2016
A STUDY ON THE DISASTER
MANAGEMENT FRAMEWORK OF JAPAN

Chathura Liyanaarachchige
DMC Sri Lanka,
ADRC Visiting Researcher
4/4/2016

A STUDY ON THE DISASTER MANAGEMENTFRAMEWORK OF JAPANA RESEARCH REPORT PRESENTED BY
CHATHURA LIYANAARACHCHIGE

To the Senior Researchers of the

ASIAN DISASTER REDUCTION CENETER

in partial fulfilment of the requirements
for the award of the completion letter of

VISITING REASERCHER PROGRAM IN DISASTER RISK MANAGEMENTof theASIAN DISASTER REDUCTION CENTER
JAPAN
2016
1|PageDISCLAIMER
This report was compiled by an ADRC visiting researcher (VR) from ADRC member countries.

The views expressed in the report do not necessarily reflect the views of the ADRC. The
boundaries and names shown and the designations used on the maps in the report also do not
imply official endorsement or acceptance by the ADRC.

2|PageACKNOWLEDGEMENT
It is a great pleasure for me to express my sincer gratitude to all the ADRC staff for providing me
this opportunity to participate in Visiting Researcher Program 2016 and for the extended assistancegiven me during the three month period. Thanks to you all I have been able to upgrade myknowledge on disaster risk management in Japan and had a great opportunity to get explore Japan,
its history, culture and traditions. To me Visiting Researcher Program was quite a memorable
experience, since it was both sharing experience and disaster education. This might have not beenpossible without your priceless support.
I am sincerely grateful to the Ministry of disaster Management in Sri Lanka for making possible of
my participation in this program and in particular, to the Director General, Additional Director
General and all the staff of the disaster Management center for their constant support andguidance throughout the program. This has been a very helpful and contributing factor for
successful completion of my research. I truly hope the relationship between the DMC and ADRC
will keep on prospering.
Special thanks go to Ms. Shiomi who during the entire period of the program has been rendering
her assistance and accompanying us in most friendly and kind manner. It must be particularly
noted that she has made her support available in a number of ways by being sensitive andresponsive not only to every single issue related to our program. It is due to her great merit that
we have benefited the program in the most effective way and enjoyed our staying in Japan.
Further I would like to express my gratitude to all the presenters and organization representatives
who conducted presentations and lectures within the framework of ADRC arranged programs andDRM programs organized by JICA for Asian countries. Knowledge attained through these sessions
was the key to our understanding of many aspects of the research area and the lecture andpresentation materials served as the main information source while writing it.
I also would like to extend my thanks to fellow visiting researchers – Mr. Andrew Lalhruaia, andMr. Mohamed Inayath for their co-operation and assistance throughout the program and wish
them success in their future endeavors and undertakings. During the three months spent in Japan
our relations have not been confined to only being mere colleagues, but we have been able toestablish and maintain friendly relations.
Last but not the least; I would like to thanks my wife, kids and my family members who havecontributed to the realization of this program to be success.

