FY2023)

DEVELOPMENT OF DISASTER RISKMANAGEMENT PLAN IN VIET NAM
LESSONS LEARNED FROM JAPANADRC Visiting Researcher FY 2023
Vu Thuy Duong
Department of International Cooperation and Science Technology
Viet Nam Disaster and Dyke Management Authority
Ministry of Agriculture and Rural Development
1

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

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TABLE OF CONTENTTABLE OF CONTENT..................................................................................................................................3
ACKNOWLEDGEMENT ..............................................................................................................................7
CHAPTER 1: INTRODUCTION.....................................................................................................................8

1.

Background information and rationale ............................................................................82.

Objectives of the research ...............................................................................................83.

Expected results ...............................................................................................................94.

Main activities .................................................................................................................9CHAPTER 2: DISASTER RISK MANAGEMENT IN JAPAN ............................................................................ 11

1.

General information ...................................................................................................... 11
1.1 Geography................................................................................................................................. 11
1.2 Population................................................................................................................................. 11
1.3 Climate and river characteristics ................................................................................................ 112.

Japan disaster risk profile .............................................................................................. 12

3.

Notable disasters in Japan ............................................................................................. 13

4.

Japan disaster management system .............................................................................. 15
4.1 Legal basis for disaster risk management in Japan...................................................................... 15
4.2 Organizational structure for disaster risk management in Japan ................................................. 17

CHAPTER 3: DISASTER RISK MANAGEMENT IN VIET NAM ...................................................................... 20

1.

General information ...................................................................................................... 20
1.1 Geography................................................................................................................................. 20
1.2 Population................................................................................................................................. 20
1.3 Climate...................................................................................................................................... 20

2.

Viet Nam disaster risk profile......................................................................................... 20

3.

Major disasters in Viet Nam........................................................................................... 22

4.

Viet Nam disaster risk management system .................................................................. 24
4.1

Legal basis for disaster risk management in Viet Nam.......................................................... 24

4.2.

Organizational structure for disaster risk management in Viet Nam ..................................... 25

CHAPTER 4: DISASTER RISK MANAGEMENT PLAN IN JAPAN AND VIET NAM.......................................... 29

1.

Introduction ................................................................................................................... 29

2.

Disaster risk management plan in Japan........................................................................ 29
2.1. The Basic Disaster Risk Management Plan ............................................................................. 31
2.2. Disaster Management Operation plan ................................................................................... 323

2.3. Prefectural Disaster Risk Management Plan .......................................................................... 33
2.4. Municipal Disaster Risk Management Plan................................................................................ 34
2.5. Community Disaster Risk Management Plan ............................................................................. 35

3.

Disaster Risk Management Plan in Viet Nam ................................................................. 36
3.1.

National DRM Plan .............................................................................................................. 37

3.2.

Ministerial DRM Plan .......................................................................................................... 38

3.3.

Local DRM plan ................................................................................................................... 38

3.1.1. Outline of local DRM Plan ...................................................................................................... 38
3.2.2. Provincial DRM Plan............................................................................................................... 39
3.2.3. District level DRM Plan........................................................................................................... 42
3.2.4. Communal DRM Plan ............................................................................................................. 44
3.3. Challenges of Viet Nam in developing the DRM Plan ................................................................. 45
CHAPTER 5: LESSONS LEARNED FOR VIET NAM ...................................................................................... 47

1.

Strengthening community-based disaster risk management ......................................... 47

2.

Enhancing Infrastructure for Disaster resilience ............................................................ 49

3.

Strengthening Public-private partnership ...................................................................... 50

4.

Developing Inclusive DRR plan....................................................................................... 52

5.

Enhancing cooperation and coordination in developing DRM Plan: .............................. 53

CHAPTER 6: RECOMMENDATIONS ......................................................................................................... 54
REFERENCES ........................................................................................................................................... 55

1. Japan................................................................................................................................. 55
2. Viet Nam ........................................................................................................................... 55

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List of Figures and Table
Figure 1: Map of Japan............................................................................................................................ 11
Figure 2: River gradients in Japan and the world...................................................................................... 12
Figure 3: Number of Deaths and Missing caused by natural disasters in Japan ........................................ 13
Figure 4: The Great Hanshin-Awaji earthquake (1995). ............................................................................ 14
Figure 5: The Great East Japan earthquake (2011). .................................................................................. 14
Figure 6: Noto Peninsula Earthquake (2024). ........................................................................................... 15
Figure 7: Cabinet Office and Related Ministries and Agencies .................................................................. 18
Figure 8: Organization of National Disaster Management Council............................................................ 18
Figure 9: Outline of the Disaster Management System ............................................................................ 19
Figure 10: Map of Viet Nam .................................................................................................................... 20
Figure 11: Map of hazard zones in Viet Nam............................................................................................ 21
Figure 12: Damages and losses of disaster for the period 1990 – 2020 in Viet Nam.................................. 22
Figure 13 : Timeline of weather systems from 6 October to 15 November 2020. ..................................... 23
Figure 14 : Systems of DRM in Viet Nam.................................................................................................. 26
Figure 15 : Structure of Disaster Planning System in Japan ...................................................................... 30
Figure 16: Structure of Basic Disaster Risk Management Plan .................................................................. 31
Figure 17 : Himeji castle fire-fighting drill, January 2024 .......................................................................... 33
Figure 18 : Structure of Kobe City Disaster Risk Management Plan (Source: Kobe city) ............................. 35
Figure 19 : Structure of Disaster Planning System in Viet Nam ................................................................. 36
Figure 20: Town-Watching for Disaster Prevention activity with ADRC VR FY2023, January 2024 ............. 48
Figure 21: The 2024 Iza! Mikaeru Caravan and DRR evacuation simulation in Kozukayama Elementary School,
Kobe city .............................................................................................................................................................. 49
Figure 22 : DRR archive and past disaster exhibition in Michi-no-Eki Patio, Niigata................................... 50
Figure 23 : Michi-no-Eki Arai, Myoko, Niigata which functions as emergency shelter for people in the Noto
Peninsula earthquake January, 2024..................................................................................................................... 50
Figure 24: Beppu City Inclusive DRR drill (Source: Cabinet Office News)................................................... 52
Table 1: Outline of the Basic Act on Disaster Management ...................................................................... 15

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ABBREVIATIONADRC

Asia Disaster Reduction Center

CCA

Climate change adaptation

CBDRM

Community-based disaster risk management

DRM

Disaster risk management

DRR

Disaster risk reduction

DRRP

Disaster Risk Reduction Partnership

GEJE

Great East Japan Earthquake

JICA

Japan International Cooperation Agency

LNDPC/ DRM Law

Law on Natural Disaster Prevention and Control also
known as Viet Nam Disaster Risk Management Law

MARDMinistry of Agriculture and Rural Development of Viet Nam

MLIT

The Ministry of Land, Infrastructure, Transport andTourism of Japan

NDPC

Natural Disaster Prevention and Control

NGO

Non-governmental organization

NSCDPC

National Steering Committee for Disaster Prevention andControl

VDDMA

Viet Nam Disaster and Dyke Management Authority

VINASARCOM

National Committee for Incidents and Disasters Response,
Search and Rescue .

VR

Visiting Researcher Program of ADRC

UN

United Nations

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ACKNOWLEDGEMENT
I would like to express my deepest appreciation to the Asian Disaster Reduction
Center (ADRC) for their invaluable support and assistance throughout my visiting
researcher program. The opportunity to participate in this program has significantly
contributed to my research entitled "Developing Disaster Risk Management Plan –Lessons learned from Japan Viet Nam".
The ADRC's commitment to fostering international collaboration and knowledge
exchange in disaster risk reduction is truly commendable. Their dedication to facilitating
meaningful dialogue and learning experiences has greatly enriched my understanding ofdisaster risk management, particularly in the context of Japan and Viet Nam.
I am particularly grateful for the guidance and expertise provided by the ADRC
team, which was instrumental in finalizing my research. Their insights and feedback havebeen invaluable in shaping the direction and outcomes of my study. Their unwavering
support and encouragement have been a constant source of motivation throughout myresearch journey.
The visiting researcher program has provided me with a unique platform to engage
with experts in the field, gain firsthand experience of disaster risk management practices
in Japan and Viet Nam, and contribute to the ongoing discourse on disaster risk reduction.
The knowledge and skills I have acquired through this program will undoubtedly be
instrumental in my future endeavors in disaster risk management.
In conclusion, I would like to express my sincere thanks to my ADRC colleagues
for their help and support during my stay in Japan. I would like to convey my sincere
thanks to Mr. Sasahara Akio (Executive Director), Ms. Miki Kodama and Mr. Makoto Ikeda
and other staff of ADRC that gave us the valuable lectures, kindness and guidance.
Especially I would like to thank Ms. Nakamura – my mentor who gives me the concrete
guidance and supports to fulfil my tasks in Japan.

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CHAPTER 1: INTRODUCTION
1. Background information and rationale
The development of disaster risk management (DRM) plans is an important stepin enhancing a country's resilience to natural disasters. In Viet Nam, DRM efforts haveprimarily focused on rural areas and often employ effective community-based disasterrisk management (CBDRM) methods. However, current disaster management policies
and efforts focus largely on emergency response and disaster recovery, and less so on
risk reduction, prevention, and adaptation.
A new report jointly developed by the government of Viet Nam, the World Bank,and the Global Facility for Disaster Reduction and Recovery provides an in-depth andmulti-sectoral analysis of natural risks in coastal Viet Nam and reviews current efforts inrisk management, proposing a concrete action plan to balance the risks and opportunities
of coastal development.
Viet Nam is also implementing the Sendai Framework for Disaster Risk Reduction,
which outlines four priority areas: (1) Understanding disaster risk, (2) Strengthening
disaster risk governance to manage disaster risk, (3) Investing in disaster risk reduction
for resilience, (4) Enhancing disaster preparedness for effective response, and to “Build
Back Better” in recovery, rehabilitation, and reconstruction Japan has a long history of
dealing with natural disasters due to its geography, topography, and climate. As a result,the country has developed a wealth of knowledge and experience in minimizing damage
from disasters. Japan has continuously strengthened its disaster risk reduction systems
in order not to repeat the same damages in future disasters.
Japan has also been actively sharing its knowledge and expertise with othercountries through initiatives such as the World Bosai Forum, Asia Conference on Disaster
Risk Reduction, Asia Disaster Reduction Center, etc. These initiatives have supported
other Asian countries in enhancing their resilience against climate change and natural
disasters, including Viet Nam.
In conclusion, Viet Nam can learn from Japan's experience in developing andimplementing effective disaster risk management plans. By focusing on understanding
disaster risks, strengthening disaster risk governance, investing in disaster risk reduction
for resilience, and enhancing disaster preparedness for effective response, Viet Nam canenhance its resilience to natural disasters.
2. Objectives of the research
The primary objective is to provide recommendations and key insights for Vietnam
in the development of its Disaster Risk Management (DRM) plan, drawing from theexperiences and lessons learned from Japan. The research also aims to understand andaddress the challenges faced by both Viet Nam and Japan, and to apply these insights
to the development of effective disaster risk management strategies. The ultimate goal isto enhance the resilience of communities to disasters and contribute to their sustainable8

development
3. Expected results
The research is expected to make a significant contribution to our understandingof disaster risk management and to the development of effective, context-specific disasterrisk reduction plans for Viet Nam. Specifically:- A comprehensive understanding of the concepts, approaches, and practicalexperiences of Japan in developing local disaster risk reduction plans is anticipated. This
includes an in-depth analysis of Japan's methodologies, strategies, and tactics in disasterrisk management, as well as the country's unique solutions to disaster-related challenges.
- The research aims to gain insights into the practical application of these strategies
in real-world scenarios. This involves studying Japan's implementation of disaster risk
reduction plans at the local level, and the impact of these plans on community resilienceand disaster response.
- Based on the knowledge obtained from the Japanese context, the research willthen focus on making recommendations to improve local disaster risk management plansin Viet Nam. These recommendations will be tailored to Viet Nam's specific needs andcircumstances, and will aim to enhance the country's capacity to manage and mitigate
disaster risks.
4. Main activities
To obtain the research objectives, the following activities will be conducted:- Review and Analyze Relevant Documents on DRM System in Viet Nam andJapan: This activity involves a comprehensive review and analysis of pertinent
documents related to the DRM systems in both Viet Nam and Japan. The aim is to gaina deep understanding of the existing frameworks, strategies, and methodologies
employed in these countries, specifically:• Japan 2023 White Paper on Disaster Management (Cabinet Office,
Government of Japan).
• Disaster management in Japan (Cabinet Office, Government of Japan).
• Law on Disaster Prevention and Control (Government of Viet Nam, 2020)• Decision No. 342/QD-TTg dated March 15, 2022 on Promulgation of natural
Disaster Risk Management Plan by 2025
• Circular 02/2021/TT-BNNPTNT dated June 07, 2021 of Ministry of Agriculture
and Rural Development guiding the development of the local disaster risk
management- Understand the Relations between Government Organizations and Local
Communities in Preparing the DRM Plan in Japan: This activity will delve into the
dynamics between government organizations and local communities in Japan in thecontext of DRM planning. It will explore how these entities collaborate, the roles they play,
and the mechanisms in place for community participation. This understanding will be
crucial in identifying effective strategies for community engagement in DRM planning.
- Participate in Field Visits to learn the DRM Plan development process andmethodology of Japan Localities: These visits will offer opportunities to observe andunderstand how DRM plans are developed and implemented at the local level, howcommunities are engaged in the process, and how these plans are integrated into broader

9regional and national DRM strategies. The field visits include: DRR education events anddrills, DRR forum and platforms, DRR constructions, etc.

