Topics
ENHANCING COMMUNITY-BASED DRR AND
ROLE OF SCHOOLS BASED ON LESSONSLEARNT FROM THE 3.11 DISASTER
Aiko SAKURAI (sakurai@irides.tohoku.ac.jp)

Introduction
Community Disaster Management Plan
• Case of Kamikama, Miyagi
3. Role of schools in enhancing communityʼs disaster
resilience
1.
2.

Associate Professor, IRIDeS, Tohoku University
Deputy HeadInternational Collaborating Center of Disaster Education Researchand Implementation(http://drredu-collabo.sakura.ne.jp/en/)

July 19, 2016
APRU Multi-Hazards (MH) Summer School

The 2011 Great East Japan Earthquake and Tsunami••••Occurred at 14:46 on Friday, March 11,
2011
Epicenter: Sanriku offshore (latitude 38.6
north, longitude 142.52 east, around 130
km east-southeast of Ojika Peninsula
24km deep (ocean-trench earthquake)
Magnitude 9.0• Risk = Natural Hazards X Vulnerability

Capacity of Societal System
Capacity= Policies and institutional systems at the national, provincial, local
and household levels to reduce hazard damaging potentials and reduce
vulnerability.

15,859 deaths
3,021 missing
More than 90% of death were caused by drowningand 65% of the dead were over 60• Housing: approx. 100,000 demolished, 60,000
partially destroyed•
The largest earthquake in Japan•
The 4th largest in the world since 1900•••

Disaster Risk Reduction

Community Preparedness:
Who should be more responsible for DRR?

Lessons from the 2011 Great East Japan
Earthquake and Tsunami• Super-wide scale disaster (earthquake,Self Help

Disaster management
activities and policies
by the government

PublicHelp

Community’s
disastermanagement
capacity

tsunami and Fukushima NPP accidents)
paralyzed function of governments inmunicipalities. Community based mutual
help played important roles in operating
evacuation shelters, and others.

Protect own lives andassets

MutualHelp

Support each otheramong neighborhoods

We learned that we could not protect own lives and communities without making thecommunity resilient and strengthening disaster management capacity of thecommunity. （Murosaki, 2014）

Who should be more responsible for DRR?

Whatis a Local Community?
「! A place where local residents live, and where mutual2013
PublicMutualBalanced

Don’t know

exchange activities are made among residents in
consumption, production, working, education, public healthand medical services, play and sporting, and art festivals, andso on.
! Unit: neighborhood associations, residentsʼ associations, etc.
! Features：
1. Information exchange networks among residents
2. Trustful relationships
3. Mutual help disciplines, and reciprocity

2002• Recently in Japan, with increase of a large complex•Survey conﬁrmed that the Japanese people thought that balanced
eﬀorts among self-help, mutual-help and public-help could help
eﬀective disaster response.

Unit of Community DRR in Japan:
Volunteer Disaster Management Organizations

apartment housing, and frequent relocation of residents,
participation rate in neighborhood association is decreasing intrend. Daily local community activities are challenged due tothe change of characteristics of community.

Rate of VDMOs in Japan• In Japan community-based DRR organizations arelegally designated for community-managed disaster
preparedness, but it is volunteer-based.

# of VDMOs%• Disaster Countermeasures Basic Act（Revised in 1995）• （Article 2-2 Clause 2) Volunteer Disaster Management

Organizations are formed among residents based on spirits ofneighborhood cooperation• （Article 7-3）VDMO must contribute to disaster prevention

through taking countermeasures to prepare for a disaster,participating in DRR drills and other activities, facilitating sharing
and transcending lessons and learned from the past disasters• However, these CDMOs and other ﬁre prevention clubs in the#communities have not much been active due to declining population
and aging society.

Y1995

Y2000

Y2003

http://www.fdma.go.jp/html/new/pdf/1512_tiiki_s1.pdf

Rate of VDMOs by Prefecture in 2001

Bottom-up Approach requiredin addition to top down efforts by Cabinet OfficeMiyagi,Fukushima• The 2011 GEJET showed demands for locally-led andTokyo,
Kanagawa

Hyogo

localized eﬀorts on DRR (whoʼs demands?)• How to improve DRR capacity at local levels?

• How to implement and scale up the locally based DRReﬀorts?

It requires that member of the community, who areprimary responsible for the communityʼs DRR eﬀorts,
share goals
2. It requires that each community should have a DRR
plan that guides residents and shows the principles
for achieving the target and for the collaborativeeﬀorts on DRR.
1.