3|PageTABLE OF CONTENTS
CHAPTERPage

Declaration

01

Acknowledgement

02

Table of Contents

03

List of Tables

05

List of Figures

06

List of Abbreviations

08

1.0

BACKGROUND

1.1 International Frameworks in Disaster Management11

1.1.1 Yokohama Natural Disaster Reduction in 1994

11

1.1.2 Hyogo Framework for Disaster Risk Reduction (HFA)

12

1.1.3 Sendai Framework for Disaster Risk Management13

1.2 Purpose of the Study

15

1.3 Scope & Limitations of the Study

15

2.0

REVIEW OF LITERATURE

2.1 National Profile of Japan

16

2.1.1 Physiography

17

2.1.2 Climatology

17

2.1.3 Socio-economic Profile18

2.1.4 Administrative Setup

18

2.2 Disaster Profile of Japan21

2.3 Disaster Management System of Japan

26

2.3.1 Legal basis

26

2.3.2 Disaster Management Structure at National Level27

2.3.3 Disaster Management Planning31

2.3.4 National Development Plan

33

4|Page2.3.5 National Land Use Management System and Relevant Legislation

35

2.3.6 Business Continuity Planning (BCP)37

2.3.7 Building Standard Law (BSL)38

2.3.8 Allocation of the annual budget for Disaster Risk Reduction

39

2.3.9 Stakeholder participation in Disaster Risk Reduction

40

2.3.10 Volunteerism in Disaster Risk Reduction

41

2.3.11 International Emergency Response

41

2.3.12 Disaster Assessments

43

2.4 Early warning systems

45

2.4.1 Japanese Meteorological Agency

45

2.4.2 NHK – Japan Broadcasting Company

50

2.5 Emergency Response Mechanism at each level51

2.6 National Level54

2.6.1 Fire and Disaster Management Agency

54

2.6.2 Ministry of Health, Labor and Welfare

57

2.6.3 Ministry of Land, Infrastructure, Transport and tourism

58

2.6.4 Japan Coast Guard

60

2.6.5 Self Defense Forces (SDF)62

2.7 Prefectural Governments
3.0

CASE STUDIES

3.1 Case study: Hyogo Prefecture Disaster Management framework65

3.1.1 Mechanism of Disaster Risk Management67

3.1.2 Preparations for potential future disasters

68

3.2 Municipal Level
3.2.1 Case Study – Kobe Fire Department

4.0

63

70
72

3.2.2 Case Study – Disaster Medical Assistant Teams

74

Japan Medical Association Teams76

CONCLUTIONSREFERENCES

82

LIST OF ANNEXURES

84

5|PageLIST OF TABLES
Caption

Page No.

Table 1Socio-economic index of Japan

18

Table 2

No of deaths due to top 10 natural disasters in Japan from 1900 to 201424

Table 3

Economic Loss due to top 10 natural disaster in Japan from 1900 to 201424

Table 4

Summary of natural disasters in Japan from 1900-2014

25

Table 5Stored response and relief items in REMB

69

6|PageLIST OF FIGURES
Caption

Page No.

Figure 1. Disaster Management Cycle

10

Figure 2. Location of Japan in the world map

16

Figure 3. Subduction zones of Japan

17

Figure 4. Regions and administrative divisions of Japan

19

Figure 5. Local administrative divisions of Japan

20

Figure 6. Earthquakes and volcanic activities of Japan compared to the world

21

Figure 7. Dynamic tectonic plate of Japan

21

Figure 8. No of people deaths due to major natural disasters from (1945-2011)
Figure 9. Comparison of steepness of Japanese with other major river around the world

22
23

Figure 10. Natural disaster occurrence of Japan from 1900 to 2014

24

Figure 11. Composition of CDMC & committees for technical investigation

28

Figure 12. DRR Cycle of cabinet office

29

Figure 13. Disaster management system in Japan

30

Figure 14. The Structure of disaster Management planning
Figure 15. Structure of Basic Disaster Management Plan

31
32

Figure 16. BDMP in each level

32

Figure 17. Disaster Risk Management coordination scheme in Japan
Figure 18. Damage to the private sector due to The Grate East Earthquake

33
37

Figure 19. The concept of Business Continuity Planning

38

Figure 20. Amendments of BSL towards resilient buildings

38

Figure 21. BRI disaster response – building assessment stickers
Figure 22. Structure of the JDR

39
42

Figure 23. Roles & Responsibilities of JMA

46

Figure 24. Framework of operations of JMA
Figure 25. Organization structure of JMA

46
46

Figure 26. Mechanism of disseminating weather information by JMA

47

Figure 27. Last mile dissemination of weather information by JMA

47

Figure 28. Flood warning Information dissemination by JMA Jointly with MLIT

49

Figure 29. NHK Tsunami warning broadcasting50

7|PageFigure 30. NHK official web-page live volcano eruption broadcasting51

Figure 31. Disaster response mechanism in Japan

52

Figure 32. Cabinet Office disaster response mechanism

53

Figure 33. The role of FDMA during disaster and pre-disaster periods
Figure 34. Communication mechanism of FDMA
Figure 35. Basic concept of emergency Relief under the disaster relief act

54
56
58

Figure 36. Assistance given by MLIT for disaster response

59

Figure 37. Organizational structure of JCG

61

Figure 38. Regional station and resources of JCG

62

Figure 39. Organizational structure of a prefecture in Japan

64

Figure 40. Damage due to the The Grate Hanshin-Awaji Earthquake

65

Figure 41. Structure of the DM Bureau of Hyogo Prefectural Government

66

Figure 42. Structure of Hyogo Prefecture Emergency Relief Headquarters

66

Figure 43. Hyogo DM Headquarters

67

Figure 44. Hyogo web services

68

Figure 45. Hyogo Prefecture Regional Emergency Management Bases

69

Figure 46. EW mechanism and the mode of communication

70

Figure 47. Mechanism of DMAT operation.

