Improvement pathways for coordination indisaster response and emergencies in MaldivesLesson learnings from Japan’s response
coordination

Aishath Ifa Mohamed
Senior Officer Resource Management
National Disaster Management Authority
Republic of Maldives
Visiting Researcher FY2023- Asian Disaster Reduction Center

DISCALIMER
Contents of this research paper is prepared by Ms. Aishath Ifa Mohamed, Visiting Researcher FY2023, for
the Asian Disaster Reduction Center, Kobe, Japan
Currently I hold the position of Senior officer Resource Management for the National Disaster
Management Authority, Republic of Maldives.
The findings, interpretations and conclusion represent my own work and all sources of information
included in the report is acknowledged from secondary sources and does not signify the views of the
Asian Disaster Reduction Center or National Disaster Management Authority.

Page. 2

Table of Contents
ACRONYMS ................................................................................................................................................... 5...................................................................................................................................................................... 5
ACKNOWLEDGEMENTS ................................................................................................................................ 6
CHAPTER 1 .................................................................................................................................................... 7
INTRODUCTION ........................................................................................................................................ 7
BACKGROND AND SIGNIFICANCE OF THE RESEARCH .............................................................................. 8
SPECIFIC AIMS....................................................................................................................................... 9
CHAPTER 2 .................................................................................................................................................... 9
RISK PROFILE OF MALDIVES ..................................................................................................................... 9
Hazards and Disaster Risk .................................................................................................................. 10
CHAPTER 3 .................................................................................................................................................. 14
DISASTER MANAGEMENT SYSTEM IN MALDIVES.................................................................................. 14
ADMINISTRATIVE SYSTEM IN MALDIVES ............................................................................................... 14
INTRODUCTION TO NATIONAL DISASTER MANAGEMENT AUTHORITY ............................................... 14
CHAPTER 4 .................................................................................................................................................. 16
EMERGENCY RESPONSE MECHANISM ................................................................................................... 16
NATIONAL EMERGENCY RESPONSE FORCES ...................................................................................... 17
ATOLL AND ISLAND LEVEL .................................................................................................................. 18
CHAPTER 5 .................................................................................................................................................. 19
LEGAL ...................................................................................................................................................... 19
MALDIVES DISASTER MANAGEMENT ACT (28/2015)........................................................................ 20
DECENTRALIZATION ACT (7/2010) ..................................................................................................... 21
ARMED FORCES ACT (1/2008) ............................................................................................................ 21
POLICE ACT (5/2008) .......................................................................................................................... 22
MALDIVIAN RED CRESCENT ACT (7/2009) ......................................................................................... 22
INSTITUTIONAL ....................................................................................................................................... 22
NATIONAL EMERGENCY OPERATION PLAN (NEOP) ............................................................................... 22
OBJECTIVE ........................................................................................................................................... 23
STRUCTURE OF NEOP ......................................................................................................................... 23

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CHAPTER 6 .................................................................................................................................................. 24
TRAININGS FOR THE RESPONSE TEAM .................................................................................................. 24
MALDIVES NATIONAL DEFENCE FORCE (MNDF) ................................................................................ 24
MALDIVES POLICE SERVICE ................................................................................................................ 25
COMMUNITY EMERGENCY RESPONSE TEAM (CERT) ........................................................................ 25
CHAPTER 7 .................................................................................................................................................. 25
RISK PROFILE OF JAPAN .......................................................................................................................... 25
MAJOR DISASTERS IN JAPAN .............................................................................................................. 28
CHAPTER 8 .................................................................................................................................................. 31
DISASTER MANAGEMENT SYSTEM IN JAPAN ........................................................................................ 31
LEGAL BASIS FOR DISASTER RISK MANAGEMENT IN JAPAN ................................................................. 31
CHAPTER 9 .................................................................................................................................................. 32
DISASTER RESPONSE MECHANISM IN JAPAN ........................................................................................ 32
THE CABINET OFFICE .......................................................................................................................... 32
CENTRAL DISASTER MANAGEMENT COUNCIL ................................................................................... 33
ORGANIZATION OF CENTRAL DISASTER MANAGEMENT COUNCIL .................................................. 34
CHAPTER 10 ................................................................................................................................................ 36
DISASTER MANAGEMENT PLANS IN JAPAN ........................................................................................... 36
DISASTER MANAGEMENT PLANNING SYSTEM .................................................................................. 36
BASIC DISASTER MANAGAMENT PLAN.............................................................................................. 37
CHAPTER 11 ................................................................................................................................................ 38
JAPAN’S EMERGENCY RESPONSE TO DISASTERS ................................................................................... 38
SUPPORT SYSTEM ................................................................................................................................... 39
JAPAN’S COORDINATION SYSTEM .......................................................................................................... 40
MEETINGS FOR NATURAL DISATER RESPONSE AND COORDNATION TEAM ......................................... 42
Training Programs for the Head and Staff of Local Governments..................................................... 43
DIGITAL TECHNOLOGY IN DISASTER MANAGEMENT ........................................................................ 44
CHAPTER 12 ................................................................................................................................................ 45
IMPROVEMENT PATHWAYS FOR MALDIVES RESPONSE COORDINATION SYSTEM............................... 45
CONCLUSION .............................................................................................................................................. 49
REFERENCE.................................................................................................................................................. 50

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ACRONYMS

ADRC
NDMA
NDMC
NEOP
NEOC
EOC
DRR
MNDF
MRC
CERT
IDPS
WNI
JMA
DMATS
GIS
NDMP
SOPs

ASIAN DISASTER REDUCTION CENTER
NATIONAL DISASTER MANAGEMENT AUTHORITY
NATIONAL DISASTER MANAGEMENT CENTER
NATIONAL EMERGENCY OPERATION PLAN
NATIONAL EMERGENCY OPERATION CENTER
EMERGENCY OPERATION CENTER
DISASTER RISK REDUCTIONMALDIVES NATIONAL DEFENCE FORCEMALDIVIAN RED CRESCENTCOMMUNTY EMERGENCY RESPONSE TEAM
INTERNALLY DISPLACED PERSONSWEATHER NEWS INC
JAPAN METEOROLOGICAL AGENCYDISASTER MEDICAL ASSISTANCE TEAMSGEOGRAPHIC INFORMATION SYSTEMNATIONAL DISASTER MANAGEMENT PLAN
STANDARD OPERATING PROCEDURES

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ACKNOWLEDGEMENTS

I want to express my gratitude to the Asian Disaster Risk Reduction Center (ADRC) for giving me the chance
to study in the city of Kobe as a visiting researcher. This experience has truly expanded my knowledge ofdisaster management. Connected me with professionals, in the field.
I am extremely thankful to Mr. Sasahara Akio (Executive Director) Ms. Miki Kodama (Director) and Mr.
Makoto Ikeda (Senior Researcher) for their care, guidance and unwavering support throughout my time. A
special thanks also goes out to my mentor Ms. Shiomi Yumi, a Senior Researcher at ADRC for her guidance
during my research period.
The success of my research project is greatly attributed to the work of the ADRC team. Their kindness,
hospitality and significant contributions have been truly remarkable. I would like to thank the guest lecturers
who shared their knowledge on aspects of disaster management and introduced technologies.
I would like to express my appreciation to the National Disaster Management Authority (NDMA) of Maldivesfor providing me with this opportunity. The assistance from NDMAs Emergency Management department
as from family, friends and colleagues has been instrumental, in my journey.
Finally. Importantly I want to express my heartfelt thanks, to the other researchers who have visited. It has
been a joy to collaborate with them. I am grateful for their assistance and kindness, during this time.