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CHAPTER 2: DISASTER RISK MANAGEMENT IN JAPAN1. General information
1.1 Geography
Japan is an island country located in thewestern Pacific Ocean. Total land area is about
377,727km2 1 . Japan has a total of 6,852 islands
extending along the Pacific coast of East Asia. The
country, including all of the islands, lies between
latitudes 240 and 460N, and longitudes 1220 and
1460E. The main islands, from north to south, are
Hokkaido, Honshu, Shikoku and Kyushu. The capitalis Tokyo.
Japan is predominantly mountainous – about
Figure 1: Map of Japan
70% of the national land is mountain – and longmountain ranges form the backbone of the archipelago. The Japan Alps studded with3,000 meter peaks bisect the central portion of Honsu – the main island. Japan is locatedin the Circum-Pacific Volcanic Belt (also known as the “Ring of Fire”) where seismic andvolcanic activities occur constantly. Japan and its surrounding areas experience roughlya tenth of all earthquakes that occur in the world. Of the world’s active volcanoes, 7%
exist in Japan (JMA, 2016).
1.2 Population
As of October 1, 2022, the total population was 124,947 thousand, a decrease of
556 thousand compared with the previous year.
The top five prefectures in population were Tokyo, Kanagawa, Osaka, Aichi and
Saitama. These prefectures account for 37.5 percent of the total population. Tokyo had
the largest population in 2022 (11.2% of the total population – According to the Statistics
Bureau, Ministry of Internal Affairs and Communication).
1.3 Climate and river characteristics
A major feature of Japan’s climate is the clear-cut temperature changes between
the four seasons. In spite of its rather small area, the climate differs in regions from asubarctic to a subtropical climate. The side of the country which faces the Sea of Japan
has a climate with much snow in winter by seasonal winds from the Siberia. Most of theareas have rainy season from May to July by the seasonal winds from the Pacific Ocean.

1

Ministry of Land, Infrastructure, Transport and Tourism website,”the Disaster Risk of the Land of Japan”
https://www.mlit.go.jp/river/basic_info/english/land.html

11Due to Japan’s extreme topographical and meteorological conditions, the rivers
exhibit distractive natural characteristics. Rivers in Japan are narrow, steep and short
making them prone to flooding2. The ratio of peak flow discharge to the basin area isrelatively large, ranging from 10 times to 100 times. The water level rises and falls very
quickly and the volume of sediment runoff is large.

Figure 2: River gradients in Japan and the world

2. Japan disaster risk profile
Japan is located in the Circum-Pacific Mobile Belt where seismic and volcanic
activities occur constantly. Although the country covers only 0.25% of the land area on
the planet, the number of earthquakes and active volcanoes is quite high. Because ofgeographical, topographical and meteorological conditions, the country is subject tofrequent natural disasters such as typhoons, torrential rains, heavy snowfalls, as well as
earthquakes and tsunami. Japan is affected by typhoon mostly every year and volcanic
disasters triggered by eruption and volcanic earthquake.
Every year there is a great loss of people’s lives and properties in Japan due tonatural disasters. Until the second half of 1960s, large-scale typhoons with earthquakes
caused extensive damage and thousands of casualties. Thereafter, with the progress ofsociety’s capabilities to respond to disasters and mitigate vulnerabilities to disasters bydeveloping disaster management systems, promoting national land conservation,
improving weather forecasting technologies, and upgrading disaster information
communications systems, disaster damage has shown a declining tendency.

2

Ministry of Land, Infrastructure, Transport and Tourism, Water and Disaster Management Bureau website,
Overview of River Administration in Japan 2005.

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Figure 3: Number of Deaths and Missing caused by natural disasters in Japan 3
Source: 2023 White Paper on Disaster Management in Japan

3. Notable disasters in Japan
Japan is prone to natural disaster, especially earthquake. In 1995, more than 6,400
people died of the Great Hanshin-Awaji Earthquake. Also in 2011, more than 22,000
people died or went missing due to the Great East Japan Earthquake (GEJE). There isalso a high probability of the occurrence of large scale earthquakes in the near future
including impending possibilities of Nankai Trough Earthquake and Tokyo Inland
Earthquake. As such, natural disasters remain a menacing threat to the safety andsecurity of the country. Followings are the summary of major disasters in Japan:
Great Hanshin-Awaji Earthquake (January 1995)
On 17 January 1995, an earthquake with a 7.3 on the Richter scale occurred at
Awaji island of Hyogo Prefecture in Western Japan. It killed 6,434 people, injured 43,792
people, destroyed 104,906 houses, half destroyed 144,274 houses, and partiallydestroyed 390,506 houses. By the fires broke out along with the earthquake, the area of
835,858 square meters was burnt down.

3

With regards to the Hanshin-Awaiji Earthquake and the Great East Japan Earthquake, those figures
include earthquake-related deaths.

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Figure 4: The Great Hanshin-Awaji earthquake (1995).
Source: Cabinet Office, White Paper on Disaster Management

The Great East Japan Earthquake
A magnitude 9.0 earthquake hit the northeastern Japan on 11 March 2011,
recording the largest earthquake ever hit in Japan. Its epicenter was located in the coastof Sanriku and its epicentral area stretched from the coasts of Iwate Prefecture to Ibaraki
Prefecture. Massive shakes were observed particularly in eastern Japan including
Japanese intensity scale of 7 registered in the north of Miyagi Prefecture. Furthermore,this earthquake triggered seafloor movements and generated massive tsunami.
According to the National Police Agency, this earthquake and tsunami have left
unprecedented human suffering: 15,870 people death, 2,814 people missing and 6,114
people injured, as well as property damage: 129,472 totally collapsed buildings, 255,977
half collapsed buildings and 702,928 partially collapsed buildings. Furthermore, the valueof the destruction of the social infrastructure, housing, and corporate facilities wasestimated at 16.9 trillion yen and it had a great impact on Japanese economy.

Figure 5: The Great East Japan earthquake (2011).
Source: Ishinomaki City, "Great East Japan Earthquake Archive Miyagi"

Noto Peninsula Earthquake (January 2024)
On 1 January 2024, a magnitude 7.6 earthquake struck the Noto Peninsula in
Ishikawa Prefecture, Japan. As the epicenter was very shallow, large tremors wereobserved in many places and a tsunami warning was issued. Since then, more than 1,500
aftershocks have followed the main shock. The tsunami damaged at approximately 160
hectares in Suzu City and Noto City. Power and water supplies were cut off,
communications were disrupted. Some districts are isolated with roads cut off and food,water, blanket and fuel, basic needs are still in short supply. The quake caused fires insome cities and it is estimated that hundreds of houses were burnt down.
The Japanese Government applied the Disaster Relief Act towards 35 cities, 11
towns and 1 village in 4 prefectures including Niigata, Toyama, Ishikawa and Fukui in14

order to lead the national-level relief operations. As of 12 March, the Cabinet officeconfirmed 241 deaths, 1,540 people were injured. More than 84,976 houses are reported
to be collapsed/damaged.4

Figure 6: Noto Peninsula Earthquake (2024).
Source: ADRC VR FY2023 visit March, 2024

4. Japan disaster management system
4.1 Legal basis for disaster risk management in Japan
Japan has had the progress in disaster management laws and systems since1945. It is a national priority to protect national land as well as citizens’ lives,
livelihoods, and property from natural disasters. The turning point for strengthening
the disaster management system came into effect in response to the immense
damage caused by Typhoon Isewan in 1959, and led to the enactment of the Basic
Act on Disaster Management in 1961, which formulates a comprehensive andstrategic disaster management system. Thereafter, the disaster management system
has been continuously reviewed and revised following the lessons learned from largescale disasters.
In order to applying to all of the disaster phases of prevention, mitigation andpreparedness, emergency response as well as recovery and rehabilitation, relevantlaws and regulations were enacted. They include Basic Act on Disaster Management(1961), Disaster Relief Act (1947), Building Standard Law (1950), Landslide
Prevention Act (1958), River Act (1964), and Act on Special Measures for Large-scale
Earthquakes (1978).
Japan’s legislation for disaster management system have addressed all of thedisaster phases of prevention and preparedness, emergency response as well as
recovery and reconstruction with roles and responsibilities among the national andlocal governments clearly defined. It is stipulated that the relevant entities of the public

4

Cabinet Office - The 2024 Noto Peninsula Earthquake Damage Report as of 12 March.
https://www.bousai.go.jp/updates/r60101notojishin/r60101notojishin/pdf/r60101notojishin_36.pdf

15

and private sectors
countermeasures.

are

to

cooperatein

implementing

variousdisaster

The Basic Act on Disaster Management has constantly been reviewed andamended since its first enactment, and with lessons learned from the Great East
Japan Earthquake, provisions were added including enhancement of the measuresconcerning support activities mutually done by local governments in 2012 and themeasures for ensuring smooth and safe evacuation of residents and improving
protection of affected people in 2013. In 2014, provisions were added forstrengthening measures against unattended cars in order to promptly clear them fromthe roads for emergency vehicles. In 2021, in order to ensure smooth and prompt
evacuation in the event of a disaster and strengthen the implementation system fordisaster measures, evacuation information was reviewed, individual evacuation plans
were legalized, and consultation rules for wide-area evacuation were established. In
addition, the government has taken measures such as making it possible to establish
a disaster management headquarter for disasters of a scale that has not been able
to establish a national disaster response headquarters
Table 1: Outline of the Basic Act on Disaster Management

1.

