2015 APRU-IRIDeS Summer School

Earthquake Reconstruction Operations in Ofunato

July 21,2015

Comprehensive Project Planning Dept.

Masaaki MIYAMOTO

The purpose of my presentation

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CONTENTS
01 Self-Introduction
02 Introduction of Ofunato
03 Overview of the Earthquake Reconstruction Work
04 Noted Points on the Project of Relocation to Uplands
05 Proposal based on the Experience in Ofunato

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01. Self-Introduction

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My Background• Academic History– 2003: Bachelor (Civil Engineering Section, Faculty of Science andTechnology, Waseda University)– 2005: Master's Degree (Graduate School of Frontier Science Environmental
Studies Department, University of Tokyo)• Career– 2005：Entered, Pacific Consultants Co., Ltd.
• 2005~2010: Engaged in domestic development and planning
operations in Tokyo• 2011~2014: Engaged in the earthquake reconstruction
operations in Ofunato• 2014~2015: Assigned to the International Research Institute ofDisaster Science (), Tohoku University• 2015~: Engaged in domestic development and planning
operations in Tokyo
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History of the Reconstruction Work (2011-2014）
March 11, 2011: The Great East Japan Earthquake and Tsunami– April to December, 2011: Corresponding project in Sendai– December, 2011 to September, 2014: Corresponding projectin Ofunato• Opened a field office in Ofunato for the corresponding project
for actual reconstruction work

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02. Introduction of Ofunato

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About Ofunato CityTＯＨＯＫＵ■Features•

Steep topography with spreading typical rias coastline•••

Flourishing town of the leading water industry in Japan
Population: 38,850 (as of Feb. 2015)
Area: 323.30 km2

Aomori Pref.

Akita Pref.

Iwate Pref.

■Damages•

Approx.170km

The arrival of the tsunami: maximum 11.8m(Japan Meteorological Agency observation)

Yamagata Pref.

⇒Flooded areas: Approx. 2% of the total city area•

Human casualties Fatalities: 340
Missing persons: 79•

Approx. 1%of population

Damaged buildings: 5,565 households◎SendaiMiyagi Pref.
Kamaishi
FukushimaPref.

Rikuzentakata

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Area Affected by Tsunami in Ofunato (immediately after 3.11)

Image Source: Website of Ofunato City

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Area Affected by Tsunami in Ofunato （the Present(2015)）

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1003. Outline of the Reconstruction Project

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Contents of the Earthquake Reconstruction Town Planning Project• There are a variety of projects for the earthquake reconstruction
work.
– Disaster Recovery Project• Roads• Water supply, sewerage• Rivers• Coastal conservation facilities• Fishing harbors• Farmlands– Reconstruction Planning and Plan Promotion– Disaster Danger Zone Setting– Relocation to Uplands– Land Readjustment Project– Disaster Public Housing Development Projectetc.
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Difference between the Earthquake Reconstruction projects
to normal projects① Proceeding verification of various projects at the sametime.
② The enactment of the law, "Great East Japan Earthquake
Reconstruction Special Zones Act“, was taken 9 months
after the earthquake, and special provisions wereannounced one after another.
Therefore, the requirements for planning were notconfirmed easily.

③ How to fill the gap between intention of theresidents and business on the feasible contents,
we went forward by trial and error because there was noprecedent.
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Example of project that I was responsible for: Relocation to Uplands
Image of the Project of Relocation to Uplands

Subsidies for transferred people forhousing construction and purchase of land

Land acquisition and constructionof Residential land

Subsidies for transferred people
Group relocation
for resettlement of residence
Residential land

Purchase of farmlands andresidential lands in the
Relocation Promotion Zone

Providing public facilities(roads, parks, meeting
places, cooperative workstations, etc.)

Relocation Promotion Zone
(Disaster land)

Development of the
project plan

Source: Ministry of Land,
Infrastructure and Transport“The Project of Relocation toUplands carried out in the
Great East Japan
Earthquake affected areas."
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Framework of the Project of Relocation to Uplands
National (Ministry of Land, Infrastructure and Transport / Reconstruction Agency)
Guidance
Reconstruction grants delivery
Project agreement

Various applications

Consultation

Iwate Prefecture
Guidance

Consultation

Ofunato City (Project entity)
Contracts

Planning
designing
Various supports

Consultation Contracts

Institutions
concerned

Consultants *Nearly integral
movement

AcquisitionLand
providingLandowners (migration destination)

Construction

Construction
companies

Number of households confirmation /intention confirmation / demand adjustment /contract of residential land, etc.

Victims group (relocation subjects)*Joint Venture
For each district (within city limit: 21 districts, 371 households)

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04. Noted Points on the Project of Relocation to Uplands

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Outline of the Verification Flow of the Project of Relocation to Uplands
and Points of Attention (1/2)
Institutions
concerned

Surveying,
design*Topographicalsurvey*Basic design

Adjustment with therelated projects

Planning

Relocation party
consultation*Consensus formation with relocation persons*Appropriate land selection*Confirmation of relocation number of households*Basic plan (seeking to optimize the plan)

Landowners
consultation

Land consultation

Point of Attention ①

Consent of the plan

Careful FS

Reconstruction grant distribution

Consent of the business plan

Adjustment with the related
projects
Permission of development

etc.

if necessary*Land surveying*Geological survey*Compensation survey*Real estate appraisal*Execution design

Land consultation

Change of project plan

Land determination
Explanation
before construction

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Point of Attention ①: Careful Feasibility Study• Appropriate residential land is less on the hill in the Ofunato City.