76

Figure 48. Mechanism of JMAT activation

77

8|PageLIST OF ABBREVIATIONS
ADRC
BCMA
BDMP
BOKOMI
BCP
BRI
BSL
CBOs
CDMC
DIA
DCBA
DRR
DRM
DM
DMC
DMAT
DMP
EW
EFRT
FCMA
GIS
GPS
GDP
HFA
IDMP
IT
IDA
JDRT
JICA
JSDF
JCG
JMA
JMAT
MOFA
MLIT
NIDM
NCLS
NCDM
NILIM
NHK
NPOs
9|PageAsian Disaster Reduction Center
Basic Countermeasures Act
Basic Disaster Management Plan
Jishu-bosai-soshiki, voluntary DDR organization in Kobe
Business Continuity Planning
Building Research Institute
Building Standard Law
Community Based Organizations
Comprehensive Disaster Management Council
Disaster Impact Assessment
Disaster Countermeasures Basic Act
Disaster Risk Reduction
Disaster Risk Management
Disaster Management
Disaster Management Center
Disaster Medical Assistance Team
Disaster Management Plans
Early Warning
Emergency Fire and Rescue TeamFire and Crisis Management Agency
Geographic Information System
Global Positioning System
Gross Domestic ProductHyogo Framework for Action
Institutional Disaster Management Plan
Information Technology
International Development Association
Japan Disaster Relief TeamJapanese international cooperation agency
Japanese Self-Defense ForceJapan Coast Guard
Japan Meteorological Agency
Japanese Medical Assistance Team
Ministry of Foreign Affairs
Ministry of Land Infrastructure Transport and tourism
National Institute of Disaster Management
National Center for Lightning Safety
National Council for Disaster Management
National Institute for Land Infrastructure Management
Nippon Hōsō Kyōkai
Non Profitable Organizations

RHQ
SOPs
UNISDRUN
UNDP
UNICEF

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Regional Headquarters
Standard Operation Procedures
United Nations International Strategy for Disaster Reduction
United Nations
United Nations Development Program
United Nations International Children's Emergency Fund

1.0 BACKGROUND
After the greate civilizations and over the past few
decades, losses by natural disasters in the world haverecorded substantially. Some countries were prone
to natural disasters caused by earthquakes, tsunami,
floods, cyclones, lightning, volcanos, blizzards,
landslides, droughts and coastal erosion withincreasing instances of environmental pollution
related hazards. The devastations caused by the
Earthquakes, Tsunami and wars have highlighted
that the countries were also vulnerable to significant
impacts which cause extensive damages and reverse
development gains.

Disaster: A serious disruption of the functioning of a community or a society involving
widespread human, material, economic or environmental losses and impacts, which exceeds theability of the affected community or society to cope using its own resources. (UNISDR 2009)
Disaster risk management: The systematic process of using administrative directives,
organizations, and operational skills and capacities to implement strategies, policies and improved
coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster.
(UNISDR 2009)
Hazard: A dangerous phenomenon, substance, human activity or condition that may cause loss oflife, injury or other health impacts, property damage, loss of livelihoods and services, social andeconomic disruption, or environmental damage. (UNISDR 2009)
Vulnerability: The characteristics and circumstances of a community, system or asset that make itsusceptible to the damaging effects of a hazard. (UNISDR 2007)

Disaster Management cycle (is shown in Figure 1):
Mitigation: the lessening or limitation of the adverse
impacts

Figure 1.Disaster Management cycle

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Preparedness: the knowledge and capacities developed bygovernments, professional response and recovery
organizations, communities and individuals to effectively
anticipate, respond to, and recover from, the impacts oflikely, imminent or current hazard events or conditions.
(UNISDR 2009)

Response: The provisions of emergency services and public assistance during or immediately aftera disaster in order to save lives, reduce health impacts, ensure public safety and meet the basic
subsistence needs of the people affected. (UNISDR, 2009)
Recovery: The restoration, and improvement where appropriate, of facilities, livelihoods andliving conditions of disaster-affected communities, including efforts to reduce disaster risk
factors. (UNISDR 2007)

Despite there are typical requirements and attributive characteristics of each phase in the DM
cycle, implementation of each phase depends on proper planning and elaboration, But emergency
response phase is characterized by high uncertainty, limited timeframe, site accessibility
problems, and necessity for decision-making, mobilization of forces and resources and quick
response. The phase deals with direct or indirect, natural or human induced hazard to human life,
property, and the environment. Although the extent the country is exposed to natural and humaninduces hazards, thus, proper and comprehensive DM mechanism would be the matter of saving
lives, property damage, economic loss and the environmental degradation. Depending on
country’s hazard profile, geographical location and the administrative system every country andregion from their historical experiences have established DM mechanisms. Once the system is inplace, functional mechanism of coordination –implementation of such DM activities are definitive
factors.