Clearer definition of the philosophy and the responsibilities for disastermanagement.
- Clarification of basic principles of disaster countermeasures: Clarification of basic policies including
the concept of disaster reduction- Responsibilities of the government, prefectures, municipalities, and designated public institutions:
Formulation and implementation of the plan for disaster management, mutual cooperation- Responsibilities of residents: Self-preparedness for disaster, stockpiling of basic necessities,
voluntary participation in disaster preparedness activities

2. Organization: Development andpromotion of comprehensive disastermanagement administration- National government: Central Disaster
Management Council, major (extreme)disaster management headquarters- Prefectural and municipal governments:
Local disaster management headquarters

3. Planning system: Development and promotionof systematic disaster management measures- National Disaster Management Council: Disaster
Management Basic Plan
- Designated local government organizations andpublic institutions: Local Disaster Risk Management
Plan- Prefectures and municipalities: Local disastermanagement operation plan
- Residents: Community Disaster Risk Management
Plan

4. Promotion of Disaster Countermeasures- Definition of the roles and responsibilities tobe performed by each actor in each stage ofprevention, preparedness, response andrecovery- Primary disaster response procedures

5. Protection of affected people and theirlivelihood- Prior preparation of the lists of the people requiring
assistance in the case of disaster- Clarification of the standards for evacuation centersand facilities in the case of disaster16

including evacuation order by the head ofmunicipalities taking over emergency
measures by prefectures or designatedadministrations in case of the large-scaledisaster- Improvement and expansion of protection measures
for affected people through preparation of thecertificates and the list of affected people

6. Financial measures

7. State of Disaster Emergency- Implementation of laws are funded by each
responsible party- Declaration of disaster emergency state →Cabinet
decision of government’s policy (basic policy forcountermeasures)- Financial measures for extreme disasters by
the government- Stipulation of the framework for wide-scaleevacuation and goods transportation- Emergency measures (restriction on distribution ofbasic necessities, moratorium on financial obligation,urgent enactment of Cabinet Order related toacceptance of international support, automatic
enforcement of the Act on Special Measuresconcerning Preservation of Rights and Interests ofVictims of Specified Disaster)

4.2 Organizational structure for disaster risk management in Japan
4.2.1 Cabinet Office and related ministries in DRM system
Since the reforms of the central government system in 2001, a Minister of State
for Disaster Management is placed to integrate and coordinate disaster risk management
policies and measures of ministries and agencies. With the revision of the Basic Act on
Disaster Management in 2021, the Minister of State for Disaster Management is legallyrequired, and the government's disaster prevention system is being further strengthenedin terms of organization. In the Cabinet Office, which is responsible for securing
cooperation and collaboration among related government organizations in wide-ranging
issues, the Director General for Disaster Management is mandated to undertake theplanning of basic disaster management policies and response to large-scale disasters,
as well as conduct overall coordination. To prepare for disasters, the National Disaster
Management Council with the Prime Minister as the Chair and all Cabinet members
decides the national government’s disaster management policies. Such decisions arecarried out by respective ministries and agencies, accordingly. In the event of a largescale disaster, the Cabinet Office is engaged in collection and dissemination of accurate
information, reporting to the Prime Minister, establishment of the emergency activities
system including the Government’s Disaster Management Headquarters, overall wide
area coordination concerning disaster response measures.

17

Figure 7: Cabinet Office and Related Ministries and Agencies

4.2.2 National Disaster Management Council
The National Disaster Management Council is one of the councils that deal withcrucial policies of the Cabinet and is established in the Cabinet Office based on the Basic
Act on Disaster Management. The Council consists of the Prime Minister as thechairperson, all members of the Cabinet, heads of major public corporations and experts.
The Council develops the Basic Disaster Risk Management Plan and establishes basic
disaster management policies and plays a role of promoting comprehensive disastercountermeasures including deliberating important issues on disaster management uponrequests from the Prime Minister or Minister of State for Disaster Management.

Figure 8: Organization of National Disaster Management Council

18

Within the Cabinet Office, which is the secretariat for this Council, the Minister ofState for Disaster Management has been assigned as the Minister State for Special
Missions for this issue. This Minister is assisted by the department of the Cabinet OfficeDirector-General for Disaster Management his mandate being to handle planning andcentral coordination with regard to matters relating to basic policy on disaster risk
reduction, and matters concerning disaster countermeasures in the event of a large-scaledisaster.

Figure 9: Outline of the Disaster Management System

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CHAPTER 3: DISASTER RISK MANAGEMENT IN VIET NAM
1. General information
1.1 Geography
Viet Nam is located in Southeastern Asia,
bordered with China, Lao PDR and Cambodia.
Viet Nam comprises a total land area of 330,210
km2 including 310,070 km2 of land and 21,140
km2 of water. On a map, Viet Nam appears as
an S-shaped strip of land. The terrain is
mountainous with coastal lowlands and forested
inland regions.
The geography of the land can be divided
into three major areas: The Red River delta to
the north, which is bordered by mountains on
three sides; a large plateau with a narrowcoastal plain in the middle of the country; andthe Mekong Delta plain to the south.
1.2 Population
The current population of Vietnam is99,312,476 as of March, 20245. One-third of the
Figure 10: Map of Viet Nam
country’s total population lives in urban centers.
The remaining two-thirds live in coastal areas and low-lying deltas. The largest urban
centers are in the major cities of Ho Chi Minh City and Ha Noi. Viet Nam recognizes 54
ethnic groups. The largest of them and their percent of the population are: Kinh (Viet)
85.3%, Tay 1.9%, Thai 1.9%, Muong 1.5%, Khmer 1.4%.
1.3 Climate
Viet Nam has both a tropical climate zone and a temperate climate zone, with allof the country experiencing the effects of the annual monsoon. Rainy seasons correspondto monsoon circulations, which bring heavy rainfall in the north and south from May to
October, and in the central regions from September to January. Viet Nam’s climate isalso impacted by the El Niño Southern Oscillation, which influences monsoonal
circulation, and drives complex shifts in rainfall and temperature patterns which varyspatially at a sub-national level.
2. Viet Nam disaster risk profile
Viet Nam is one of the most hazard-prone countries in the Asia-Pacific Region.
With the coastline of 3,300 km, the country is exposed to hydro-meteorological hazards.

5

Based on Worldmeter elaboration of the latest United Nations data.

20

According to the Law on Natural Disaster
Prevention and Control 20206, According toViet Nam’s disaster management law, Viet
Nam is prone to over 22 types of natural
hazards. Natural hazards recognized bylaw include typhoon, tropical low pressure,whirlwind, lightning, heavy rain, flood,
flashflood, inundation, landslide and land
subsidence due to floods or water currents,
water rise, seawater intrusion, extreme hot
weather, drought, damaging cold, hail,hoarfrost, earthquake, tsunami, and othertypes of natural disaster. Among them,flood, storm, flashflood, landslides anddroughts are the recurring natural disasterand claimed for the most damages.
For 2023, the INFORM Global Risk
Index ranks Viet Nam 78 out of 191
countries for disaster risk and assigned Viet
Nam to a medium risk category. Thisranking is based on Viet Nam’s high exposure to hazards but relatively low vulnerability
and above average coping capacity7
In addition, Viet Nam is ranked
Figure 11: Map of hazard zones in Viet Nam
Source: Viet Nam Disaster Management
among the five countries likely to be most
Authority
affected by climate change. The majority of
the country is low-lying coastline and low-lying delta region are highly vulnerable to rising
sea levels. The statistics show that disasters tend to increase abnormally, with higher
intensity, wider scope, irregular and tend to increase in both danger levels, extremes andrepeat cycles.
Over the past 20 years, disasters caused 500 dead and missing persons per year,
and an economic loss to the GDP is about 1÷1.5%. The figures below showed thedamages and losses of disaster for the period 1990 – 2020.

6

As known as the Disaster Risk Management Law (DRM Law)

7“Country Profile 2023/2024: Viet Nam”, European Commission, Disaster Risk Management Knowledge
Centre (DRMKC), INFORM Global Risk index, https://drmkc.jrc.ec.europa.eu/inform-index/INFORMRisk/Country-Risk-Profile21

3,500

3,000

3,000

2,500

2,500

2,000

2,000

1,500

1,500

No. of dead and missing

2020

2018

2016

2014

2012

2010

2008

2006

2004

2002

2000

1998

,0
1996

,0

1994

,500
1990

,500

1992

1,000

1,000

Economic losses (million USD)

Figure 12: Damages and losses of disaster for the period 1990 – 2020 in Viet Nam
Source: Viet Nam Disaster and Dyke Management Authority

3. Major disasters in Viet Nam
The following is a list of major natural disasters in Viet Nam since 2015:
October 2021 – Floods and Tropical Depression
Floods and landslides caused by heavy rain affected northern and central Viet
Nam, resulting in casualties. In Quang Binh province, up to 1,903 residents across seventowns and districts were evacuated, and more than 1,300 houses were damaged. In
Quang Ngai and Quang Nam at least one person died, 7,000 people were evacuated,and more than 16,400 houses were flooded. Floods and landslides blocked many of themain roads across central and north Viet Nam, and power outages were reported in Thua
Thien-Hue Province8.
October to November 2020 – Central Viet Nam Floods
In October and November 2020, Viet Nam experienced the worst flooding in thepast decade with the Inter Tropical Convergence Zone combined with six consecutive
tropical depressions, storms, and tropical typhoons that resulted in widespread flooding
in most of central Viet Nam, killing 291 people with an additional 66 persons reported
missing, and severely affecting 1.5 million people. The disaster destroyed over 500,000
houses, 144,000 ha of rice paddies, 787 km (489 miles) of dykes and canals, and erodedand damaged 272 km (169 miles) of coastline, resulting in economic damage worth
US$1,443,8509. The VNDMA reported that many areas in central Viet Nam recorded a
total rainfall of more than 2,400 mm, and in some locations, floodwaters exceeded theprevious historical high recorded in 1979 and 199910. Figure below shows a timeline of
the weather systems involved in this disaster.

8

Relief Web, 18 October 2021, accessed 28 October 2021, https://reliefweb.int/report/viet-nam/viet-namflooding-landslide-storm-and-wind-central-regions-and-central-highlands-19;
9

IFRC, “Operation Update”, Viet Nam Floods, Appeal No. MDRVN020, Report No.4, 7 July 2021,
accessed 28 October 2021
10

“Flood Response Plan”, UN Resident Coordinator Office Viet Nam, Issued 31 October 202022

Figure 13 : Timeline of weather systems from 6 October to 15 November 2020.
Source: UNOCHA and VNDMA

Typhoon Molave, which made landfall on 28 October 2020 with winds up to145km/h (90 miles per hour (mph)), was one of the most devastating typhoons in the
country for decades.
February-April 2020 – Severe Drought and Saltwater Intrusion
During this period, 10 of the 13 provinces in the Mekong River Delta area wereaffected by drought and saltwater intrusion, resulting in water shortages, significant
damage to crops, and limited access to water for over 200,000 households. More than
685,000 people had access to livelihoods and basic services disrupted, with an estimatedloss of production from 460,000 ha of rice paddy11.
October 2019 – Typhoon Matmo, Floods, and Landslides
Typhoon Matmo passed over central Viet Nam on 30 October, destroying 179
houses and damaging 2,314 others in the provinces of Quang Ngai. Binh Dinh, Phu Yen,Gia Lai, and Thua Thien Hue. As a result one person was reported missing and 14 more
people were injured12. In the same month, heavy rain caused flooding in other parts ofcentral Viet Nam including Nghe An, Binh Dinh, and Ha Tinh, where three fatalities anddamaging to over 5,000 houses was reported. The heavy rain also triggered landslides,
which blocked major roads in several areas13.
November 2017 - Typhoon Damrey
The aftermath of Typhoon Damrey affected 4.3 million people in 9 provinces andleft 107 people dead. The typhoon destroyed approximately 3,400 houses and damaged
approximately 141,100 houses. The Government evacuated more than 36,000 people inthe coastal Can Gio district of Ho Chi Minh. The typhoon also submerged 5,296 ha of
paddy fields and nearly 15,000 ha of vegetables and fruit fields.
2015-2017 - Drought
The worst drought Viet Nam had seen in 90 years started in 2015 and lasted until
2017. The drought was attributed to the El Niño weather event, with 52 out of 63 provinces