– It took the time to select the appropriate landthat corresponded to the demands from relocated person andsatisfied the required number of residential lots.
Example②Appropriate site selection
Candidate site 1

Candidate site 2

Candidate site 3
Candidate site 4
Candidate site 5

Remaining houses３４５

Requirednumber of lots○△△△×

Land acquisition×○○○△

Project cost×○

△

○

○

Laws andregulations

×△

△

○

○×◎

△

◎

○：

Flooded area
Washed away houses

Example of evaluation
Candidate site
１２①Understanding of Relocation
number of households

Comprehensive
evaluation

If the number of residential lots is not enoughin one residential site, 2 sites will be used incombination.
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Ofunato Bay

Configuration of the land category of the city

Forest: 85%, Residential land 4%
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19Characteristic estates in Ofunato (Insertion type residential site)■Features• Close to the existing
settlements and easy tomaintain the community.
• Requires less operating
expenses• Needs shorter construction
periodInsertion typeresidential site

Struggle *Because the residential lands existed in the neighborhood, various demands had been
generated from local people in implementing the design.
Point*It has taken a great deal of time to adjust their requests resulting in delays of construction.

*Adjustment focused on the key person (detailed demand, etc., were coordinated by the local
Devisedorganizations)
Points*Conducted community based design that takes into account the opinions of the detailed level.
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Outline of the Verification Flow of the Project of Relocation to Uplands
and Points of Attention (2/2)
Institutions
concerned

Surveying,
designPoint of Attention ②
Carefulsupportwith
fortheAdjustment
related projects
conditions
change*Topographicalsurvey*Basic design

Planning

Relocation party
consultation*Consensus formation with relocation persons*Appropriate land selection*Confirmation of relocation number of households*Basic plan (seeking to optimize the plan)

Landowners
consultation

Land consultation

Consent of the plan

Reconstruction grant distribution

Case2

Case3

Case1
Consent of the business plan
Criteriachanges andAdjustment with the related
specialprojects
decision
Permission of development

etc.

Change ofnumber oflots, etc.

*Land surveying*Geological survey*Compensation survey*Real estate appraisal*Execution design

Landowners
disagreement
if necessary
Land consultation

Change of project plan

Land determinationExplanation
before construction

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Point of Attention ②: Careful support for the change in requirements•

While it took time to verify the town planning, the thought of relocated person
began to change (requirements such as the number of lots changed).
– A land is a prerequisite for normal residential land development.
– However, Relocated Persons becomes a prerequisite for the reconstruction project.
– In Ofunato, the plan was changed each time a relocated person changed.
(Redesigning / landowners renegotiation)

Therefore, there was very little difference between those
who transferred and the number of lots available.
Example12 households

10 households

7 households

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Situation of current Ofunato

Photographed November 2014

Normal typeresidential site

Insertion typeresidential site

※ The land forming has been sequentially completed and housing construction started.
Relocation to the new houses has been completed in some locations.
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05. Proposal Based on the Experience in Ofunato

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Contents of the proposal

1. Commitment to the affected areas
caused by the Great East Japan
Earthquake
2. Preparations for future disasters

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Proposal 1:Commitment to the affected areas must be continued• The disaster areas will require more academic involvementin the future.
After the disaster - until now

In future

Large amount of national funding
Reduced National funding
Officials and private
sectors from nationwide

Resources
Manpower

Manpower and resources
disappear.

Various challenges
remain in various locations.
*Living environment improvement*Aging / depopulation problem*Regional activation
etc…

Disaster affected local governments

Hardware provision was completed.
Disaster affected local governments

Emergency hardware provision became centered.
・・・・・
Study results
Support
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Expect activeinvolvement

Proposal 2: Preparations for future disasterPart1: Planning of the framework on Reconstruction
Towｎ Planning in the Event of a Disaster<Background>• Disaster municipality must take action toward the victims immediately after thedisaster. The municipality ran about in confusion while not knowing how to takeadvantage of external support (Universities/Academia, Consultants, etc.).
• On the other hand, disaster residents increased the distrust and dissatisfaction
against the government that do not announce reconstruction policies.
We experienced residents, who at first, were cooperative becoming uncooperative
as time elapsed.
<Proposal>• We need the framework of the initial system mechanism onreconstruction town planning when the disaster occurred.
• We should hand down the framework before the acquired experienceis forgotten.
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e.g. Academia in Ofunato
Academia A

Academia B

Academia C

Academia D
Academia E
Academia F・・・
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Proposal 2: Preparations for future disasterPart2 : Communication Gap Improvement Between

Academia and Consultants<Background>• Because each party did not know "what is possible / what is not possible", each party
requested excessive expectation to the other and it produced excessive disappointment.
(It was particularly evident with the verification speed required reconstruction projects.)• Academia and consultants must understand that their position and work aredifferent. Academia are not almighty. Consultants cannot solve by themselves.
– The purpose of academia ・・・the pursuit of ideals and universalization and generalization ofacademic knowledge– The purpose of consultants ・・・Realization of contents requested by site (customer)<Proposal>• A platform where academia and consultants can discuss equally on a daily
basis is desired.
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Conclusion: Things I felt when I worked in the disaster areas• The actual good points, issues and problems of the disaster area cannot be found/ understood unless we stay long in the field. (Specialty of Consultants)• If we stay longer on the site, we will certainly understand the circumstances of thesite, but thereby difficult to take an objective judgment.
Furthermore, since we are close to the customers, we will be strongly influenced
by the intention of the customer. (Weak Point of Consultants)<Conclusion>• For building back better, cooperation of academia and consultants isessential.
• To be able to cooperate in the event of a disaster, Prior Preparation isimportant.

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