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CHAPTER 1
INTRODUCTION
The imperative for effective coordination in disaster response and emergencies is rooted in the evergrowing complexity of global challenges. Over the years, the world has witnessed an increase in thefrequency and intensity of natural disasters, including hurricanes, earthquakes, floods, and wildfires,compounded by the emergence of new threats like pandemics. These events often transcend national
borders, necessitating a coordinated and collaborative approach on a global scale. First, coordination needs
to be inclusive, bringing together different government sectors and levels, and stakeholders such as
development agencies, universities, the private sector, local leaders and civil society, with equitable gender
representation. Second, structural aspects of coordination bodies are important, including availability of
coordination structures and regular meeting fora; clear roles, mandates and sufficient authority; the valueof building on existing coordination mechanisms; and ongoing functioning of coordination bodies, before
and after crises. Third, organizations responsible for coordination require sufficient capacity, including staff,
funding, communication infrastructure and other resources, and learning from previous emergencies.
Fourth, effective coordination is supported by high-level political leadership and incentives for collaboration.
The ability to coordinate their efforts efficiently and collaboratively is essential for maximizing resources,
minimizing duplication of efforts, and ultimately saving lives. The lessons learned from past disasters
underscore the need for comprehensive coordination strategies that not only address immediate needs but
also foster long-term resilience and recovery. This background underscores the urgency of understanding
and refining coordination mechanisms in disaster response and emergencies to build a more resilient andinterconnected global community. Despite the importance of coordination in disaster response andemergency management, there is a lack of research on how coordination can be improved in a global
context, particularly in low-resource settings.
In the face of escalating natural disasters and emergencies, the Republic of Maldives stands at a criticaljuncture in fortifying its disaster response and coordination mechanisms. The Maldives is a small island
nation prone to disasters. Due to its weak geological features, the majority of the island nation experienceshydrometeorological phenomena. Past disasters have identified several factors that can affect coordinationin disaster response and emergency management, including communication systems, leadership, andorganizational structures.

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BACKGROND AND SIGNIFICANCE OF THE RESEARCHThe National Disaster Management Center (NDMC) was established in the Maldives following thedevastating Indian Ocean Tsunami that occurred on December 26, 2004. This initiative was undertaken by
the then-president through a presidential decree. Prior to the Tsunami, the Maldivian community had not
actively addressed or discussed the need to mitigate and prepare for disasters due to the relatively few
hazards they faced, such as floods, surges and fire incidents. The concept of mega-disasters like Tsunamis
was largely unknown. However, the 2004 Tsunami highlighted the urgent need to address and prepare forsuch calamities. Consequently, the then-president issued a presidential decree to establish the NDMC,
which would be responsible for coordinating and managing disaster response and recovery efforts.
The formation of the NDMC marked a significant turning point in the approach to disaster management in
the Maldives. It brought attention to the importance of preparedness, response and proactive measures tomitigate the impacts of potential future disasters. The NDMC's work not only focused on addressing theimmediate aftermath of the 2004 Tsunami but also aimed to build resilience within the country to better
cope with future disasters.
Following the establishment of the National Disaster Management Center (NDMC), the Maldives
implemented the National Emergency Operation Plan (NEOP). The NEOP is a comprehensive frameworkthat outlines the strategies, procedures, and responsibilities for managing emergency operations in the
country. The introduction of the NEOP was a crucial step towards strengthening disaster management
capabilities in the Maldives. It provided a structured and coordinated approach to emergency response andensured that all relevant stakeholders were equipped to handle various types of disasters effectively.
On December 30, 2018, the National Disaster Management Authority (NDMA) was established inaccordance with the Disaster Management Act (28/2015). In an effort to address issues of vulnerability,
NDMA is implementing a more comprehensive model in which the procedures for hazard identification andmitigation, community preparedness, coordinated response operations, and recovery are planned for andcarried out concurrently within a risk management environment.
Since the Maldives has primarily faced incidents related to flooding, surges, and fire incidents, theunderstanding and importance of coordinating mechanisms in emergency and disaster response may nothave been fully recognized by those involved in the response force or the community. However, the COVID19 pandemic posed a significant challenge for the Maldives, becoming the country's next major calamity
after the Tsunami. In the face of this new and unprecedented crisis, the National Emergency Operation Plan
Page. 8(NEOP) could not be fully put into operation. During the response to the COVID-19 pandemic, the roles andresponsibilities of all necessary stakeholders were identified and coordinated efforts were made. This
experience highlighted the gaps and shortcomings in the existing NEOP, as it was not specifically designed
to address a pandemic of this magnitude. The challenges faced during the pandemic provided valuable
insights into the areas that require improvement in the country's disaster response strategies. As a result,an update to the NEOP is being considered to address the gaps identified during the COVID-19 pandemic.
This update will likely incorporate lessons learned from the pandemic response and provide a morecomprehensive and adaptable framework for future emergency situations.
Overall, the Tsunami served as a catalyst for the development of coordinated response efforts in theMaldives, but the unique challenges posed by the COVID-19 pandemic emphasized the need for continuous
evaluation and improvement of disaster management plans and coordinated response mechanisms.
Therefore, this research will explore pathways for improvement in the existing coordination mechanism indisaster response and emergencies in the Maldives.

SPECIFIC AIMS
Coordination is essential for effective disaster response and emergency management. Recognizing theexisting issues in the areas and drawing out its significance to the coordination effort is vital for future
improvements. And specific research in coordination has not been done previously. As such, this this study
aims to identify current gaps, assess existing frameworks, and propose strategic enhancements tostreamline coordination efforts.

CHAPTER 2
RISK PROFILE OF MALDIVESThe Maldives are a group of scattered islands in the Indian Ocean, located to the south west of Sri Lanka. It
consists of approximately 1,190 coral islands grouped in a double chain of 26 atolls, spread over roughly
90,000 square kilometers, making this one of the most disparate countries in the world1. The Maldivesarchipelago stretches 823 km north to south and 130 km east to west. Over 99% of the Maldives is madeup of the sea: only 0.331% (115 square miles) of its 35,000 square mile surface area is dry land.

Page. 9

The islands that make up the Maldives are very small (most can be walked across in 10 minutes; only a few
are longer than 2 kilometers) and low-lying (they rarely reach more than six feet above sea-level). This makes
them particularly vulnerable to sea erosion. In 1812 and again in 1955, devastating gales destroyed many
northern islands, while in 1987 the capital, Male, was flooded by a severe storm. If, as some scientists
predict, global sea levels continue to rise as a consequence of global warming, it will pose a particular risk
to the Maldives.
The nation's geographical placement, coupled with the physical and geo-climatic characteristics of its
islands located near the equator in the Indian Ocean, exposes it to a range of natural hazards. These hazards
encompass earthquakes, predominantly in the Southern region, as well as tropical cyclones, storms,
thunderstorms, heavy rainfall, drought, floods resulting from intense rainfall, storm surges, swell waves, andtsunamis. The country consistently faces significant risks, marked by frequent, though low-impact events
such as monsoonal flooding, sea surges, and persistent phenomena like coastal erosion, saltwater intrusion,and other climate-related risks. Moreover, since the 2004 Indian Ocean Tsunami, numerous islands in theMaldives encounter freshwater shortages during the dry season due to heightened salinity andgroundwater contamination. To address this, the government annually allocates substantial funds toprovide emergency drinking water to communities on affected islands.
A disaster is an abrupt and catastrophic occurrence resulting in extensive harm, loss, and devastation toboth life and property. The extent of damage caused by disasters is incalculable, fluctuating based on
geographic location, climate conditions, and the characteristics of the Earth's surface, as well as the level ofvulnerability. These events have profound effects on the psychological, socio-economic, political, andcultural conditions of the affected region and its inhabitants.

Hazards and Disaster Risk
The Maldives is one of the most vulnerable countries in the world. Being the flattest and the lowest elevatednation with average height of 1.5 meters, Maldives faces multi-hazard risks and threats from the global
warming and climate change induced sea level rise and extreme weather events. Maldives is one of thefewer countries which do not have any natural higher grounds. Not a single piece of land is higher than
three meters above mean sea level. Generally, urban or rural, all the islands are coastal communities. All
the human settlements, industries and critical infrastructure are located near the shoreline. Airports,
hospitals, schools, power plants and more than 40 per cent of houses lie less than 100 meters from the sea.
Due to the close proximity to the coastline, several households are prone to severe climate hazards.