11

IFRC, Viet Nam DREF Operation No. MDRVN019, Emergency Plan of Action, 5 February 2020,
accessed 28 October 2021
12
“Typhoon Matmo injures 14, leaving 1 missing”. Relief Web, 3 November 2019, accessed 28 October
2021
13“Viet Nam – Deadly Floods in Central Provinces”, Floodlist, 22 October 2019, accessed 28 October 202123

affected. In addition, the drought was aggravated by saltwater intrusion that extended up
to 90 km inland in some coastal areas, leaving river water too salty for human or animal
consumption, or to irrigate crops and continue fish-farming production. In total, 2 million
people including 520,000 children and 1 million women, were in need of humanitarianassistance.
4. Viet Nam disaster risk management system
4.1 Legal basis for disaster risk management in Viet Nam
Most of the laws and regulations on natural hazards are concerned with high-riskhazards such as floods and storms, while other hazards were addressed in separate laws
and regulations. This reflects the historical origins of Viet Nam’s natural disastermanagement framework in 1946 when the Central Dike Protection Committee theforerunner of the present NSCNDPC was established by decree of President Ho Chi Minh.
The following are some of the key legal instruments relevant to disaster management inViet Nam:- The Law on Disaster Prevention and Control, adopted by the National
Assembly of Socialist Republic of Viet Nam (Law No. 33/2013/QH13 on 19/06/2016) andthe Amendment of Law on Natural Disaster Prevention and Control and Law on Dyke
Management (Law N0/60/2020/QH14 on 17/06/2020). The LNDPC is the first standalone law to set out Viet Nam’s institutional arrangements, functions, and mandates fordisaster management. It is also the first law to cover all natural hazards in the country.
- Other documents guiding the implementation of the Law include: Decree No. 66/2021/ND-CP dated 06/07/2021 of the Government on theguidelines of the law on disaster prevention and control.
 Decree No. 79/2021/ND-CP dated 01/08/2021 of the Government on theestablishment of the Disaster Risk Management Fund.
 Resolution No. 76/NQ-CP dated 18/06/2018 of the Government on disasterprevention and control.
 Decision No. 553/QD-TTg, dated 06/04/2021 of the Prime Minister on approving
the national program on community awareness raising and community-based
disaster risk management.
 Decision No. 18/2021/QD-TTg, dated 22/04/2021 of the Prime Minister on detailed
regulations on the disaster forecast, warning and information transmission and risk
levels.
 Joint Circular No. 43/2015/TTLT BNNPTNT-BKHDT, dated 23/11/2015 of the
Ministry of Agriculture and Rural Development and the Ministry of Planning andInvestment on providing guidance on the statistical analysis, the collection of
statistics and assessment of damage caused by disasters.
 Circular No. 10/2021/TT-BKHDT, dated 22/12/2021 of the Ministry of Planning andInvestment on guiding the integration of disaster prevention and control content

24

into the socio-economic development plans and sectoral plan and development
plans.
Circular No. 02/2021/TT-BNNPTNT, dated 07/06/2021 of the Ministry ofAgriculture and Rural Development on guiding the development of local natural
disaster risk management plans.

- National Strategy for Natural Disaster Prevention and Control: While
not a legal document in itself, the National strategy provides the overarching policy
framework and strategic direction for disaster management in Vietnam. The objectives
and priorities outlined in the strategy guide the development and implementation of
specific plans and programs, including the National Plan for DRM.
- International Agreements and Commitments: Sendai Framework for
Disaster Risk Reduction 2015-2030, Paris Agreement, SEAN Agreement on Disaster
Management and Emergency Response (AADMER), etc.
4.2. Organizational structure for disaster risk management in Viet Nam
Since the enactment of the Law on Natural Disaster Prevention and Control(LNDPC) in 2013 and its amendment by Law 60/2020/QH14 in 2021, Viet Nam has
further systematized its disaster management apparatus.
The structure and responsibility for DRM and disaster response is set out in the
LNDPC and its supporting decrees (regulations), which lay out a multi-agency andhierarchical model for disaster management. The Government of Viet Nam coordinates
its work at the national level under the umbrella of inter-ministerial committees, which are
replicated at the provincial, district, and commune/ward-level. The system of disaster risk
management in Viet Nam is shown in the figure below:

25

Figure 14 : Systems of DRM in Viet Nam

4.2.1 National Steering Committee for Disaster Prevention and Control
The National Steering Committee for Disaster Prevention and Control, formally theCentral Steering Committee for NDPC is the top body for the Vietnamese Government
disaster management policy development and decision-making. The Standing Office of
the NSCNDPC is the VNDMA, an agency under the MARD. Although the NSCNDPC isestablished under the LNDPC, its mandate and structure is further elaborated throughsupporting decrees issued by the Prime Minister, which has allowed the government torefine the role and responsibilities of the NSCNDPC over time through periodic
amendments.
The Deputy Prime Minister chairs the NSCNDPC. The Minister of MARD is thePermanent Vice-Chairperson of the NSCNDPC, and the Prime Minister has discretion toappoint other Deputy Chairs. In practice, the General Director of the VNDMA and theHead of the Ministry of Defense have acted as effective Vice-Chairpersons of the
NSCNDPC. Members of the NSCNDPC include senior representatives of ministries,
ministerial agencies, and governmental agencies senior representatives of Viet Nam
Television, Voice of Viet Nam, Viet Nam News Agencies, and the Chief of the Office of
the National Committee for Incidents and Disasters Response, Search and Rescue(VINASARCOM).
The mandate of the NSCNDPC is wide-ranging from policy and planning todirecting disaster response, and includes the following responsibilities:

26 Provide guidance for the formulation and implementation of national strategies
and plans, and policies and laws on natural disaster management; Preside over the preparation of disaster response plans; Direct and coordinate disaster response and recovery nationwide: direct
response to “Level 3” disasters; Provide advice on directing response to “Level 4” and “Level 5” natural
disasters; Coordinate and assist or direct local authorities to respond to “Level 1” and“Level 2” natural disasters if such disasters have unanticipated developments which may
result in serious consequences; Depending on the natural disaster developments and actual situation, decide
to take urgent measures and mobilize resources of ministries, ministerial agencies,
governmental agencies, organizations and individuals to respond to and remedy theconsequences of natural disasters in accordance with regulations of LNDPC;
 Direct the production of statistics on damage and local authorities andministries’ demands for emergency assistance, recovery and reconstruction;
 Consolidate and consider proposing to the Government and Prime Minister for
their decision on measures, use of central government budget and other legal resources
for emergency response and disaster recovery nationwide; Inspect, expedite and provide guidelines for natural disaster management by
ministries and local authorities as prescribed by law; Direct, organize drills and provide training for forces involved in natural disastermanagement; direct, implement and organize the implementation of measures togradually increase civil capacity for natural disaster response; Direct and organize the provision of infrastructure, equipment, materials andspecial-purpose vehicles; establish database to serve issuance of decisions on commandover disaster management at all levels;
 Call for, receive and provide domestic and foreign assistance in case ofdisaster-related emergency due to natural disasters; Provide guidelines, inspect, expedite and consolidate results of provision ofassistance resources and report same to the Prime Minister; Direct and prepare documents, provide training, disseminate and communicate
information via social networks and raise community awareness of natural disastermanagement on an annual basis; Provide guidance on activities of internal voluntary forces in charge of natural
disaster management; Advise the Prime Minister on establishing a Front Line Steering Committee
responsible for provide directions in the areas affected by disasters in special situations; Preside over developing and publishing a white paper on disaster management
on an annual basis;27 Provide directions and formulate an operating plan and plan for provision offunding for performance of tasks on an annual basis.
4.2.2 Viet Nam Disaster and Dyke Management Authority
The VDDMA is the Standing Office of the NSCNDPC. From its origins 20 years
ago as the Department of Dike Management and Flood Control, VDDMA’s mandate has
widened to cover the 22 or so different types of hazards identified under the LNDPC.
VDDMA serves as a natural disaster management authority all year round.
4.2.3 Disaster Risk Reduction Partnership
In 2019, the Disaster Risk Reduction Partnership (DRRP) was established withthe membership of 22 international organizations and 4 ministries. The DRR Partnershipis an initiative established under the NSCNDP, and has members from key UN agencies,
international NGOs, and bilateral and multi-lateral partners. It provides a forum toeffectively enhance cooperation and coordination between the Vietnamese government,
donors and development partner community, NGOs, and private sector entities in aconcerted effort for disaster risk reduction.
As of 2023, the total member of the DRRP is 27 (including 23 internationalorganizations and 4 government agencies). The UN Resident Coordinator is co-chair of
the DRR Partnership with the MARD Vice Minister for the term 2023-2025.

28

CHAPTER 4: DISASTER RISK MANAGEMENT PLAN IN JAPAN AND
VIET NAM
1. Introduction
Given their geographical and climatic conditions, Viet Nam and Japan havehistorically been prone to numerous natural disasters. Both nations have establishedlegislative and institutional frameworks for DRM and have implemented a combination of
structural and non-structural measures to mitigate the impacts of these disasters.
Structural measures, such as the construction of dyke systems and theenhancement of earthquake resistance capacities, are employed to prevent or reduce
disaster damage. These measures are informed by the countries’ unique topographicaland climatic conditions and are designed to withstand the specific types of disasters theyfrequently encounter.
In addition to these structural measures, both countries also implement nonstructural measures to further enhance their disaster preparedness. These include thedevelopment and promotion of DRM plans, hazard mapping, and education for disasterrisk reduction. These measures aim to increase community awareness and preparedness,and to ensure a coordinated and effective response when disasters occur.
Through the research entitled “Developing Disaster Risk Management Plan –Lessons learned from Japan Viet Nam”, we aim to delve deeper into these practices. The
objective is to understand, analyze, and learn from the DRM systems of both countries,
and to use this knowledge to improve local disaster risk management plans in Viet Nam.
The expected results include a comprehensive understanding of Japan’s DRM practices
and recommendations for enhancing Viet Nam’s local DRM plans. The main activities toachieve these results include reviewing and analyzing relevant DRM documents fromboth countries, understanding the relationship between government organizations andlocal communities in DRM planning in Japan, and participating in field visits to learn about
Japan’s community-based DRM process and methodology. This research is expected tocontribute significantly to the field of DRM and to the development of effective, contextspecific DRM plans.
2. Disaster risk management plan in Japan
Japan’s legislation for disaster management system, including the Disaster
Countermeasures Basic Act, addresses all of the disaster phases of prevention,
mitigation and preparedness, emergency response as well as recovery andreconstruction with roles and responsibilities among the national and local governments
clearly defined. It also requires the establishment of a Disaster Management Council,
which is responsible for coordinating disaster response efforts.
Japan is governed by a three-tiered administration: the national government,
prefectures and municipalities. The head of each level takes full responsibility for thatjurisdiction in a structure similar to that of a nation. Comprehensive disaster prevention

29

plans are developed in accordance with the roles to be performed at each stage.
Followings are the Disaster Risk Management Planning system in Japan

Figure 15 : Structure of Disaster Planning System in Japan

In Japan, the DRM Planning system has comprised of 5 levels including:Basic Disaster Risk Management Plan: This plan is the highest-level plan andconstitutes the basis for disaster management activities prepared by the National
Disaster Management Council based on the Disaster Countermeasures Basic Act.
Disaster Management Operation Plan: This is a plan made by each

designated government organization and designated public corporation based on the
Basic Disaster Risk Management Plan.


Prefectural Disaster Risk Management Plan: This is a plan made by each

Prefectural, subject to local circumstances and based on the Basic Disaster Risk
Management Plan.


Municipal Disaster Risk Management Plan: This is plan made by Municipal

disaster management Council, subject to local circumstances and based on the Basic
Disaster Risk Management Plan.


Community Disaster Risk Management Plan: This is disaster management

activities plan at the community level which is established by residents and businesses
jointly on a voluntary basis.

30

2.1. The Basic Disaster Risk Management Plan
The Basic Disaster Risk Management Plan is a comprehensive and long-term
Disaster Risk Management Plan forming a foundation for the Disaster Management
Operations Plan and Local Disaster Risk Management Plan.