Aichi, MieDisaster Countermeasure Basic Act(Revision in 2013)• Added new clauses on self-help and mutual

help in the Act (Article 42-2 and 42-3) to
newly introduce a system of community
disaster management plan started in April
2014.
•Municipal government’s DRR plan could define communities’ DRM plans,
which include community’s DRM drill, storage of materials, DRR mutual
help activities
Local residents and others could jointly propose the community’s DRM
plan to municipal government’s DRR conference•（市町村地域防災計画）
第四十二条 ３
市町村地域防災計画は、（略）、市町村内の一定の地区内の居住者及び当該地区に事業所を有する事業者（以下この項及び次条において「地区居住者等」という。）が共同して行う防災訓練、地区居住者等による防災活動に必要な物資及び資材の備蓄、災害が発生した場合における地区居住者等の相互の支援
その他の当該地区における防災活動に関する計画（同条において「地区防災計画」という。）について定めることができる。
第四十二条の二 地区居住者等は、共同して、市町村防災会議に対し、市町村地域防災計画に地区防災計画を定めることを提案することができる。この場合においては、当該提案に係る地区防災計画の素案を添えなければならない。

Institutionalizing a community DRM plan into the Government DRM structure

NationalGovt.

Setting a guidelines,
revise the basic act,
and provide information
including best practices
Support promotion of
the new system, andmonitor the progress

Prefecture Govt.

Municipality

Examine whether thecommunity plan should
be included in the local
DM planCommunity(Residentsandbusinesses)

community	
DRM
plan

Prepare the community
disaster management
plan and submit it tothe municipal govt.

Guideline on Community Disaster Management Plan
explains how to prepare a plan at a community level.
- Encourage ownership among residents- Emphasize taking initiative by the community,
developing a plan in the local context, and working
together among residents

みんなでつくる「地区防災計画」〜東日本大震災の教訓を踏まえて〜

Flowchart of utilizing the community based DRR planning guideline

Step1
Understand a wholeplanning process
based on theguideline

Step 3
Discuss issues andconcerns, andpossible solutions
based on theguideline

Step2
Identify issues andconcerns in their own
community according
to the area’s local
context

Step 4Develop their own
plan. Implement a
Plan-Do-Checkprocess. Review theplan and update

External advisors
http://chikubousai.go.jp

http://go-the-in.seesaa.net/article/367675582.html

http://go-the-in.seesaa.net/article/367675582.html•Kamikama-District, Ishinomaki-City! Kamikama had 1000 households before the 2011 tsunami.
! 240 lives were lost in Kamikama.
! Currently, 550 households returned. However, younger generations with smallchildren hesitate to come back.
! No higher grounds and hills in the community.
! Residents need to cross bridges to evacuate from tsunami! Kamikama Disaster Management Committee was established in April 2015

Kamikama Reconstruction Council established inAugust 2012 as activities of Kamikama Neighborhood
Association1) Examine areas where community reconstruction
projects are implemented and approach to thereconstruction
2) Examine disaster risk reduction facilities andinfrastructures, including high-rise road and tsunami
evacuation buildings
3) Examine ways to share information and to form
consensus on reconstruction

“Community Reconstruction making Mr. Kawamura Magobe as a symbolof the community: Safe and Secured Community and Maintain ourCommunity”
75% of residents want to keep living in Kamikama Community
Kamikama Reconstruction Council requests to the City Government in order tomaintain the community that:• Accelerate completion of high-rise roads in the community• Expand bridges that helps residents to cross from the community to theNorthern inland• Prepare for evacuation facilities• Prioritize former local residents to live in public reconstruction housingcomplex.

2014.1 Opening a Community Meeting Housein Kamikama

Ishinomaki City Government's
Tsunami Evacuation Map

http://is-maki.com/archives/4678

Tsunami Evacuation Action Plan for Kamikama• Principle:• Do not underestimate danger of earthquake and tsunami• Agree on evacuation rules in advance• Evacuate to North inland above Kitakami Canal• Evacuate on foot in principle• Concrete Evacuation Rules• Agree on by-time zone evacuation rules• Countermeasures for the people who requires assistance• Establish supporting system• Collect information of these people (who are they, where they live,family structure, what kinds of assistance needed, etc.)• Drill• Conduct a drill based on actual evacuation routes• Conduct a drill for the people required assitanceCommunity Organized Tsunami Evacuation
Drill and Disaster Management Drill

Role of Schools for Enhancing Community
in Post-Disaster Phase

Reconstruction and DRR Mapping Program• Started as “Reconstruction Mapping Program” in 2012, one year after the2011 disaster, at one elementary school in Ishinomaki located at 1 km
away from the coast in the east side of the City
• The school was re-opened at the same place before the disaster and in

What kinds of DRR education is needed for the affected andsurvived children in Ishinomaki-city, Miyagi, Japan? Sendai Framework for DRR
Paragraph 19 (k) states that“in the post-disaster recovery, rehabilitation and reconstruction phase, it iscritical to prevent the creation of and to reduce disaster risk by “BuildingBack Better” and increasing public education and awareness of disasterrisk”.

mid-April 2011, although the building was inundated 1 cm above the firstfloor, and many houses in the southern part of the school district werewashed away
• The program is implemented at formal educational curriculum, periods ofintegrated studies by the fourth grade students

Goals of the Reconstruction Mapping Program! To make the children face their experiences of the disaster through walking
around the school district where the reconstruction and recovery process iscurrently underway;! To keep records of reconstruction in the community by children themselves

Disaster education is one of packaged educational activities offered by InternationalNGOs and U.N. agencies in the post-disaster period. ! To help children to find positive aspects of their community and deepen theiraffection to their community;!