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1

Climate Risk Profile: Maldives- Asian Development Bank, https://www.adb.org/publications/climate-risk-

country-profile-maldivesFigure 1: coastal erosion in one of the islands in MaldivesFigure 2: Sea surges affecting a school in one of the island ( K. Dhiffushi )Geologically, Maldives is located on the Indian tectonic plate which makes Indian Ocean ring as the mainarea of concern. There are two main subduction zones in this ring, the plate boundaries near Sumatra,Indonesia and the Makran coast. Large magnitude earthquakes in subduction zones tend to create
Tsunamis, hence these areas are given a special importance. The frequency of natural disaster of large scaleis relatively low in Maldives. However, the 2004 Indian ocean Tsunami brought devastating impact to thelife of its people, economy and development progress. With the realization, discussions and mindfulness
Page. 11

for disaster preparedness began among the communities. Back then locals had a belief that Maldives is acountry safe from catastrophic disasters with little to no historical records. Hence, 2004 Indian Ocean
Tsunami came when no once was prepared, not knowing what Tsunami is.

Figure 3: Tsunami affected area in one of the islands in Maldives
In addition to the subduction zones mentioned,
we experience earthquakes in the Carlsberg
Ridge which is located on the south west of
Maldives islands. Even though this fault does notcause a Tsunami, it can cause other damages
depending on the magnitude of the event. The
earthquake occurred on 15th of July 2013 which
was recorded 7.6 in Richter scale, caused somedamages to the Addu City infrastructure2.
Figure 4: Tsunami and Earthquake subduction zones near Maldives

2

EARLY WARNING SYSTEM AND COMMUNITY BASED EMERGENCY RESPONSE MECHANISM,

https://www.adrc.asia/aboutus/vrdata/finalreport/2015B_MDV_fr.pdf

Page. 12

Summary of disaster statistics from 2018–2021 (These statistics are from the reported cases to the
NDMA.)

Figure 5: Obtained from Disaster Statistics of the Maldives 2018–2021

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CHAPTER 3DISASTER MANAGEMENT SYSTEM IN MALDIVESIn the aftermath of the 2004 Indian Ocean Tsunami, the establishment of the National Disaster
Management Centre (NDMC) was initiated through a presidential decree. Initially tasked with coordinating
the recovery process and relief efforts in response to the tsunami, the government subsequently expanded
the NDMC's mandate to include disaster preparedness and risk reduction. A significant milestone in thehistory of disaster management in the country occurred with the enactment of the Disaster Management
Act 28/2015, leading to the creation of the National Disaster Management Authority (NDMA). Post the 2004
Indian Ocean Tsunami, there has been a dedicated emphasis on enhancing national-level disaster
preparedness. An annual observance on December 26, known as National Unity Day, serves as acommemoration of the 2004 Tsunami and provides a platform for national institutions and civilorganizations to advocate for improved disaster preparedness in the country.

ADMINISTRATIVE SYSTEM IN MALDIVES
There are 20 administrative atolls and 5 City Councils in the Maldives with over 940 council members in
187 Administrative islands.
In April 2010 the Decentralization Act was passed by the parliament. This act formalized the rolesand
responsibilities of atoll and island councils and required that they be democratically elected. The Local
Government Authority was established in late 2010 and the first local council elections were held in
February 2011.

INTRODUCTION TO NATIONAL DISASTER MANAGEMENT AUTHORITY
National Disaster Management Authority (NDMA) was established by former President Ibrahim Mohamed
Solih as per the Disaster Management Act (28/2015). With this, all staff, assets, ongoing work of NDMC has
been transferred to NDMA.
Currently, NDMA is carrying out a more holistic model, where in the processes of hazard identification andmitigation, community preparedness, integrated response efforts, and recovery are planned for andundertaken contiguously within a risk management context to address issues of vulnerability.
One of the most important objectives of NDMA is to mainstream disaster risk reduction at the national
level. This includes planning processes, establishing agreed standards, developing procedures andpolicies. This work is guided by the National Community-based Disaster Risk Reduction Framework. Several
Page. 14other documents and processes are in development or have already been institutionalized, including theRelief Guideline, Framework for managing internally displaced persons (IDPs) and the National Emergency
Operations Plan (NEOP)3. Significant internal re-structuring has taken place to meet the demands of achanging social climate and environment.

3

National Disaster Management Authority, https://ndma.gov.mv/en

NDMA Strategic Framework

The objective of the National Disaster
Management Authority is to promote an
integrated coordinated system of disastermanagement with special focus on reducing
disaster risks and mitigation by National,
Atoll,

State

institutions,civilsocietyorganizations, public, private organizations
and other relevant stakeholders in disastermanagement.

Figure 6: Whole of society disastermanagement concept

Page. 15

CHAPTER 4
EMERGENCY RESPONSE MECHANISM
Detailed below are the institutional arrangements, roles and responsibilities to ensure effective andefficient emergency response, established at different levels through the Disaster Management Act.

Cabinet chaired by the
President

National Disaster
Management Council

Apex decision making bodyin DMTechnical expertisecommittee from the sectors
chaired by the Chief
Executive of NDMA

Disaster Management
Steering Committee

Providing technical guidance
to DM Council

National Disaster
Management
Authority/NEOC
Implementing policies of
the DM council
First Responders

Response Forces

Figure 7: Emergency Response Mechanism

If disaster occurs at City, Atoll and Island level, City Mayor, or Council president or the person in charge ofthe island will play a lead role with local level stakeholders. The City/Atoll/Island Council/DMC also interacts
with both national and local volunteer groups for timely dissemination of information to vulnerable
communities and to responding and coordinating agencies.

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NATIONAL EMERGENCY RESPONSE FORCES
In the Maldives, disaster response operates across three tiers: national, city/atoll, and island levels.
Detailed below illustrates the response tools implemented at each level to guarantee a proficient andeffective emergency response. Each level is assigned distinct roles and responsibilities tailored to thenature and scale of emergencies.
Response forces
MNDF

Island level Emergency
Coordination

Atoll level Emergency
Coordination

National level
Coordination

NDMA
NEOC

POLICE
MRC
Health Protection
Agency/ Ministry of
HealthAtoll EOC
Health Services
Police (Atoll)
MRC Branch
Utilities

Atoll Council
Head of
Operations at
Atoll

TelecomIsland EOC
Health Services
SchoolIsland Council
Head of
Operations at
IslandPolice
MRC Unit /NGOs
Utilities

CERT TeamCERT liaison

Figure 8: Response Coordination Levels
Page. 17

National Emergency Response Force consists of the following organizations and elements;•

Maldives National Defense Force (Fire and Rescue Service and Coast Guard)•

Maldives Police Service•

Maldives Red Crescent•

Emergency Health Service Providers
Local Councils (Atolls, Island, and cities) are responsible for first response to incidents/emergencies
impacting their jurisdictions including the application of fiscal procedures and remedies designed andavailable to be used for various applications during local emergencies. NDMA may receive emergency
funding from it tier partner organizations or from state funding sources and shall provide reports of
their ongoing costs and emergency finance activities.
The assumption of the situation will be as follow:●

The Local councils will seek emergency supplemental response and recovery funding when funding
resources within their jurisdiction have been exhausted.

●

The Local councils will seek supplemental response and recovery funding from the government throughthe NEOC when incident-related costs meet or exceed their thresholds and declaration factors.

●

Islands, atolls, and cities will follow laws, regulations, applicable policies, and grant guidance whengrants are made available.

●

During and after a local response, accurate accounting of and for income and expenses related to theincident need to be documented and recorded.