Figure 16: Structure of Basic Disaster Risk Management Plan

The Basic Disaster Risk Management Plan is decided by the National Disaster
Management Council in accordance with Article 34 of the Basic Act on Disaster
Management. It is reviewed annually and revised when deemed necessary, to takeaccount of the findings from scientific research concerning disasters and their prevention,
as well as disasters that have occurred and the effects of emergency disastermanagement measures implemented in response. Local governments are required todevelop Local Plans for Disaster Risk Reduction, while Designated Administrative
Organizations and Designated Public Corporations are required to develop Disaster
Management Operations Plans, which must be based on the Basic Plan for Disaster Risk
Reduction.
The plan was revised entirely in 1995 based on the experiences of the Great
Hanshin-Awaji Earthquake. It defines responsibilities of each entity such as the national
and local governments, public corporations and other entities. It consists of various plansfor each type of disaster, where specific countermeasures to be taken by each entity aredescribed according to the disaster management phases of prevention and preparedness,
emergency response, as well as recovery and reconstruction.

31

Further, based on the lessons learned from the Great East Japan Earthquake, a
new chapter was created in December 2011, for Tsunami Disaster Countermeasures andchanges were made in September 2012 and January 2014, reflecting amendment of theDisaster Countermeasures Basic Act and reflecting the study results by the Nuclear
Regulation Authority (NRA) respectively. In November 2014, another change was madeto reinforce the measures for removing unattended cars in case of emergency.
In June 2022, The Basic Plan for Disaster Risk Reduction underwent a recent
revision. The primary modifications stem from the 2021 disasters, incorporating strategies
to avert embankment-related disasters, enhance the efficiency of rescue operations, andstreamline processes by publicizing the names of individuals with unknown safety
statuses. Furthermore, new sections have been included, addressing the disseminationof information in case of a large-scale eruption overseas and the judicious issuance ofevacuation orders in the event of a tsunami. In addition, revisions have been made inlight of recent developments in disaster prevention measures, such as promoting the
introduction of advanced technology in disaster response by local governments.
2.2. Disaster Management Operation planThis is a plan prepared by each designated government organization anddesignated public corporation based on the Basic Disaster Risk Management Plan.
The head of a designated government organization must formulate a disastermanagement operation plan pertaining to the function under their jurisdiction, review it
every year, and revise it when found necessary. In formulating and implementing adisaster management operation plan, the head of a designated government organizationmust coordinate it with disaster management operation plans formulated by the heads ofother designated government organizations, and endeavor to have all disastermanagement operation plans formulated and implemented in an integrated and organic
manner.
A designated public corporation must, with respect to its operations, formulate adisaster management operation plan, review it every year, and revise it when foundnecessary. When a designated public corporation has formulated or revised a disastermanagement operation plan pursuant to the provisions of the preceding paragraph, thecorporation must promptly report it to the Prime Minister through the competent Minister
having jurisdiction over the relevant designated public corporation, notify the governorsof relevant prefectures, and release to the public an outline of the plan or revision.
Local Disaster Risk Management Plan describes disaster management
measures that should be taken for each jurisdiction field and matters that form thebasis for local Disaster Risk Management Plan. Disaster Management Operation
plan must not conflict with Disaster Management Operation plan
For example, as the historic landmark and UNESCO World Heritage site, Himeji
Castle in Japan has a Disaster Risk Management Plan in place to safeguard the castle
and visitors during emergencies. It includes various measures such as: Risk assessment,
32emergency response protocols, implementing measures to enhance the resilience of thecastle's structures against seismic activity and fire, maintaining disaster equipment
facilities, staff training and emergency drill conducting 4 times every month, etc.

Figure 17 : Himeji castle fire-fighting drill, January 2024
(Source: Himeji castle management office)2.3. Prefectural Disaster Risk Management Plan
This is a plan made by each Prefectural disaster management Council, subject tolocal circumstances, must be reviewed every year, and revised when found necessary
and based on the Basic Disaster Risk Management Plan. The relevant Prefectural
Disaster Risk Management Plan must not conflict with the Disaster management
operation plan.
A Prefectural Disaster Risk Management Plan is to provide for the following
matters in general:(i) general outline of affairs or operations relating to disaster management
concerning an area of the relevant prefecture to be handled by a designated local
government organization having jurisdiction over the area of the prefecture, in whole orin part, the relevant prefecture, the municipalities within the area of the relevant prefecture,a designated national or local public corporations, and public organizations oradministrators of facilities important for disaster management within the area of therelevant prefecture concerned (referred to as "Jurisdictional Designated Local
Government Organization, etc." in the following paragraph);(ii)plans by category of operations concerning an area of the relevant prefecture:creation or improvement of disaster management facilities, investigation and research fordisaster management, education, drills, and other preventive measures, gathering andtransmission of information, issuance and transmission of forecasts and alarms related
to disaster, evacuation, fire-fighting, flood prevention, rescue, aid, sanitation, and otheremergency disaster control measures and disaster recovery efforts;
33

(iii)plans for coordination, stockpiling, procurement, distribution, transportation,and communication with reference to labor, facilities, equipment, goods, funds, etc.,
required for measures set forth in the preceding item, relating to disaster involving an
area of the relevant prefecture.
In deciding the Prefectural Disaster Risk Management Plan, the prefectural
disaster management council gives due consideration to the need for the Jurisdictional
Designated Local Administrative Organization, etc. to receive support from otherssmoothly or support others in the event of a disaster.
When the Prime Minister has received a report on the Prefectural Disaster Risk
Management Plan pursuant to the provisions of the preceding paragraph, the Prime
Minister is to consult the National Disaster Management Council and, when foundnecessary, may provide necessary advice or recommendations to the relevant prefectural
disaster management council.
Article 43 of the Basic Act on Disaster Management also states that the jointcommittee of prefectural disaster management councils must formulate a Crossprefectural Disaster Risk Management Plan, review it every year, and revise it whenfound necessary in accordance with the basic Disaster Risk Management Plan.
2.4. Municipal Disaster Risk Management Plan
The Municipal disaster management Council (in a municipality where a Municipal
disaster management Council is not established, the mayor of that municipality;
hereinafter the same applies in this Article) must formulate a Municipal Disaster Risk
Management Plan concerning an area of the relevant municipality, review it every year,
and revise it when found necessary in accordance with the basic Disaster Risk
Management Plan. In this case, the relevant Municipal Disaster Risk Management Plan
must not conflict with the disaster management operation plan or the prefectural area
Disaster Risk Management Plan of the prefecture including the relevant municipality.
A Municipal Disaster Risk Management Plan is to provide for the following mattersin general:(i)general outline of affairs or operations relating to disaster management
concerning an area of the relevant municipality to be handled by the relevant municipality
and public organizations or the administrators of facilities important for disastermanagement within the area of the relevant municipality (referred to as "the relevant
Municipality, etc." in paragraph (4));(ii)plans by category of operations concerning an area of the relevant municipality:
creation or improvement of disaster management facilities, investigation and research fordisaster management, education, drills, and other preventive measures, gathering andtransmission of information, issuance and transmission of forecasts and alarms related
to disaster, evacuation, fire-fighting, flood prevention, rescue, aid, sanitation, and otheremergency disaster control measures and disaster recovery efforts;34

(iii)plans for coordination, stockpiling, procurement, distribution, transportation,and communication with reference to labor, facilities, equipment, goods, funds, etc.,
required for measures relating to disaster involving an area of the relevant municipality,
as set forth in the preceding item.
The Municipal Disaster Risk Management Plan, beyond what is provided for ineach item of the preceding paragraph, may establish plans for a disaster reduction drill
to be implemented jointly with residents of a certain district within the municipality andcompanies which have business places at the relevant district, storage of goods andmaterials required for disaster management activities by District Residents, etc., mutual
support by District residents (community), etc. in the event of a disaster, and otherdisaster management activities in the area.
For example, The Kobe City Disaster Risk Management Plan is a comprehensive
framework, drawing insights from past disasters such as the Great Hanshin-Awaji
Earthquake and the Great East Japan Earthquake. The Kobe City Disaster Risk
Management Plan is created by the Kobe City Disaster Prevention Council, and isreviewed every year and revised as necessary.

Figure 18 : Structure of Kobe City Disaster Risk Management Plan (Source: Kobe city)

2.5. Community Disaster Risk Management Plan
The Community Disaster Risk Management Planning System was establishedfollowing the amendment of the "Basic Act on Disaster Management" in 2013 to promote
voluntary disaster risk reduction activities through self-help and mutual support and toenhance regional disaster resilience as community residents (including business
operators in the area) and municipalities cooperate each other. This allows community
residents to prepare Community Disaster Risk Management Plan (draft) and make a

35

proposal to the Municipal disaster management Council that the Community Disaster
Risk Management Plan be stipulated in the Municipal Disaster Risk Management Plan.
Community Disaster Risk Management Plans are designed to link mutual support
and public support following discussions by various entities in the community, including
residents, business establishments and welfare personnel to freely define the contents ofthe draft plan, which is then set in the Municipal Disaster Risk Management Plan. The
topic in the discussion covers local disaster risks, disaster risk reduction actions andactivities during ordinal times and disasters. In addition to the content of the plan, theprocess of creating the plan, including repeated discussions among district residents andothers, is also important for strengthening the power of mutual support.
To foster the advancement of Community Disaster Risk Management Plans
through the exchange of examples and experiences, the Cabinet Office organized the"Community Disaster Risk Management Plans Forum 2023" on March 26, 2023.
Participants hailing from Tsutsujigaoka, Akishima City, Tokyo, and Takagi-cho, Kokubunji
City, Tokyo will be encouraged to prepare for an unforeseeable major earthquake. During
the forum, Mutsu City and Mabi-cho, Kurashiki City, Okayama Prefecture will showcase
their initiatives, sparking a vibrant discussion on various themes.
3. Disaster Risk Management Plan in Viet Nam

Figure 19 : Structure of Disaster Planning System in Viet Nam

In Viet Nam, the DRM Planning system has comprised of 5 levels including:

National Disaster Risk Management Plan (National Natural Disaster36

Prevention and Control Plan)

Ministerial Disaster Risk Management Plan

Provincial Disaster Management Operation PlanDistrict level Disaster Risk Management Plan

Communal level Disaster Risk Management Plan

In Viet Nam, Disaster Risk Management Plans are developed at local, ministerial andnational levels according to a 5-year planning cycle corresponding to the socio-economic
development plan and are adjusted annually.
People's Committees at all levels organize the development and approval of local
DRM plans and report to superior People's Committees for synthesis and direction.
Provincial People's Committees report Provincial DRM plans to the Ministry of Agriculture
and Rural Development (MARD) and the Ministry of National Defense.
Ministries, ministerial-level agencies, and Government agencies, within the scopeof their functions and authority, are responsible for developing DRM plans of ministries,
ministerial-level agencies, and Government agencies. Report DRM plans to the MARD
and the Ministry of National Defense.
MARD presides and coordinates with the Ministry of National Defense, ministries,
ministerial-level agencies, Government agencies and localities to develop a National
DRM Plan to submit to the Prime Minister for approval.
3.1.

National DRM Plan

The National DRM Plan (National Natural Disaster Prevention and Control Plan)of Vietnam is stipulated in Section 1, Chapter II of the 2013 Law on Natural Disaster
Prevention and Control of Vietnam, alongside regulations pertaining to the National
Strategy on Natural Disaster Prevention and Control14.
The National DRM Plan is prepared by Ministry of Agriculture and Rural
Development (MARD), which serves as the permanent agency for the National Steering
Committee for Natural Disaster Prevention and Control (NSCNDPC), in coordination with
the Ministry of National Defense and relevant authorities.
In April 2022, MARD has coordinated with relevant ministries, sectors andlocalities to build a National DRM plan to 2025, under Decision No. 342/QĐ-TTg issued
by the Prime Minister on March 15, 2022. The Plan defines major tasks in the 2021-2025
period to implement the National Strategy on natural disaster prevention and control by
2030, with a vision to 2050.