To motivate children to be involved proactively in a process of reconstruction
as a member of the community.

Location of Piloted Schools in Ishinomaki City (Red; 2012-, Green 2014-, Blue_ 2015-, Orange 2016-)

Expansion as “Reconstruction and Disaster
Prevention Mapping Program” in Ishinomaki City

SY2012SY2013

SY2014SY2016-Piloted at one ES.
-Developed ateaching plan andworksheets-Evaluated theimpact throughobservation andquestionnaire
surveys-Expanded toneighboring schools
to wider area
-To be implemented
at 7 ES and 3 JHSby 2016
-Preparing a teacher
guidebook for
implementation

SY2017-Aiming atimplementing at all
the ES and JHS inIshinomaki City

As time passes by, the school children become a post-disaster generation, whodoes not remember the disaster. What kinds of DRR education isneeded for the children, who live in the disaster-experienced
Ishinomaki-City?
Google Map

Application of Town-Watching and Map-making
to a Post-Disaster Education Program
School situation" Tsunami-affected schools in Ishinomaki could not deal with tsunami,
earthquake or disaster at school in the first year from the 2011 disaster.
" In 2012 one of the schools wanted to conduct something positive to think
about future of their community.

Reconstruction Mapping Program

Guidance

Town
watching

Map making

Presentation# Put ﬁnding
points into eacharea map# Prepare for
information
cards, interview
cards# Decide a title ofeach map# Present to
the pupils at
the 3rd and5th grades,
parents, andthecommunity

Psycho-social recovery aspects" School clinical psychotherapist supported the idea that learning andexpression activities could help children to change their perception toward
their difficult experiences at the disaster if it is carefully designed

Town-watching and map-making could be an experiential learning
opportunity for children to learn about their community and to express theirexperiences and feelings with others if carefully designed# Read a map# Understandthe purpose ofthe program# Decide eachrole in a groupduring townwatching# 45min. 2
classes# Divide thewhole districts
into 12 areas# Find places
and things
according toclassiﬁcation# Interview withlocal adults

Findings from the Pilot Case
• Confirmed the program help to motivate children to participate in reconstruction of

the community• How to localize the Program at each school context in different degrees ofdamages, impact by, and progress of reconstruction from the 2011 disaster?

Do you want to contribute to the reconstruction ofyour community?
2014Pre(n=53)

4

2014 Post(n=54)

23

715

6

1233

Issues Identified during the implementationand expansion

13 3• How to grade up town-watching and map-making process for junior highschool students?
• How to make a transition from recover/reconstruction to mitigation/
preparedness phase in the program at the tsunami affected schools?

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
I do so very much

I do soI do notI do not know

I do not much
unknown

S Junior High School in 2015
【Purpose】• To get to know about their own
community to live in safe andsecured environment through theprogram【Learners and Period】• Period of integrated studies by theseventh grade (10 hours+3 days
ﬁeld work)【Features】•              -              -   •   -    - -                          •          -         •   -         -           Search by year, area, classification categories, etc.

-- Continue to upgrade the program by supporting
long-term implementation and through partnerships
among schools, board of education, teachers anduniversity researchers.

Issues for Sustainability• How to utilize produced maps to deepen understanding of the future students
at the school about their community’s reconstruction and disaster
preparedness? -- Proposing a digitalized database, called “Disaster
Recovery Information Platform”

X 12 maps in SY 2012

X12 maps in SY 2013

X 12 maps in SY SY2014

Digitalized into Information Platform

Conclusion So Far! Town-watching and map-making as experiential learning helped
children to face the disaster aﬀected community to increasechildrenʼs interest and motivation to participating in the recovery
process .
! Process of mapping during implementation is conﬁrmed important asas well as a produced map as output because the mapping process
could involve stakeholders in community! Mapping could have a potential for children to understand a disastercycle from recovery to preparedness phase in their own community if
the program is continued. Also, it would be eﬀective to add
information of both progress of recovery and actual damage by thetsunami disaster on the map as years go by.

Results are shown on the map with GPS data, and by eachcard, descriptions and photo linked by the point on the map! Digital information platform could help to preserve the paper-based
information in a data base and for the future elementary school
children to compare their community situation in current and the past.