ATOLL AND ISLAND LEVEL
Currently, the state of disaster preparedness at the atoll and island levels is inadequate, lacking anestablished official mechanism for disaster response. It is imperative for the Atoll Council, Island Councils,
and other stakeholders to prioritize the development of disaster response, search and rescue, andcommunity-based emergency management plans.
Presently, disaster response activities are conducted through various components of the National
Emergency Response Force. The Maldives National Defense Force operates Area Commands and Posts, theMaldives Police Service manages Divisional Commands, Atoll Police, and Island Police Stations, while theMaldives Red Crescent and Emergency Healthcare Service have their respective Branches, Units, Regional
Page. 18

Hospitals, and Atoll Hospitals distributed across the country. In response to emergency requests from
NDMA, Atolls Council, and Island Councils, these agencies swiftly provide initial emergency response andrelief based on their capacity and mandate.
However, due to limited resources and training, islanders often rely heavily on the military or police forincident response and emergencies. The lack of resources and training at the community level leads to adependency on the Police Force or Defense Force during disaster events. Consequently, many island
communities wait for these forces to attend to disaster events. The absence of emergency response plans
and mechanisms at the community level results in ad-hoc coordination, causing delays in search and rescue
operations and, regrettably, leading to loss of lives in recent incidents due to delayed responses.
However, there are nine islands where Community Emergency Response Teams (CERT) have been
established, and the majority of them are currently active. Their primary mission revolves around delivering
a swift, effective, and efficient emergency response during local community disasters until official assistancearrives on-site. The few islands equipped with CERT face inadequacies in resources and have limited
capacity. In islands lacking any initial response units, the responsibility falls on the Island Council and the
local community to handle the incident until they receive support from neighboring islands, the AtollCouncil, or the national government.

CHAPTER 5
LEGAL
The legal foundation for institutions and organizations involved in disaster risk reduction and emergency
response activities in the Maldives is established by the following Acts and Ordinances.

Page. 19

MALDIVES DISASTER MANAGEMENT ACT (28/2015)

This legislation focuses on thegovernment's

responsibility

tosafeguard its citizens, protecting
their health, welfare, property,
and the environment from naturalandhuman-induced

disasters.

Given the susceptibility of theMaldivian territory to various risks
and emergencies, there is a needfor proactive measures to reduce
vulnerability. This involves not only
responding to disasters but also
actively mitigating their impact. To
address

theseconcerns,

comprehensiveanational

emergency response guideline isessential,

covering

disaster

preparedness, relief efforts, andtheprotection

of

lives

and

property4.
Figure 9: Maldives Disaster Management Act
The aim is to seek support for providing essential needs, ensuring national coordination, and integrating
disaster mitigation standards into sustainable development projects, communities, international
collaborations, and relevant legislation.

4

Disaster Management Act of Maldives, https://ndma.gov.mv/storage/uploads/NAq7Loeg/ptwnmgsc.pdf

Page. 20

Purpose of the act• Ensure the protection of individuals from both natural hazards and man-made disasters.
• Integrate guidelines addressing disaster risk mitigation and preparedness.
• Minimize disaster risk through the adoption of a comprehensive national strategy, identifying responsible
entities for managing disaster risk and outlining their respective duties.
• Provide support during emergency situations and coordinate relief efforts, incorporating guidelines for
effective coordination.
• Define the roles and responsibilities of City Councils, Atoll Councils, and Island Councils in reducing
disaster risk and facilitating mitigation during emergencies.
• Raise public awareness on reducing disaster risk and enhancing coping capacity in emergency situations,
incorporating guidelines for safeguarding individuals and promoting resilience.
• Integrate disaster risk reduction policies into sustainable national development projects.
• Foster individual responsibility and accountability in disaster risk reduction and mitigation efforts.

DECENTRALIZATION ACT (7/2010)
Article 24 of the 2010 Decentralization Act stipulates that the Island Councils are entrusted with the duty
to create a mechanism for delivering an efficient response in the event of a disaster.

ARMED FORCES ACT (1/2008)
Article 7 (d) of the Armed Forces Act grants authority to the Armed Forces to take the lead and collaborate
with pertinent government agencies in efforts to rescue and safeguard the lives of individuals and property
during hazards and disasters. Article 7 (e) pertains to transporting and rescuing people and property during
fires, while Article 7 (f) involves aiding individuals in maritime incidents and protecting lives and property
during land or maritime hazards and disasters.

Page. 21

POLICE ACT (5/2008)
Article 6 (11) of the Police Act outlines the duties of the police during hazards or disasters, requiring themto rescue and protect the lives of individuals, households, and property in the event of natural or otherdisasters. Additionally, the police are obligated to aid victims of hazards and disasters and provide assistancein maritime incidents and other emergencies.

MALDIVIAN RED CRESCENT ACT (7/2009)
As per the objectives outlined in the Maldives Red Crescent Act, Article 3 (a) emphasizes the main goal,
which is to offer humanitarian assistance and mitigate and alleviate human suffering.

INSTITUTIONAL
In the Maldives, an atoll serves as an administrative unit within the government system, comprising multiple
islands with varying numbers and sizes. The specific mandates for individual atolls are derived from the Act
on Decentralization of the Administrative Divisions of the Maldives. Atoll Councils are entrusted withoverseeing and implementing developmental programs and projects across the islands within theirrespective atolls. The Local Government Authority, established as a national institution under the Act on
Decentralization of the Administrative Divisions of the Maldives, is responsible for monitoring andcoordinating the activities of these councils.
Currently, the NDMA serves as the national authority and institution with the mandate to lead disastermanagement and disaster risk reduction in the country.

NATIONAL EMERGENCY OPERATION PLAN (NEOP)
The National Emergency Operations Plan (NEOP) provides a roadmap for response and responsibilities
during disaster management in the Maldives.
A strategic framework of action, policies and regulations that contains the blueprint of effective emergency
response and management. Empowered by the Disaster Management Act of Maldives - 28/2015 - Article 11(d) which states that a National Emergency Operations shall be compiled and approved by the National
Disaster Management Council of Maldives.

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OBJECTIVE
The objective of establishing a NEOP is to provide a robust system of resources, capabilities and guiding
principles, with the collaboration of all relevant stakeholders, for responding to a disaster or emergency
situation if and when they occur, in order to save lives, property and environment and immediate recovery
of affected essential services.

STRUCTURE OF NEOP

Figure 10: NEOP volume 1 and volume 2
The National Emergency Operation Plan (NEOP) plays crucial roles in guiding and directing disastermitigation, prevention, preparedness, response, recovery, rehabilitation, and crisis management in theMaldives. The Disaster Management Act mandates the creation and maintenance of this plan. Following
the identification of deficiencies in NEOP Volume 2, work is currently underway on the drafting process ofVolume 3 to address and rectify these gaps.

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Additionally, the Strategic National Action Plan (SNAP) for Disaster Risk Reduction (DRR) and Climate Change
Adaptation (CCA) aims to foster collaboration among policymakers, experts, and practitioners in disasterrisk reduction and climate change adaptation across the country, promoting a comprehensive risk
management approach. Other plans include establishing a national early warning system, developing adisaster management plan for the tourism sector, creating a Safe Island Strategy, and integrating climatechange adaptation and disaster risk reduction into resilient island development planning in the Maldives.
Furthermore, as part of national disaster risk reduction efforts, various important frameworks, guidelines,
and local-level plans have been developed. These encompass the National Framework for CommunityBased Disaster Risk Management, National Framework for Managing Internally Displaced People, Guide for
School Emergency Operation Plan, Island Disaster Management Plans, Public Health Emergency Plan, andIsland Development Plans.

CHAPTER 6
TRAININGS FOR THE RESPONSE TEAM
Training sessions on disaster management awareness are provided to government officials and private
sector organizations.

MALDIVES NATIONAL DEFENCE FORCE (MNDF)
A training session on emergency management is underway for the Maldives National Defense Force teamat the Maldives National Defense Force Non-Commissioned Officers Academy (MNDF NCO Academy).This
training is conducted twice a year.

Figure 11: Training session to MNDF in the NCO Academy
Page. 24

MALDIVES POLICE SERVICE
A training session on emergency management is underway for the Maldives Police Service team at the
Police Academy. This training is conducted twice a year.

COMMUNITY EMERGENCY RESPONSE TEAM (CERT)
Emergency Response Teams have been established on islands, with a current count of 09 islands having
CERTs. These teams undergo training in disaster management, including specialized courses covering Fireand Rescue Service, maritime and safety training, standard first aid, and psychosocial support. These teams
will respond to any disastrous event in the island under the supervision of the island council president.