14

The National Strategy for NDPC operates on a 10-year cycle, featuring a 20-year vision, andundergoes periodic updates and adjustments every five years or in response to significant changes innatural disaster occurrences.

37

The overall aim of the Plan to 2025 is to improve capacity for natural disasterprevention and control, climate change adaptation to proactively respond to and reduce
damage caused by natural disasters.
The Plan to 2025 concentrates on completing laws, mechanisms, and policies;
disseminating laws and skills and raising public awareness; building capacity for natural
disaster prevention and control; improving disaster forecasting and warning; conducting
basic investigations and developing master plans and planning for natural disasterprevention and control; promoting international cooperation and the application of scienceand technology; and investing in infrastructure.
3.2.

Ministerial DRM Plan

The ministerial-level natural disaster prevention and control plan encompasses
several key components:
Conduct annual evaluations and updates on socio-economic issues,
industry development, and infrastructure within the ministry's purview;
Assess and analyze natural disaster risks, including common risk levels andthe impact of climate change on industry development activities;

Define appropriate measures and strategies for mitigating natural disasterrisks based on identified levels and types of disasters;
Integrate natural disaster prevention and control measures into industry
development planning and initiatives;
Allocate resources and establish annual and 5-year targets for
implementing the natural disaster prevention and control plan;
Specify the responsibilities of organizations and individuals within theministry's jurisdiction for executing, monitoring, and evaluating the plan's implementation.
3.3.

Local DRM plan

The DRM in Viet Nam will be developed by all the localities from communal tocentral level as set out in Clause 10 Article 1 of the 2020 DRM Law.
To develop the DRM Plan, local authority should follow the detailed procedures:
1. Review and collect documents; conduct basic data investigation and survey.
2. Determine and assess risks and propose solutions.
3. Formulate a draft of the Natural Disaster Risk Management Plan; seek opinionsof agencies and units concerned; receive, respond to and revise the draft.
4. Promulgate the natural Disaster Risk Management Plan: a People’s Committee
shall approve and promulgate its plan.
3.1.1. Outline of local DRM Plan-

Legal basis: This includes the DRM Law, the Law on Irrigation, the National Strategy
for Natural Disaster Management, and other relevant under law documents.

-

Objectives and Requirements: The plan should align with the policies of theCommunist Party, the Government, and the Provincial People’s Council/ District
38

People’s Council/ Communal People’s Council. It should also be in accordance with
the natural disaster management strategy, planning, and plan at a
central/provincial/district/communal level, as well as forecasts, warnings, and theactual situation and resources of the localities.
-

Characteristics of the localities Natural Characteristics: The geographical location, topographical andgeological characteristics, and meteorological, hydrographic, andoceanographic characteristics.
 Demographic, Socio-Economic, and Main Infrastructural Characteristics.

-

DRM Assessment: An evaluation of the current state of disaster risk management.

-

Risk Determination and Assessment: This involves identifying common types ofnatural disasters and determining the scope, method, and contents of the assessment.

-

Disaster Management Measures: These include preparedness, response, recovery,
and reconstruction measures suitable for levels of disaster risks, as well as anintegrated flood management plan for provincial river basins and other related plans.

-

Integration of DRM Contents: Determining measures and methods for integrating
DRM contents into socio-economic development planning and plans.

-

Resource Allocation and Scheduling: This involves determining the resources andschedule for each year and for every five-year period.

-

Responsibility: Determining the responsibilities of organizations and individuals for
implementing, inspecting, and supervising the implementation of the DRM plan.
3.2.2. Provincial DRM Plan

The provincial plan will be approved by the Provincial People’s Committee with thefollowing details:
Provincial demographic, socio - economic and infrastructural characteristics
Assessment of natural disaster management
1. Legal documents and policies on natural disaster management: assess level of
implementation of laws and policies; plan to provide resources and operating conditions
for Command Centers for Natural Disaster Management and forces in charge of natural
disaster management.
2. Local committee for disaster prevention and control, search and rescue
regulation: describe organizational structures of the provincial committee for disasterprevention and control/search and rescue; human resources and capacity of full-time andpart-time forces; infrastructure and equipment of Standing Offices of provincial- anddistrict-level committee for disaster prevention and control; regulations on assigning tasks
to members and regulations on cooperation between agencies concerned.

39

3. Early warning and forecasting: Assess the early warning and forecasting carriedout locally through central government, hydro-meteorological forecasting agencies andforecasting and warning agencies of the province and region with respect to the details,
reliability, adequacy, continuity, promptness, ease of understanding and news
broadcasting tools.
4. Vehicles and equipment serving natural disaster management: produce
statistics on and assess the status, lists, quantity, quality, location of storage andorganizations and individuals assigned to perform management thereof. Conduct general
assessment of regulations on management and use thereof, current capacity anddemand thereof in the future.
5. Natural disaster response and search and rescue: assess key forces’ capacity
for natural disaster response and search and rescue in the province; participation by othercivil organizations and individuals. The assessment shall focus on quantity, capacity,equipment and vehicles of these forces.
6. Natural disaster management information and communication: Assess thestatus of local information and communication systems; methods of natural disastermanagement information dissemination and communication. Assess the province’s
capacity for applying and managing natural disaster management database.
7. The community’s capacity and awareness of natural disaster management:
Conduct assessment of awareness of and skills in response to natural disasters andtraining in natural disaster management in the province.
8. DRM Infrastructure: Assess the DRM infrastructure system (meteorological,hydrographic, oceanographic and seismic observatories, disaster warning stations, dikes,
dams, reservoirs, embankments, works serving prevention of inundation, droughts,
saltwater intrusion, landslides, land subsidence and flashfloods, and lightning protection
works, storm shelters for boats, evacuation houses, works serving forest fire prevention
fighting and other works serving natural disaster management); electric power system,
communication system, radio and television broadcasting system; traffic system serving
search and rescue.
9. Assess the integration of natural disaster management contents in industry
distribution and development and socio - economic development programs, projects,
planning and plans: instructional documents; integration results, advantages anddisadvantages; proposals and recommendations.
10. Assess post-natural disaster recovery and reconstruction: assistance in natural
disaster relief and recovery (producing statistics on and assessing damage anddemands); results of implementation of assistance policy and use of emergency
resources for infrastructure repair, life stabilization and sustainable livelihood; executionof projects on establishment of settlements in natural disaster-hit areas.

40

11. Assess financial resources for natural disaster management in the province,
direct or indirect investment (through the integration contents), including budget forrecurrent expenditure, budget for development investment expenditure, state budget
reserves, financial reserve fund, ODA funding, financial assistance from foreignorganizations, disaster management fund and other legal sources.
Determination and assessment of natural disaster risks
1. Determine common types of natural disasters.
2. Assess natural disaster risksa) Scope of assessment: carry out disaster risk assessment by local administrative
units; time scope: carry out assessment of risks of future climate-change disasters (basedon the latest climate change scenario published by the Ministry of Natural Resources andEnvironment), the series of collected data on the intensity of natural disasters anddamage over the last 05 to 10 years and statistics on historical and major natural
disasters that occurred before;b) Methods and contents of assessment, in the following order of priority:
Assessing intensity of each type of local typical natural disaster according toregulations on levels of natural disaster risks promulgated by the Prime Minister andaccording to actually measured data and calculation results; assessing vulnerability ofeach affected subject such as humans, housing and some major economic sectors(agriculture, handicrafts, industry, commerce and tourism), infrastructure (traffic,
construction, electric power, communication, irrigation, natural disaster management,
health, education and culture infrastructure); general assessment of level of risk of eachtype of natural disaster affecting each subject due to the impact of climate change onsocio - economic activities within the scope of management.
3. Making local disaster risk maps at scales of around 1:5.000 to 1:50.000 and in
conformity with the maps of local administrative units; making maps at a scale larger than
1:5.000 in the case of areas frequently hit by natural disasters and highly populated areas;
describing level of risk of each type of natural disaster using different colors (light blue:
small risk, light yellow: medium risk, orange: significant risk, red: extreme risk and purple:
catastrophic).
Natural disaster management contents and measures
1. Determining natural disaster management contents and measures suitable forlevels of natural disaster risks and specific types of natural disasters in order to reduce
disaster risks, focusing on dangerous areas and vulnerable subjects, specifically:
prevention and mitigation measures (structural measure and non-structural measures);natural disaster response measures and natural disaster relief and recovery measures.
2. Focusing on formulating integrated flood management plan for provincial river
basins; strong typhoon and super typhoon preparedness plans; flash flood and land slide41

prevention plans; drought and saltwater intrusion prevention plans; plans for preventionof flood or flow-induced riverbank erosion or coastal erosion.
3. Specific measures tailored for several types of natural disasters.
Resources and annual and 05-year schedules for implementation of thenatural Disaster Risk Management Plan
1. Human and financial resources for implementation of the natural Disaster Risk
Management Plan are set out in Clauses 3 and 5 Article 1 of the DRM Plan.
2. Annual and 05-year schedules for implementation of the natural Disaster Risk
Management Plan: Rely on the list of natural disaster management tasks, programs,
schemes and projects to consider implementing them in the order of priority, carry out
investment phasing and determine resources for implementation; annually review, update
and make additions to the provincial natural Disaster Risk Management Plan. Provide
funding for implementing annual and 05-year plans.
Responsibilities of organizations and individuals for implementing,inspecting and supervising implementation of the natural Disaster Risk
Management Plan
Determine contents of specific tasks and delegate responsibilities to organizations
and individuals for implementing, inspecting and supervising the implementation of thenatural Disaster Risk Management Plan.
1. Organize performance of the assigned tasks specified in the natural Disaster
Risk Management Plan; schedule and resources for performance thereof.
2. Formulate an annual implementation plan to fulfill the objectives of the 05 year
plan; review, assess and adjust the annual and 05-year natural Disaster Risk
Management Plans.
3. Implement, supervise and assess the implementation of the provincial natural
Disaster Risk Management Plan; review, report and supervise the implementation of theannual and 05-year plans
3.2.3. District level DRM Plan
District-level demographic, socio - economic and infrastructural characteristics
Assessment of natural disaster management at district level
1. Natural disaster management and search and rescue command systems,
including establishing and consolidating the district-level Command Center for Natural
Disaster Management; formulating natural disaster response plans and instructional
documents.
2. Forces, vehicles, materials, equipment and necessities serving natural disastermanagement: quantity; agencies and units deploying and storing; location of storage;
quality and useful life thereof.