Destructive implications of occurrence of all types of natural disasters frequently forced Japan toenhance their disaster management mechanism over time. In doing so, along with organizationalchanges, introducing legal provinces and revising the DM plans Japan has been integrating andintroducing the latest technological advancements for disaster management purposes. Since
natural disasters can’t be prevented and only the impact of disasters can be mitigated, Japan DRM
mechanism represents one of the most holistic disaster management systems in the world.

1.1

International Frameworks in Disaster Management

1 . 1 . 1 Y o k o h a m a n a t u r a l d i s a s t e r r e d u c t i o n i n 1 9 9 4 - is considered as the firstinternational conference on disaster management in the world. All the members of theUnited Nations, met at the World Conference on Natural Disaster Reduction, in the city of
Yokohama, Japan, from 23 May to 27 May 1994, in partnership with non-governmentalorganizations, and with the participation of international organizations, the scientificcommunity, business, industry and the media, deliberating within the framework of theInternational Decade for Natural Disaster Reduction, expressed deep concern on
continuing human suffering and disruption of development caused by natural disasters.
Therefore following principles were inspired by the Yokohama Conference for a Safer
World
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1.

Risk assessment is a required step for the adoption of adequate and successful disaster
reduction policies and measures.
2. Disaster prevention and preparedness are of primary importance in reducing the need fordisaster relief.
3. Disaster prevention and preparedness should be considered integral aspects of development
policy and planning at national, regional, bilateral, multilateral and international levels.
4. The development and strengthening of capacities to prevent, reduce and mitigate disasters
is a top priority area to be addressed during the Decade so as to provide a strong basis forfollow-up activities to the Decade.
5. Early warnings of impending disasters and their effective dissemination using
telecommunications, including broadcast services, are key factors to successful disasterprevention and preparedness.
6. Preventive measures are most effective when they involve participation at all levels, fromthe local community through the national government to the regional and international
level.
7. Vulnerability can be reduced by the application of proper design and patterns ofdevelopment focused on target groups, by appropriate education and training of the wholecommunity.
8. The international community accepts the need to share the necessary technology toprevent, reduce and mitigate disaster; this should be made freely available and in a timely
manner as an integral part of technical cooperation.
9. Environmental protection as a component of sustainable development consistent withpoverty alleviation is imperative in the prevention and mitigation of natural disasters.
10. Each country bears the primary responsibility for protecting its people, infrastructure, andother national assets from the impact of natural disasters. The international community
should demonstrate strong political determination required to mobilize adequate and makeefficient use of existing resources, including financial, scientific and technological means,in the field of natural disaster reduction, bearing in mind the needs of the developing
countries, particularly the least developed countries.

1.1.2

H y o g o F r a m e w o r k f o r D i s a s t e r R i s k R e d u c t i o n ( H F A ) - after the catastrophic
event happened due to Indian Ocean Tsunami on 26th December 2004. The World
Conference for Disaster Reduction, 10-years Hyogo Framework for Action (2005-2015)
came out of the world conference held in Kobe, Hyogo prefecture, Japan from 18 to 22
January 2005. Building the Resilience of Nations and Communities to Disasters (HFA) was
the first plan to explain, describe and detail the work that is required from all different
sectors and actors to reduce disaster losses. It was developed and agreed on with many
partners needed to reduce disaster risk - governments, international agencies, disaster
experts and many others - bringing them into a common system of coordination. Its goal isto substantially reduce disaster losses by 2015 by building the resilience of nations andcommunities to disasters. This means reducing loss of lives and social, economic, and