Figure 12: Training session to CERTCHAPTER 7
RISK PROFILE OF JAPANJapan, situated in the western Pacific Ocean, is an island nation with a total land area of approximately
377,727 square kilometers. The country comprises a total of 6,852 islands that stretch along the Pacificcoast of East Asia. Positioned between latitudes 24° and 46°N, and longitudes 122° and 146°E, Japan

Page. 25

includes various islands. The primary islands, listed from north to south, consist of Hokkaido, Honshu,
Shikoku, and Kyushu. Tokyo serves as the capital5.
Japan encounters a range of common natural hazards, including earthquakes, tsunamis, typhoons, volcano
eruptions, floods, landslides, occasional heavy snowfall, and torrential rains. The prevalence of earthquakes,
tsunamis, and active volcanoes is attributed to Japan being situated within the Circum-Pacific Seismic Belt,
often referred to as the Pacific Ring of Fire.
Japan, due to its natural conditions, faces the risk of nearly every type of natural disaster. Throughout its
history, the nation has encountered various destructive natural events, presenting significant challenges toJapanese society. The unfavorable geographical, topographical, and meteorological features of the country
contribute to its status as one of the world's most disaster-prone nations. Despite occupying only 0.25% of
the planet's land area, Japan experiences approximately 20.5% of earthquakes with a magnitude of 6 orhigher, and it hosts 7% of the world's active volcanoes within its territory.
The country is prone to frequent natural disasters, including typhoons, heavy rainfall, substantial snowfall,earthquakes, and tsunamis, owing to its geographical, topographical, and meteorological characteristics.
Japan faces significant annual losses in terms of both human lives and property due to these natural
disasters.

Figure 13: Pacific Ring of Fire and showing Divergent, Convergent, Transform plate boundaries

5

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
Page. 26

Japan is positioned at the convergence of four tectonic plates: the Eurasian Plate, North American Plate,
Pacific Plate, and Philippine Sea. This geological arrangement is responsible for the elevated seismic activity
in the region. Tsunamis in Japan are typically initiated by powerful earthquakes occurring at the ocean flooror significant landslides near the coastline.
Storm and flood disasters in Japan are primarily instigated by typhoons and rain fronts. Approximately 10
typhoons impact Japan, inducing storms, tidal waves, and high tides, predominantly between May andOctober, with a peak in August and September. The year 1959 marked a pivotal moment in typhoon
preparedness, following the devastating Isewan typhoon that claimed over 5000 lives. Subsequently, theJapan Meteorological Agency (JMA) implemented a series of measures and adopted new technologicaladvancements, resulting in a significant decline in the number of casualties or missing individuals due totyphoons6.

Figure 14: Number of deaths and missing person caused by natural disasters in Japan
A distinctive characteristic of Japan's climate is the pronounced temperature variations across the four
seasons. Despite its relatively modest size, the climate exhibits regional differences, ranging from subarctic
to subtropical. The areas facing the Sea of Japan experience considerable winter snowfall due to seasonal
winds from Siberia. Additionally, a majority of regions encounter a rainy season between May and July,
influenced by seasonal winds from the Pacific Ocean.

6

Ministry of Land, Infrastructure, Transport and Tourism, Water and Disaster Management Bureau

website, Overview of River Administration in Japan 2005.
Page. 27

Japan's rivers demonstrate disruptive natural characteristics due to the country's challenging topographicaland meteorological conditions. These rivers are characterized by being narrow, steep, and short, rendering
them susceptible to flooding. The ratio of peak flow discharge to the basin area is notably high, ranging
from 10 to 100 times. Water levels exhibit rapid fluctuations, and there is a substantial volume of sediment
runoff.

Figure 15: Japan’s regions and river basins
Japan faces a notable susceptibility and risk of fires, primarily attributed to extensive forest coverage,
accounting for approximately 70% of its total area, alongside highly advanced chemical and high-technology
industries. The close proximity of buildings in densely populated areas further contributes to the elevatedfire risk. Wildfires in Japan typically occur during dry seasons, particularly in the summer.
Additionally, the aftermath of tsunamis and earthquakes poses the potential for large-scale fires. Notably,around 7000 fire incidents were recorded in the immediate aftermath of the Great Hanshin-Awaji
earthquake in 1995.

MAJOR DISASTERS IN JAPANJapan faces a considerable risk of natural disasters, particularly earthquakes, as demonstrated by thedevastating Great Hanshin-Awaji Earthquake in 1995, causing a loss of over 6,400 lives. Additionally, theGreat East Japan Earthquake (GEJE) in 2011 resulted in the tragic loss of more than 22,000 lives and left
numerous individuals missing. The ongoing probability of experiencing significant earthquakes, such as the
Nankai Trough Earthquake and the Tokyo Inland Earthquake, remains high, presenting a substantial threat
to the nation's safety and security. The following provides a condensed overview of major disasters thathave occurred in Japan:
Page. 28

GREAT HANSHIN-AWAJI EARTHQUAKE (January 1995)
An earthquake with a magnitude of 7.3 on the Richter scale occurred on Awaji Island in Hyogo Prefecture,
Western Japan, on January 17, 1995. This disaster resulted in the loss of 6,434 lives and injured 43,792
individuals. Additionally, 104,906 houses were destroyed, while another 144,274 were partially damaged.
Furthermore, 390,506 houses sustained some degree of damage. The fire that broke out as a result of theearthquake also caused 835,858 square meters of land to be consumed by the flames 7.

Figure 16: Response to Hanshin Awaji earthquake in 1995

7

World Bosai Forum, https://worldbosaiforum.com/en/news/detail---id-91.html

Page. 29

GREAT EAST JAPAN EARTHQUAKE (MARCH 2011)
A massive earthquake of magnitude 9.0 struck the northeastern region of Japan on March 11, 2011, making
it the largest earthquake to ever hit the country. Its epicenter was located off the coast of Sanriku, and its
effects were felt from the coasts of Iwate Prefecture to Ibaraki Prefecture. In particular, the eastern regionsof Japan experienced intense shaking, with a Japanese intensity scale of 7 recorded in the north of Miyagi
Prefecture. Additionally, this earthquake, also known as a trench-type earthquake, occurred near theboundary between the Pacific Plate and the plate beneath the Tohoku region, resulting in significant
seafloor movement and the generation of a massive tsunami. According to the National Police Agency, theearthquake and tsunami caused unprecedented human suffering, with 15,870 deaths, 2,814 missing
persons, and 6,114 injuries. There was also extensive property damage, with 129,472 completely destroyedbuildings, 255,977 partially destroyed buildings, and 702,928 buildings with collapsed walls or roofs. The
total cost of damage to social infrastructure, housing, and corporate facilities was estimated at 16.9 trillion
yen, and the disaster had a significant impact on Japan's economy8.

Figure 17: Response to Great East Japan Earthquake in 20118

Tohoku Earthquake and Tsunami 2011, https://www.ncei.noaa.gov/news/day-2011-japan-earthquake-and-tsunami
Page. 30

CHAPTER 8DISASTER MANAGEMENT SYSTEM IN JAPANIt is a national priority to protect national land as well as the livelihood of the community, and property fromthe natural disasters. The turning point for strengthening the disaster management system came into effectin response to the immense damage caused by the Typhoo Isewan in 1959, an led to the enactment of theDisaster Countermeasures Basic Act in 1961, which formulates a comprehensive and strategic disastermanagement system. Thereafter, the disaster management system has been continuously reviewed andrevised following the lessons learned from large-scale disasters such as the Great Hanshin-Awaji Earthquakeand 2011 Great East Japan Earthquake and the nuclear disaster. Response mechanisms to emergencies are
specified in eh Basic Law on Natural Disasters as well as the series of contingency related laws.