42

3. Natural disaster management information and communication: Assess thestatus of local shared and separate information, communication and disaster warning
systems; methods of natural disaster management information dissemination andcommunication.
4. The community’s capacity and awareness of natural disaster management:
Conduct general assessment of awareness and skills of the people and community, andtraining in natural disaster management in the district.
5. Status of works serving natural disaster management in the district: produce
statistics on and assess the capacity and level of resistance of these works.
6. Financial resources for natural disaster management in the district, direct orindirect investment (through the integration contents), including budget for recurrent
expenditure, budget for development investment expenditure, state budget reserves,financial reserve fund, ODA funding, financial assistance from foreign organizations,disaster management fund and other legal sources.
Natural disaster management contents and measures
1. Natural disaster management contents and measures must be suitable for eachtype of natural disaster and levels of risks of common natural disasters in the district andfocus on vulnerable subjects, including building works serving natural disastermanagement in the district as assigned; organizing dissemination of information andcommunication to raise community awareness of natural disaster management;
organizing determination of dangerous areas hit by various types of natural disasters in
the district; formulating plans to respond to levels of risks of common natural disasters in
the district; formulating an annual plan to keep watch for natural disaster management;
formulating plans to organize natural disaster management skills training and drills.
2. Basic measures for district-level natural disaster management
Proposed demands for resources and annual and 05-year schedules for
implementation of the natural Disaster Risk Management Plan
1. List of works serving natural disaster management as assigned to annual and05-year plans: name of project, location, expected total investment capital, expected timeof implementation and provision of annual capital.
2. Demands for human and financial resources for every year and every 05 years
for performance of tasks: training in raising community awareness of natural disastermanagement; reviewing and determining dangerous areas hit by various types of natural
disasters in the district; formulating plans to respond to levels of risks of common natural
disasters in the district; funding for procurement of specialized equipment serving
command over natural disaster management.
Responsibilities for organizing implementation of the natural Disaster Risk
Management Plan

43

Determine contents of specific tasks and delegate responsibilities to organizations
and individuals for implementing, inspecting and supervising the implementation of the
district-level natural Disaster Risk Management Plan.
1. Organize performance of specific tasks and schedule therefor specified in thenatural Disaster Risk Management Plan; resources for performance thereof.
2. Formulate an annual implementation plan to fulfill the objectives of the 05-year
plan; review, assess and adjust the annual and 05-year natural Disaster Risk
Management Plans.
3. Implement, supervise and assess the implementation of the district-level natural
Disaster Risk Management Plan; review, report and supervise the implementation of theannual and 05-year plans.
3.2.4. Communal DRM Plan
Commune-level demographic, socio - economic and infrastructuralcharacteristics
Assessment of natural disaster management at commune level
1. Natural disaster management and search and rescue command systems,
including establishing and consolidating the communal committee for disaster prevention
and control; establishing and consolidating voluntary forces in charge of natural disastermanagement.
2. Forces, vehicles, materials, equipment and necessities serving natural disastermanagement: quantity; agencies and units deploying and storing; location of storage
thereof.
3. Natural disaster management information and communication: Assess thestatus of local shared and separate information, communication and disaster warning
systems; methods of natural disaster management information dissemination andcommunication.
4. The community’s capacity and awareness of natural disaster management:
Conduct general assessment of awareness and skills of the people and community, andtraining in natural disaster management in the commune.
Natural disaster management contents and measures
1. Organizing dissemination of information in order to raise community awarenessof natural disaster management as follows:
Broadcast news bulletins on natural disaster management; disseminate
documents to the people and community; broadcast warning bulletins and bulletinsproviding instructions on natural disaster management skills in areas under management.

44

2. Formulating plans to respond to levels of disaster risks and types of natural
disasters according to local disaster developments, and human resources, materials andequipment serving natural disaster management.
3. Keeping watch and updating information on disaster developments
4. Determining dangerous areas under management according to the occurrenceof natural disasters in the commune, especially historical disasters and topographical andgeological characteristics of the areas under management.
5. Preparing places for evacuation
6. Organizing natural disaster management training and drills, executing the
project on raising community awareness of community-based disaster risk management.
Responsibility for organizing implementation of the natural Disaster Risk
Management Plan
The commune-level People’s Committee shall determine contents of specific tasks
to implement the natural Disaster Risk Management Plan; organize review andadjustment of the 05-year natural Disaster Risk Management Plan; formulate an annual
implementation plan to fulfill the objectives of the 05 year plan; delegate responsibilities
to members of the commune-level Command Center for Natural Disaster Management
and relevant organizations and individuals performing tasks according to the communelevel natural Disaster Risk Management Plan.
3.3. Challenges of Viet Nam in developing the DRM Plan
When developing disaster prevention and mitigation plans, especially at the local
level, there are several challenges that local authorities often face:Complexity of different types of natural disasters:Each type of natural disaster (floods, droughts, landslides, flashflood etc.)
has unique characteristics. Effective plans must be flexible and adapted to specificregions.
Addressing different types of disasters necessitates specific prevention andresponse strategies. For example, flood prevention measures differ from those fordroughts or storm surges.

Lack of Information and Forecasting: insufficient coverage of hazardous
regions by the national meteorological and hydrological network, leading to inadequate
forecasting and delays in issuing timely warnings. Predicting specific events like flash
floods and landslides remains difficult due to the complex interactions between weather
patterns, terrain, and local conditions. Additionally, the lack of comprehensive historical
data and early warning systems limits the availability of real-time information for disaster
response. Addressing these challenges necessitates improving the coverage ofmonitoring networks, enhancing forecasting capabilities, and investing in early warning45

systems to provide timely and accurate information for disaster preparedness andresponse.
Public awareness and participation: Engaging the public in DRM
planning and implementation is essential for building community resilience. Vietnam
encounter challenges in raising public awareness about disaster risks, promoting
community participation, and fostering a culture of preparedness.
Coordination Among Relevant Agencies and Units: Disastermanagement in Vietnam encompasses various sectors such as agriculture, natural
resources, health, education, infrastructure, and social welfare, each with its own
priorities and communication channels. Ensuring effective collaboration andcommunication among these sectors is crucial. Local authorities need to coordinate
closely with police, fire departments, health services, and NGOs to enhance
preparedness. Establishing clear communication channels, conducting joint training
exercises, holding regular meetings, and sharing resources are essential for improving
disaster response and preparedness efforts.
Limited funding and resources: Developing effective disaster prevention
and mitigation plans requires financial and resource allocation. Localities often struggle
to balance available resources to implement necessary measures. Secondly, funding
sources, such as disaster prevention and mitigation funds or the Contingency budget fordisaster and epidemic, may be limited or difficult to access.
Most disaster prevention plans are developed by local disaster management
officials. However, comprehensive planning requires consultation with relevant
stakeholders. Unfortunately, budget constraints often hinder engaging external
consultants for plan development.
Emergency response: When disasters strike, quick deployment ofprevention and response measures is critical. Local authorities must act swiftly anddecisively to protect lives and property. Although the local authority has established thecommunal disaster response team – as the first disaster responders in the ground.
However, the operation of the team is still limited due to lack of mechanism and budget.
Capacity building: Developing and implementing DRM plans require
specialized knowledge, skills, and capacities among government officials, professionals,
and communities. Vietnam may need to invest in capacity-building initiatives to enhance
the skills and capabilities of relevant stakeholders.
Most notably, Viet Nam's current disaster management policies focus largely on
emergency response and recovery rather than risk reduction and preparedness, while
there are many valuable lesson from Japan's approach, which emphasizes thesepreventive measures. Vietnam can greatly benefit from adopting Japan's lessons todevelop more comprehensive DRM plans, enhance its disaster resilience.

46

CHAPTER 5: LESSONS LEARNED FOR VIET NAM
Viet Nam's Disaster Risk Management Plan is undergoing a significant shift froma passive response to proactive prevention. This shift signifies a fundamental change inapproach, emphasizing proactive measures aimed at reducing vulnerability andmitigating risks before disasters occur. By focusing on prevention rather than solely onreactive response, Viet Nam aims to enhance resilience, protect lives and livelihoods,
and minimize the socio-economic impact of natural disasters. This proactive approach
involves various strategies, including early warning systems, risk assessments,
community-based disaster risk reduction initiatives, infrastructure investments, and policy
interventions.
Drawing from lessons learned in Japan, Vietnam can shift from passive response
to proactive prevention in disaster management. By embracing Japan's experiences andbest practices, both central and local authorities in Vietnam can discern the measuresthey should prioritize in the development of Disaster Risk Management (DRM) plans.
Some notable lessons from Japan include:
1. Strengthening community-based disaster risk management
Japan's commitment to community engagement and education in disaster
preparedness is deeply ingrained in disaster plans at both national and local levels,
underscoring the nation's dedication to empowering individuals and communities to
respond to and recover from disasters effectively. This commitment is evident throughthe implementation of Community-Based Disaster Risk Management (CBDRM) activities
nationwide. Some of these initiatives include:
Town-Watching for Disaster Prevention:
Town-Watching for Disaster Prevention is a simple and practical tool for efficiently
implementing community based hazard mapping in local communities. Town-Watchingfor Disaster Prevention consists of 4 parts: Field survey, develop a map of observation,
discussion to solve the problem and Presentation.
Town-Watching for Disaster Prevention is a program aimed at comprehending
hazardous locations within the local area concerning disasters, while also identifying
beneficial areas and strategies for disaster response through observing the town from adisaster prevention perspective. This activity has been implemented for individuals
participating in disaster risk reduction (DRR) training in Japan, as well as in numerous
countries globally. 15

15

Town-Watching for Disaster Prevention Guidebook, 2016 by Yujiro OGAWA

47

Figure 20: Town-Watching for Disaster Prevention activity with ADRC VR FY2023, January 2024

Public awareness events and disaster memorial museums:
The Great Hanshin-Awaji Memorial Public Awareness Event serves as a poignant
reminder of the devastating earthquake that struck the Kobe region in 1995. Through thisevent, the community comes together to honor the lives lost, the resilience demonstrated,
and the lessons learned from the disaster. It provides a platform for educating the public
about disaster preparedness and the importance of community resilience. Throughvarious activities such as seminars, workshops, exhibitions, and commemorative
ceremonies, attendees gain insights into the significance of disaster prevention measuresand the collective efforts required to mitigate future risks. By fostering awareness andunderstanding, the event not only pays tribute to the past but also empowers individuals
and communities to build a safer and more resilient future.
Furthermore, Japan hosts numerous museums and memorial events dedicated tocommemorating past disasters, offering valuable insights into the nation's history ofresilience and recovery. These institutions serve as important educational resources,
shedding light on significant events such as the Great Hanshin-Awaji Earthquake of 1995,
the Great East Japan Earthquake and Tsunami of 2011, and other disasters that haveshaped Japan's collective memory. Through exhibitions, interactive displays, andfirsthand accounts, visitors can gain a deeper understanding of the impacts of thesecalamities on individuals, communities, and the nation as a whole.
Moreover, these museums and events play a vital role in promoting disaster
preparedness and fostering a sense of solidarity among the population, emphasizing theimportance of learning from the past to safeguard against future catastrophes. By
preserving the memories of these tragedies and honoring the resilience of those affected,
Japan's museums and memorial events contribute to a culture of remembrance andrenewal, inspiring ongoing efforts to build a safer and more resilient society.
DRR drill for students and family:
In Japan, initiatives like the Iza! Mikaeru Caravan ((disaster prevention education
event) exemplify the country's proactive approach to disaster preparedness, particularly
among school children and families. These drills are designed to equip participants with48

essential knowledge and skills to effectively respond to emergencies. Through interactive
workshops, simulations, and educational materials, children and their families learn how
to react swiftly and safely during earthquakes, typhoons, and other natural disasters thatfrequently affect the region. By actively involving both children and their parents in thesedrills, Japan not only ensures that future generations are better prepared but also fosters
a culture of shared responsibility and community resilience.
The Iza! Mikaeru Caravan and similar programs serve as invaluable platforms forpromoting disaster awareness, empowering individuals with life-saving information, andultimately strengthening the nation's overall disaster management capabilities.

Figure 21: The 2024 Iza! Mikaeru Caravan and DRR evacuation simulation in Kozukayama
Elementary School, Kobe city

Overall, by prioritizing community engagement and education in disaster
preparedness with similar activities, Viet Nam can empower its residents to take proactive
measures to mitigate the impact of disasters, at the same time address the challenge oflacking information of local hazardous zone in the development of DRM plans.
Furthermore, integrating disaster preparedness education into school program canbring lifelong skills and habits for Vietnamese youth, fostering a culture of resilience froman early age.
2. Enhancing Infrastructure for Disaster resilience
Japan's emphasis on resilient infrastructure, such as earthquake-resistantbuildings and tsunami barriers, flood gates, etc., underscores the importance of investing
in infrastructure that can withstand natural hazards. Viet Nam can apply this lesson byprioritizing infrastructure projects that are resilient to typhoons, floods, and landslides.
Japan's extensive use of evacuation signs in emergency situations serves as avaluable example from which Viet Nam can learn, particularly in managing floods andtyphoons. Throughout Japan, evacuation signs are prominently displayed in public
spaces, including streets, parks, and residential areas, providing clear guidance on
evacuation routes, assembly points, and emergency shelters. Viet Nam commonly
utilizes community houses as temporary shelters during floods and typhoons. These
community structures serve as essential hubs for local residents seeking refuge from49

extreme weather events. By adopting a similar approach, Viet Nam can develop clear
and standardized evacuation signage systems would empower Vietnamese communities
to respond effectively to emergencies, reducing the risk of loss of life and property
damage. Additionally, educating the public on the meaning and significance of thesesigns through awareness campaigns and community outreach programs would further
reinforce their effectiveness in disaster response and mitigation.
Another valuable initiative that Viet Nam can learn from Japan is the utilization ofroad rest areas, known as Michi-no-eki, as DRR facilities. In Japan, Michi-no-eki serve
as more than just rest stops for travelers; they are also equipped with various amenities
and resources to support communities during emergencies. Strategically positioned
along highways and main thoroughfares, these facilities attract a high volume of daily
visitors and travelers. By repurposing existing infrastructure like road rest areas into multifunctional DRR facilities, Viet Nam can enhance its disaster preparedness and response
capabilities. These facilities can serve as evacuation sites, distribution centers for relief
support from the government and NGOs, and coordination hubs for emergency response
teams. In normal time, they can also offer valuable DRR information by integrating pastdisaster lessons, support and disaster prevention measures of the localities. By adopting
this approach and collaborating with relevant ministries and neighboring authorities,
Vietnam's localities can effectively reduce financial burdens while still leveraging existing
infrastructure to develop resilient and adaptive systems.