LEGAL BASIS FOR DISASTER RISK MANAGEMENT IN JAPANTo address all aspects of disaster management, encompassing prevention, mitigation, preparedness,
emergency response, recovery, and rehabilitation, various laws and regulations have been put in place.
These include the 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 regarding the disaster management system comprehensively covers all phases, including
prevention, preparedness, emergency response, recovery, and reconstruction. The roles and responsibilities
of both national and local governments are clearly outlined for each phase. The legislation emphasizes thenecessity for collaboration between entities in the public and private sectors to effectively implement
diverse disaster countermeasures.
1. Clearer definition of the philosophy and the responsibilities for disaster management.
oClarification of basic principles of disaster countermeasures: Clarification of basic policies including the conceptof disaster reductionoResponsibilities of the government, prefectures, municipalities, and designated public institutions: Formulationand implementation of the plan for disaster management, mutual cooperationoResponsibilities of residents: Self-preparedness for disaster, stockpiling of basic necessities, voluntary
participation in disaster preparedness activities

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2. Organization: Development and promotion of3. Planning system: Development and promotion ofcomprehensive

disastermanagementsystematic disaster managementmeasuresoadministrationoNational government: Central Disaster ManagementDisaster Management Basic Plan
Council,major(extreme)

disastero Designated local government organizations and publicmanagement
institutions: Local Disaster management plan

headquartersoo Prefectures
Prefectural and municipal governments: Local disasterandmunicipalities:

Local

disastermanagement operation planmanagement headquarterso
1. 4. Promotion of Disaster CountermeasuresoNational Disaster Management Council:

Residents: Community disastermanagement plan
5. Protection of affected people and theirlivelihood

Definition of the roles and responsibilities too bePrior preparation of the lists of the people requiring
performed by each actor in each stage of prevention,assistance in the case of disaster
preparedness, response and recoveryoPrimary

disaster

response

procedures

evacuation order by the head ofmunicipalities taking

overemergencyoClarification of the standards for evacuationcenters andincludingfacilities in the case of disastero

Improvement and expansion of protectionmeasures for
affected people throughFigure 18: Outline of the Basic Act on Disaster Management

CHAPTER 9
DISASTER RESPONSE MECHANISM IN JAPANTHE CABINET OFFICE
As part of a comprehensive overhaul of the central government system in 2001, the role of Minister of State
for Disaster Management was introduced to consolidate and synchronize disaster risk reduction policies
and actions across various ministries and agencies. Within the Cabinet Office, tasked with ensuring
cooperation and collaboration among diverse government entities on extensive matters, the DirectorGeneral for Disaster Management is specifically assigned to formulate fundamental disaster management
policies, address significant disasters, and oversee overall coordination.

Page. 32

Figure 19: Cabinet Office, related ministries and agencies in emergency response
In anticipation of disasters, the Central Disaster Management Council, led by the Prime Minister andcomprising all Cabinet members, formulates disaster management strategies for the national government.
The implementation of these strategies is delegated to the relevant ministries and agencies. In theoccurrence of a significant disaster, the Cabinet Office assumes responsibilities such as gathering andsharing accurate information, providing reports to the Prime Minister, setting up emergency activity
systems, including the Government's Disaster Management Headquarters, and coordinating
comprehensive disaster response measures on a wide scale.

CENTRAL DISASTER MANAGEMENT COUNCILThe Central Disaster Management Council, a vital body handling key policies of the Cabinet, is instituted
within the Cabinet Office according to the Disaster Countermeasures Basic Act. Comprising the Prime
Minister as the chairperson, all Cabinet members, heads of major public corporations, and experts, theCouncil is responsible for formulating the Basic Disaster Management Plan, setting fundamental disastermanagement policies, and actively advancing comprehensive disaster countermeasures. It also engages inPage. 33

deliberations on significant disaster management issues as requested by the Prime Minister or Minister ofState for Disaster Management.

ORGANIZATION OF CENTRAL DISASTER MANAGEMENT COUNCIL
In readiness for disasters, the formulation of national government disaster management policies is the
responsibility of the Central Disaster Management Council. These policies are subsequently implemented
by the relevant ministries and agencies. The Central Disaster Management Council, positioned within the
Cabinet Office according to the Disaster Countermeasures Basic Act, is among the key councils addressing
vital Cabinet policies.
Comprising the Prime Minister as the chairperson, all Cabinet members, heads of significant public
corporations, and experts, the Council is responsible for crafting the Basic Disaster Management Plan andformulating fundamental disaster management policies. Additionally, it actively advances comprehensive
disaster countermeasures, including engaging in discussions on crucial issues related to disastermanagement when requested by the Prime Minister or Minister of State for Disaster Management.

Figure 20: Organization of central disaster management council
The responsibilities of the Central Disaster Management Council include:●

Developing and advocating for the implementation of the Basic Disaster Management Plan and Earthquake
Countermeasures Plans.

●

Crafting and promoting the implementation of urgent measures plans for significant disasters.
Page. 34

●

Examining vital issues related to disaster reduction, as requested by the Prime Minister or Minister of State
for Disaster Management. This encompasses formulating basic disaster management policies, overseeing
comprehensive coordination of disaster countermeasures, and determining the declaration of a state ofdisaster emergency.

●

Providing perspectives on crucial disaster reduction matters to the Prime Minister and Minister of State forDisaster Management.

Figure 21: Outline of the Disaster Management System
The Cabinet Office, serving as the secretariat for the Central Disaster Management Council, designates the
Minister of State for Disaster Management as the Minister State for Special Missions on this matter. The
Minister is supported by the Department of the Cabinet Office Director-General for Disaster Management,
responsible for planning and centralized coordination pertaining to fundamental policies on disaster risk
reduction. Additionally, the department oversees matters related to disaster countermeasures in the eventof a significant disaster.

Page. 35

CHAPTER 10
DISASTER MANAGEMENT PLANS IN JAPANJapan follows a three-tiered administrative system comprising the national government, prefectures, andmunicipalities. Similar to a national structure, the leaders at each level bear complete responsibility for theirrespective jurisdictions. Comprehensive disaster prevention plans are formulated, aligning with the specificroles assigned to each stage. The following outlines the disaster management planning system in Japan.

DISASTER MANAGEMENT PLANNING SYSTEM
The Basic Disaster Management Plan; serves as the fundamental blueprint for disaster management
activities and is formulated by the Central Disaster Management Council in accordance with the Disaster
Countermeasures Basic Act.
The Disaster Management Operation Plan; is devised by each designated government organization anddesignated public corporation, aligning with the guidelines of the Basic Disaster Management Plan.
Local Disaster Management Plan; created by Prefectural and Municipal Disaster Management Councils,
tailored to local conditions and rooted in the Basic Disaster Management Plan.
Community Disaster Management Plans; developed at the community level, are collaborative efforts
involving residents and businesses on a voluntary basis.

Page. 36Figure 22: Structure of Disaster Planning System

BASIC DISASTER MANAGAMENT PLAN
The Basic Disaster Management Plan is an extensive and enduring disaster management blueprint thatserves as the cornerstone for both the Disaster Management Operations Plan and the Local Disaster
Management Plan. It outlines provisions for instituting the disaster management system, advancing disastermanagement measures, expediting post-disaster recovery and reconstruction measures, and promoting
scientific and technological research in the field of disaster management.
In 1995, the plan underwent a comprehensive revision, influenced by the lessons learned from the Great
Hanshin-Awaji Earthquake. It delineates the responsibilities of entities at both the national and local levels,
including public corporations and other organizations. The plan comprises distinct strategies for various
types of disasters, outlining specific measures to be implemented by each entity in accordance with thedifferent phases of disaster management, encompassing prevention and preparedness, emergency
response, as well as recovery and reconstruction.

Page. 37

Figure 23: Structure of basic Disaster Management Plan
In May 2021, the Basic Disaster Management Plan underwent revision in alignment with the amendments
made to the "Basic Act on Disaster Management." This update incorporates advancements in recent
disaster management measures, drawing from the experience gained in responding to the COVID-19
pandemic. The revised plan includes provisions for measures against infectious diseases at shelters and theenhancement of stockpiling partitions. Additionally, it addresses the promotion of disaster response
initiatives from a gender perspective.

CHAPTER 11
JAPAN’S EMERGENCY RESPONSE TO DISASTERS
In the event of a calamity, swift coordination occurs between national and local authorities to promptly
gather and disseminate information about the disaster and its impact. They also establish securecommunication channels to facilitate efficient execution of emergency tasks, including rescue operations
and medical interventions.

Page. 38

Using this information, local authorities establish a disaster management center, and affiliated organizations
develop their own operational mechanisms.
The national government continuously gathers disaster-related information through the Cabinet
Information Collection Center, operating 24/7. In the event of a significant disaster, a rapid response teamcomprising the heads of relevant ministries and agencies assembles promptly at the Crisis Management
Center in the Prime Minister's Official Residence. Their task involves comprehensively assessing the disastersituation and reporting findings to the Prime Minister. Meetings on disaster management, at ministerial or
high-ranking senior official levels, are convened as needed. Depending on the severity of the damage, thegovernment might establish either the Major Disaster Management Headquarters (led by the Minister ofState for Disaster Management) or the Extreme Disaster Management Headquarters (headed by the Prime
Minister). These entities formulate policies for disaster mitigation and coordinate emergency measuresacross various organizations.
Moreover, to assess the conditions in the affected region, a government inquiry team led by the Minister ofState for Disaster Management could be deployed. Alternatively, if urgent and coordinated on-site
emergency actions are required, the government may institute a disaster management on-siteheadquarters.

SUPPORT SYSTEM

Figure 24: Government Investigation team planning to response to a Landslide and Headquarters for
Major Disaster Management.
In instances of extensive disasters surpassing the capacity of the impacted local government, diverse
support mechanisms are activated by the National Police Agency, such as the Disaster Response Units, theFire and Disaster Management Agency, including the Emergency Fire Rescue Team, and the Japan Coast
Page. 39

Guard. Additionally, the Self-Defense Forces can be deployed for emergency response tasks upon thegovernor's request in the affected prefecture.
Furthermore, Disaster Medical Assistance Teams (DMATs) are sent to deliver broad medical services,utilizing Self-Defense Forces vehicles and aircraft to transport critically injured individuals to hospitals
beyond the affected area.

Figure 25: Cabinet Office Disaster Response Mechanism

JAPAN’S COORDINATION SYSTEM
In times of disaster, municipalities play a key role in immediate emergency responses due to their proximity
to residents. When more extensive measures are required, prefectural administration becomes involved. In
Page. 40

cases of significant disasters surpassing the capacities of affected local entities, the national government
intervenes to assist and facilitate mutual support among these local entities.
At the national level, either the Extreme Disaster Management Headquarters or the Major Disaster
Management Headquarters is established to swiftly gather information about the disaster from pertinent
ministries and affected local public entities. This central authority ensures comprehensive coordination for
rescue operations, initial medical assistance, and the provision of emergency supplies as deemed necessary
and appropriate. Additionally, an on-site disaster management headquarters might be instituted topromptly coordinate efforts among affected local entities, collect information and requests from relevant
prefectures, and effectively carry out emergency response activities, taking into account the specific needsof the affected population.
On-site disaster management headquarters were established in affected regions during incidents such as
the Great East Japan Earthquake in 2011, the substantial snowfall in 2014, the heavy rainfall in August 2014,
and the volcanic eruption of Mt. On take in 2014. Through collaborative meetings with the disaster response
headquarters organized by local entities in the impacted areas, the national government and local entities
coordinate actions based on their mutual understanding, serving as the government's primary andcentralized point of contact for requests from affected local entities. Consequently, the significance of theon-site disaster management headquarters is growing.

Figure 26: Coordination system between National and Local Government (Great East Japan Earthquake)
Page. 41

MEETINGS FOR NATURAL DISATER RESPONSE AND COORDNATION TEAM
To facilitate prompt and effective initial responses and emergency measures following a significant disaster,
it is crucial for regular and direct communication to be established between the Deputy Chief Cabinet
Secretary for Crisis Management and the Director-General overseeing government disaster management.
This ongoing relationship ensures proper role allocation and fosters mutual collaboration and cooperation.
To achieve this objective, gatherings known as the "Meetings for Immediate Natural Disaster Response andCoordination Team" have been conducted since 2020, serving as forums for the exchange and disseminationof information among relevant stakeholders.
Moreover, in the occurrence of extensive disasters like the Heavy Rain Event of July 2018 and Typhoon
Hagibis in 2019 (T1919), the government instituted an interdisciplinary team under the oversight of the
Deputy Chief Cabinet Secretary (Administrative Affairs). The purpose was to enhance the precision,
immediacy, and robustness of assistance provided to those affected, focusing on livelihood support.
Through this collaborative team, the government efficiently restored power and water services in the initial
phase, evaluated the specific needs of the affected populace, and delivered proactive assistance such as
water, food, cardboard beds, and partitions. Efforts were directed towards improving living conditions inshelters, deploying personnel to impacted municipalities, securing housing, and coordinating acomprehensive set of measures to swiftly aid in rebuilding the lives and livelihoods of the affected regions.
Drawing lessons from these experiences, the Basic Disaster Management Plan has explicitly outlined,
starting from Fiscal Year 2020, that in the occurrence of a substantial future disaster, a dedicated "team tosupport the lives and livelihood restoration of the affected" will be formed. The aim is to ensure swift andseamless assistance for the lives and livelihoods of those affected, and the establishment of such a teamhas been formally mandated.
Following the extensive rainfall on July 1, 2021, a dedicated "team to support the lives and livelihood
restoration of the affected for the Heavy Rain in July 1, 2021" was established on July 6th. Subsequently, on
July 30th, the team formulated an "Immediate Support Measures Package for the Heavy Rains of July 1,
2021" as an urgent initiative to expedite the recovery of lives and livelihoods in the affected regions.

Page. 42

Training Programs for the Head and Staff of Local Governments
The effectiveness of timely and precise disaster response relies heavily on the expertise and experience of
local government leaders and personnel. To address this, the Cabinet Office initiated the "Training ofDisaster Prevention Specialists" for local government staff starting from the Year 2013. The purpose is tocultivate professionals capable of responding promptly and accurately to crisis situations while fostering
networks between national and local governments.
The "Ariake Hill Training Program" was implemented in two phases: from September to October 2021 andfrom January to March 2022. This comprehensive program encompasses a range of knowledge and skills
essential for effective disaster management operations. It covers the fundamentals of disastermanagement, including relevant laws and regulations, and extends to disaster management governance.
Additionally, the "Training Program for Local Governments" took place in seven different locations acrossJapan. The aim was to support independent human resource development in local governments by tailoring
the program to address the specific demands and realities of each region, as identified by the hosting
prefectures.
To further enhance the skills and strengthen the human network of those who completed the Ariake Hill
Training Program, a "Follow-Up Training Program" was conducted. This initiative aimed to provide additional
training for participants, ensuring continuous improvement in their skills and fostering stronger connections
within the disaster management community.
Furthermore, an "e-Learning for Disaster Management Specialists" initiative was introduced through a
dedicated website. This platform caters specifically to support staff engaged in on-site disaster management
operations, offering a quick and efficient way for them to acquire essential skills relevant to their roles.
To ensure the effectiveness of these training programs, a planning study group comprised of experts in
disaster management was formed. This group played a crucial role in the development and execution of the
programs, continuously reviewing and enhancing them. Feedback from these experts, informed by current
social conditions and needs, was incorporated to refine and improve the training initiatives.
In the event of a large-scale disaster, it is crucial for local government leaders and crisis management
authorities to take proactive measures and provide swift and accurate disaster responses, collaboratingclosely with the national government and other local entities. To enhance the decision-making capabilities
of mayors from towns and villages across the country, the Cabinet Office and the Fire and Disaster
Page. 43

Management Agency jointly organized the "National Seminar on Disaster and Crisis Management for Heads
of Local Government." Please note that seminars for mayors of cities and wards were canceled in FY2021
due to the COVID-19 pandemic. This initiative aims to support the improvement of precise decision-making
at disaster sites.
Simultaneously, the Cabinet Secretariat, the Cabinet Office, and the Fire and Disaster Management Agency
collaborated to host the "Special Training Program in Disaster and Crisis Management" for heads ofdepartments and chiefs responsible for crisis management in prefectures. Additionally, they conducted the"Training Programs for Supervisors at Local Governments in Crisis and Disaster Management," specificallydesigned for supervisors in municipalities. These programs are structured to provide comprehensive
knowledge about crisis and disaster management, enabling participants to enhance their skills andexpertise at various stages, including the initial response and disaster recovery.
These training initiatives contribute significantly to fostering strong interpersonal relationships duringordinary times, forming a valuable "face-to-face relationship" among stakeholders involved in disaster andcrisis management9.