Figure 22 : DRR archive and pastdisaster exhibition in Michi-no-Eki Patio,
NiigataFigure 23 : Michi-no-Eki Arai, Myoko, Niigata whichfunctions as emergency shelter for people in the
Noto Peninsula earthquake January, 2024

3. Strengthening Public-private partnership
In Japan, public-private partnerships play a crucial role in disaster management,leveraging the strengths and resources of both government entities and private sector
organizations to enhance preparedness, response, and recovery efforts. These
partnerships are founded on the recognition that effective disaster management requires
collaboration across various sectors to address complex challenges comprehensively.
One notable example of public-private partnership in disaster management inJapan is the Japan's Bosai platform (JBP). This platform would serve as a forum for50

fostering Public-Private Partnerships and sharing innovative solutions in disastermanagement. Taking cues from Japan's effective strategies, Vietnam can develop aplatform for Disaster Risk Reduction (DRR) companies to facilitate collaboration between
government entities, private sector companies, NGOs, and academia to address disasterrisks collectively.
Japanese companies also proactively involvement in DRM. Many Japanese
corporations actively contribute to DRR efforts by implementing measures to mitigate
disaster risks, ensuring business continuity, and supporting community resilience. For
example, expressway companies in Japan (Nippon West Expressway, Hanshin
Expressway, etc.) prioritizes disaster countermeasures for road infrastructure as part oftheir comprehensive disaster prevention plan. Several companies such as Weather News
Inc., Tokio Marine Holdings, Inc., etc. actively contribute to disaster management efforts,
leveraging their expertise, resources, and technology to enhance preparedness,
response, and recovery initiatives, by providing real-time weather updates, early
warnings, and risk assessments for various natural hazards; or investing in risk
assessment and mitigation strategies to reduce the impact of disasters on insured
properties and support recovery efforts.
Viet Nam Law on Natural Disaster Prevention and Control establishes the rights
and responsibilities of businesses in DRM, granting them the authority to engage in multipurpose natural disaster prevention and control projects in accordance with government
plans and regulations. This legal framework provides a solid foundation for Public-Private
Partnership collaboration in DRM, facilitating joint efforts between businesses andgovernment agencies to enhance resilience against natural disasters. There is a need for
greater advocacy from central and local governments to encourage businesses andpotential sponsors to actively participate in this critical area. Increased collaboration andinvestment from both public and private sectors will be essential in effectively addressing
the growing challenges posed by natural disasters and building a more resilient society.
Business Continuity Planning (BCP) is a comprehensive strategy essential for
mitigating the impact of natural disasters on businesses. Japanese companies prioritize
risk assessment, infrastructure resilience, employee training, supply chain continuity,
regulatory compliance, and collaboration to ensure business continuity and resilience.
Japanese Government actively promote BCP adoption among businesses, providing
guidance, resources, and incentives to encourage compliance.
Nearly 90% of Vietnamese businesses are impacted by natural disasters, with
60% experiencing significant financial losses and 5% facing the threat of bankruptcy,
according to a survey conducted by the Asia Foundation. These statistics highlight theprevalent passive approach among businesses when confronted with emergency
situations arising from natural disasters. Despite the pervasive risks posed by such
events, many businesses have yet to adopt proactive measures to mitigate their impact.
This underscores the urgent need for businesses in Vietnam to shift from passive
responses to more proactive strategies in disaster preparedness and risk management.

51

In 2020, the Viet Nam Chamber of Commerce and Industry (VCCI) had provided BCP
guidelines to assist businesses in Viet Nam in preparing for and mitigating the impact ofdisasters and disruptions. 16 However, implementing BCP in Viet Nam faces many
challenges, such as limited awareness and resources, complexity of risk assessment,
regulatory compliance ambiguity, infrastructure constraints, cultural factors, and supply
chain complexity, since most of Vietnamese enterprise is medium and small enterprise.
4. Developing Inclusive DRR plan
On April 28th, 2021, Japan's House of Councilors passed the "Bill for the Partial
Revision of the Basic Act on Disaster Management etc." This bill was subsequently
promulgated on May 10th and enforced on May 20th, 2021, under Law number 30. As aresult of this amendment, Japanese local governments are now mandated to develop
individual evacuation plans for vulnerable populations, including people with disabilities
and the elderly, who face significant challenges during disasters.

Figure 24: Beppu City Inclusive DRR drill (Source: Cabinet Office News)In line with this legislative change, Beppu City has been at the forefront ofpromoting "inclusive DRR plan" since 2016. Through collaboration with government
agencies, individuals with disabilities, the elderly, welfare professionals, and local
residents, Beppu City has been implementing comprehensive disaster prevention
initiatives that prioritize inclusivity and accessibility. The results of these efforts are theamendments to the Basic Act on Disaster Management, reflecting the importance ofinclusive approaches in disaster preparedness and response strategies.
Viet Nam can adopt a collaborative approach similar to Beppu City's project,involving government agencies, individuals with disabilities, the elderly, welfare
professionals, and local residents in disaster prevention initiatives. Collaboration ensuresthat diverse perspectives and needs are taken into account. Although an inclusive DRR
plan may not be obligatory presently, it should be actively promoted within communities
and localities through CBDRM workshops or local gatherings. This proactive approachaims to prevent the exclusion of any group, ensuring that no one will be leaved behind.

16

https://vca.org.vn/upload/file/finalmarquette-xay-dung-ke-hoach-kd-002.pdf

52

5. Enhancing cooperation and coordination in developing DRM Plan:
In Japan, the development of the DRM Plan will be taken by the consultation withthe support from the Government official. This collaborative approach ensures that the
DRM Plans are widely consulted and more practical, as they incorporate diverse
perspectives beyond just government staff.
Japan also has a platform where local government officials collaborate to support
the development of prefectural and municipal disaster prevention plans. This platform
serves as a forum for exchanging information and sharing experiences related to thecreation of these plans. An example of such collaboration occurred on October 21, 2020,
with the "Opinion Exchange Meeting" held in Kobe City, Hyogo Prefecture. At this event,local government officials involved in the creation of local disaster prevention plans
shared their experiences and insights, with the participation of consultants and experts inthe field17. Viet Nam can benefit from Japan’s experiences and achievements in disastermanagement by applying similar strategies and adapting them to its own context.
Regular revisions of disaster plan at both the national and local levels are essential,
informed by lessons learned from past disasters both within and outside the region.
Japan's disaster plans are revised regularly to ensure they remain up-to-date andeffective in addressing evolving risks and challenges.
At the national level, Japan's Basic Plan for Disaster Management is reviewed
every five years, with interim revisions made as necessary to reflect emerging priorities
and developments. Additionally, prefectural and municipal governments regularly review
and update their own DRM plans in accordance with national guidelines and local needs.
These revisions often involve consultations with relevant stakeholders, including
government agencies, local communities, and experts in disaster management.
Vietnam can adopt regular plan reviews, prioritizing lessons learned from pastdisasters, and engage diverse stakeholders in national and local planning efforts.
Flexibility should also be considered, recognizing that plans may need to be adjusted in
response to evolving risks, technology, and socio-economic factors.

17

White Paper on DM, Japan 2023 - Cabinet Office, Government of Japan53

CHAPTER 6: RECOMMENDATIONS
While Vietnam may not have community-level DRM plans like Japan, it canleverage the concept of CBDRM as a form of community plan. By promoting CBDRM andincorporating best practices from Japan and other countries, Vietnam can enhance its
disaster preparedness and resilience at the grassroots level. This approach would involve
actively engaging local communities, leveraging their knowledge and resources, andtailoring disaster response strategies to address specific risks and vulnerabilities withineach community.
Drawing lessons from Japan's emphasis on resilient infrastructure, particularly indisaster-prone areas like Central Vietnam, the DRM plan should prioritize measures suchas reinforced buildings, elevated roads, and improved drainage systems, while also
promoting construction initiatives tailored to the local characteristics.
The local authorities in Vietnam can aslo gain significant advantages by enlisting
the services of a consultant to develop a thorough local DRM plan. This brings precise
insights from experts in the field, aiding in the identification and evaluation of particularrisks, and suggesting strategies for mitigation and prevention. Moreover, engaging a
consultant helps ensure that the DRM plan is developed according to international
standards and best practices from other countries and regions.

54

REFERENCES
1. JapanWhite Paper on DM, Japan 2023 - Cabinet Office, Government of Japan(https://www-bousai-go-jp.translate.goog/kaigirep/hakusho/r05/)
Basic Act on Disaster Management (Act No. 223 of 1961), Government of Japan(https://www.japaneselawtranslation.go.jp/en/laws/view/3322/en#je_toc)
Disaster Management in Japan - Cabinet Office, Government of Japan(https://www.bousai.go.jp/1info/pdf/saigaipamphlet_je.pdf)
The disaster Risk of the Land of Japan, Ministry of Lan, Infrastructure, Transport
and Tourist website (https://www.mlit.go.jp/en/mizukokudo/index.html)
Knowledge Note of Great East Japan Earthquake: Cluster 2 – Non-structural
measures: Community Based Disaster Risk Management by Japan Government, Global
Facility for Disaster Risk Reduction (GFDRR) and the World Bank(https://www.gfdrr.org/sites/default/files/publication/knowledge-note-japan-earthquake2-1.pdf)
Japan Meteorological Agency, 2016, Monitoring of Earthquake, Tsunami andVolcanic Activity (https://www.jma.go.jp/jma/en/Activities/earthquake.html)
Kobe City Management Plan:(https://www.city.kobe.lg.jp/a46152/shise/kekaku/kikikanrishitsu/plan/index.html)
Town Watching for Disaster Prevention Guidebook 2016, Yujiro OGAWA
Presentation of Himeji castle Management office on Disaster and Emergency
Management.
Presentation of Sasahara Akio – Executive Director of ADRC on Disaster Risk
Reduction Administration in Japan.
Presentation of Prof. Satoru Nishikawa, Disaster Mitigation Research Center,
Nagoya University on Mainstreaming Disaster Reduction and Enlargement of Scope andparticipation in disaster reduction.
Presentation of Director of International Cooperation Division, Disaster
Management Bureau, Cabinet Office on “Disaster risk reduction in Japan”.
2. Viet Nam
Law on Natural Disaster Prevention and Control (2013) and the Law amending theLaw on Disaster Prevention and Control and the Law on Dike Management (2020);
National Strategy on Disaster Prevention and Control to 2030 with vision to 2050;
Decision No. 342/QD-TTg dated March 15, 2022 on Promulgation of natural
Disaster Risk Management Plan by 2025
Circular 02/2021/TT-BNNPTNT dated June 07, 2021 of Ministry of Agriculture andRural Development guiding the development of the local DRM plan.

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