DIGITAL TECHNOLOGY IN DISASTER MANAGEMENTThe Initial Response Verification Report for the 2016 Kumamoto Earthquakes (Cabinet Secretariat and the
Cabinet Office, 2016) and the Working Group for IAEA and Livelihood Support Measures (the Cabinet Office,2016) identified challenges in comprehensively grasping the situation in affected municipalities during thedisaster response to the Kumamoto Earthquakes in 2016.
This included difficulties in understanding the movements of evacuees and the status of relief supplies. The
reports emphasized the need to establish a pre-existing system for a disaster information hub involving
relevant organizations. This would involve creating protocols for the handling, sharing, and utilization ofvarious types of information to ensure a more effective response to similar events in the future10.

Page. 44

Figure 27: Japan’s Disaster Management Digital Information Data Flow Chart

9

Disaster Management in Japan- Cabinet Office, https://www.bousai.go.jp/1info/pdf/saigaipanf_e.pdf

10White Paper Disaster Management in Japan 2022

CHAPTER 12
IMPROVEMENT PATHWAYS FOR MALDIVES RESPONSE COORDINATION SYSTEM
Improving the coordination system for disaster response in the Maldives based on Japan's response
coordination mechanism involves several key steps. Japan is known for its efficient and effective disastermanagement strategies, and adopting some of these practices can enhance the Maldives' coordination
system. As part of the ongoing efforts to strengthen disaster response coordination in the Maldives, I havethoroughly examined Japan's coordination mechanisms and identified potential improvement pathways
that could be adapted to Maldives’ context.
Here are some improvement pathways:
Developing a National Disaster Management Plan (NDMP): An NDMP helps in identifying and assessing
potential risks and vulnerabilities, allowing authorities to develop proactive measures to mitigate theserisks. It ensures that resources and capacities are in place to respond effectively to various types of disasters.

Page. 45

It establishes a structured framework for coordination among government agencies, non-governmentalorganizations, community groups, and international partners involved in disaster response.
A well-developed NDMP can enhance the Maldives capacity to engage with regional and international
partners in disaster risk reduction and response efforts. It can facilitate collaboration, knowledge sharing,
and access to technical and financial assistance from the global community.
Similarly, develop comprehensive SOPs for disaster response, covering each phase of the disastermanagement cycle. Ensure that all relevant stakeholders are familiar with and regularly trained on these
SOPs.
Establish a Centralized Command Center: Create a centralized command center equipped with advanced
technology to monitor and coordinate responses to disasters. Implement a unified communication systemthat connects all relevant stakeholders, including government agencies, non-governmental organizations(NGOs), and international partners.
Resource Management: Japan's utilization of cutting-edge technologies, such as GIS mapping and remotesensing, significantly enhances its response capabilities.
Invest in modern technologies such as Geographic Information System (GIS) mapping, drones, and satellite
imagery for real-time data collection and analysis. Implement a digital platform for information sharing andcommunication during disaster responses.

Figure 28: Japan’s “Disaster Management Hub” Conceptual Diagram

Page. 46

Figure 29: Japan created a sample map in the aftermath of the heavy rain event in July 2020 (Supporting
map for eliminating isolated communities)
Early Warning Systems: Japan has demonstrated success in implementing advanced early warning systems,
leveraging technology and community engagement. Exploring similar technologies and fosteringcommunity awareness can enhance the Maldives' ability to provide timely alerts and responses.
Invest in early warning systems for various types of disasters, such as Tsunami, surges, storms, and floods.
Ensure that the public is well-informed and educated on how to respond to early warnings, including
evacuation procedures and safety measures.
Interagency Collaboration: Japan's disaster response framework emphasizes seamless collaboration among
various agencies.
Enhance collaboration among different government agencies, NGOs, and international organizations.
Conduct regular joint training exercises to improve communication and coordination among the various
entities involved in disaster response. And provide ongoing training for emergency response teams,
including first responders, medical personnel, and support staff.
Public-Private Partnerships: Japan has effectively engaged with the private sector to enhance disaster
resilience. For example, Japan collaborates with other agencies to get a map of the disaster site to get aclear picture of the damage and identify the optimal response.

Page. 47

Establishing partnerships with local businesses and industries in the Maldives can ensure a morecomprehensive and resourceful response, leveraging both public and private resources.
Case: Japan’s collaboration with Weather News Inc (WNI)
Weather News Inc operates as a private company with branches in various countries. As per Japan's "Basic
Act on Disaster Management," there is a provision for government collaboration with private entities indisaster risk reduction (DRR). In this context, the Japan Meteorological Agency, a government office,partners with Weather News Inc. The collaboration involves the Japan Meteorological Agency furnishing
weather forecasts to WNI, while WNI, in turn, disseminates disaster risk reduction (DRR) information to thecommunity in various platforms.

Figure 30: Weather News Inc web page

Figure 31: Japan Meteorological Agency webpage

Documenting Past Disaster Responses: While outcomes may not precisely align with predetermined plans,
Japan consistently records the details of its disaster responses, capturing the decisions made during these
events. This practice serves as a valuable tool for refining future responses.
Even within the Maldives, decisions made during critical moments in disaster response are essential to
document, whether at the island, atoll, or national level. Maintaining records of response initiatives provides
a detailed account of the Emergency Operation Center's (EOC) decisions in coordinating responses. This
documentation serves as a valuable resource for gleaning insights that can inform and enhance future
coordination efforts among various stakeholders.
Regularly reviewing and revising the coordination system is crucial, drawing from lessons learned in pastexperiences and incorporating advancements in technology. Perform post-disaster assessments to pinpoint
areas that require enhancement and apply corrective measures accordingly.
Page. 48

CONCLUSION
Drawing inspiration from Japan's well-established coordination mechanisms, the Maldives has theopportunity to implement significant improvement pathways.
By formulating a robust National Disaster Management Plan (NDMP), fostering community engagement,
and leveraging advanced technologies, the Maldives can fortify its resilience and response capabilities.
The integration of community-based emergency management plans, with comprehensive training
programs, and the establishment of a centralized coordination system, and periodic reviews incorporating
lessons learned will further refine and optimize the Maldives' response mechanisms.
By fostering collaboration, investing in training and technology, and consistently evaluating and refining
response plans, the Maldives can pave the way for a more resilient and coordinated approach to disastermanagement.

Page. 49

REFERENCE

White

Paper

on

DM,

Japan

2022 -

CabinetOffice,Government

of

Japan

Government

of

Japan

https://www.bousai.go.jp/en/documentation/white_paper/2022.html
DisasterManagement

in

Japan

-

CabinetOffice,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

The Great Hanshin Awaji Earthquake (1995) - World Bosai Forumhttps://worldbosaiforum.com/en/news/detail---id-91.html

Tohoku Earthquake and Tsunami 2011https://www.ncei.noaa.gov/news/day-2011-japan-earthquake-and-tsunami

Disaster Management in Japan- Cabinet Office, Government of Japan
https://www.bousai.go.jp/1info/pdf/saigaipanf_e.pdf

Climate Risk Profile: Maldives- Asian Development Bank
https://www.adb.org/publications/climate-risk-country-profile-maldives

National Disaster Management Authority – Maldiveshttps://ndma.gov.mv/en

Disaster Management Act of Maldiveshttps://ndma.gov.mv/storage/uploads/NAq7Loeg/ptwnmgsc.pdf

Early Warning System and Community Based Emergency Response Mechanism - 2015
https://www.adrc.asia/aboutus/vrdata/finalreport/2015B_MDV_fr.pdf
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