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environmental assets when hazards strike. The HFA outlines five priorities for action, andoffers guiding principles and practical means for achieving disaster resilience. The fivepriorities as follows,
Priority Action 1: Ensure that disaster risk reduction is a national and a local priority with astrong institutional basis for implementation.
Countries that develop policy, legislative and institutional frameworks for disaster risk
reduction and that are able to develop and track progress through specific and measurable
indicators have greater capacity to manage risks and to achieve widespread consensus for,engagement in and compliance with disaster risk reduction measures across all sectors ofsociety
Priority Action 2: Identify, assess and monitor disaster risks and enhance early warning.
The starting point for reducing disaster risk and for promoting a culture of disaster
resilience lies in the knowledge of the hazards and the physical, social, economic andenvironmental vulnerabilities to disasters that most societies face, and of the ways in whichhazards and vulnerabilities are changing in the short and long term, followed by action
taken on the basis of that knowledge.
Priority Action 3: Use knowledge, innovation and education to build a culture of safety andresilience at all levels.
Disasters can be substantially reduced if people are well informed and motivated towards aculture of disaster prevention and resilience, which in turn requires the collection,compilation and dissemination of relevant knowledge and information on hazards,
vulnerabilities and capacities.
Priority Action 4: Reduce the underlying risk factors.
Disaster risks related to changing social, economic, environmental conditions and land use,
and the impact of hazards associated with geological events, weather, water, climate
variability and climate change, are addressed in sector development planning andprogrammes as well as in post-disaster situations.
Priority Action 5: Strengthen disaster preparedness for effective response at all levels.
At times of disaster, impacts and losses can be substantially reduced if authorities,
individuals and communities in hazard-prone areas are well prepared and ready to act andare equipped with the knowledge and capacities for effective disaster management.

1.1.3

S e n d a i F r a m e w o r k f o r D i s a s t e r R i s k M a n a g e m e n t –The Third UN World
Conference on Disaster Risk Reduction ,The Sendai Framework was adopted by member
states on 18Th March 2015 in Sendai City of Miyagi prefecture in Japan. The Sendai
Framework is a 15-year, voluntary, non-binding agreement which recognizes that the State14 | P a g e

has the primary role to reduce disaster risk but that responsibility should be shared withother stakeholders including local government, the private sector and other stakeholders.
It aims the following outcome:The substantial reduction of disaster risk and losses in lives, livelihoods and health and in theeconomic, physical, social, cultural and environmental assets of persons, businesses, communities
and countries.
The Sendai Framework is the successor instrument to the (HFA): Building the Resilienceof Nations and Communities to Disasters. It is the outcome of stakeholder consultations
initiated in March 2012 and inter-governmental negotiations held from July 2014 to March
2015, which were supported by the UNISDR upon the request of the UN General
Assembly. The seven targets and four priorities for action as follows,
The Seven Global Targets(a) Substantially reduce global disaster mortality by 2030, aiming to lower average per 100,000 global
mortality rate in the decade 2020-2030 compared to the period 2005-2015.
(b) Substantially reduce the number of affected people globally by 2030, aiming to lower average
global figure per 100,000 in the decade 2020 -2030 compared to the period 2005-2015.
(c) Reduce direct disaster economic loss in relation to global gross domestic product (GDP) by 2030.
(d) Substantially reduce disaster damage to critical infrastructure and disruption of basic services,among them health and educational facilities, including through developing their resilience by
2030.
(e) Substantially increase the number of countries with national and local disaster risk reduction
strategies by 2020.
(f) Substantially enhance international cooperation to developing countries through adequate andsustainable support to complement their national actions for implementation of this Framework by
2030.
(g) Substantially increase the availability of and access to multi-hazard early warning systems anddisaster risk information and assessments to the people by 2030.

The Four Priorities for Action
Priority 1. Understanding disaster risk
Disaster risk management should be based on an understanding of disaster risk in all its
dimensions of vulnerability, capacity, exposure of persons and assets, hazard characteristics
and the environment. Such knowledge can be used for risk assessment, prevention,
mitigation, preparedness and response.

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Priority 2. Strengthening disaster risk governance to manage disaster risk
Disaster risk governance at the national, regional and global levels is very important for
prevention, mitigation, preparedness, response, recovery, and rehabilitation. It fosters
collaboration and partnership.
Priority 3. Investing in disaster risk reduction for resilience
Public and private investment in disaster risk prevention and reduction through structuraland non-structural measures are essential to enhance the economic, social, health andcultural resilience of persons, communities, countries and their assets, as well as theenvironment.
Priority 4. Enhancing disaster preparedness for effective response and to “Build Back Better” inrecovery, rehabilitation and reconstruction
The growth of disaster risk means there is a need to strengthen disaster preparedness forresponse, take action in anticipation of events, and ensure capacities are in place for
effective response and recovery at all levels. The recovery, rehabilitation andreconstruction phase is a critical opportunity to build back better, including throughintegrating disaster risk reduction into development measures.

1.2

Purpose of the Study

The purpose of the study is to elaborate detailed and holistic review of the disaster management
plans of Japan as constituent and integral element of the entire disaster management mechanism
through the conduct of comprehensive study of disaster management plans related to each levelof government, public organizations, public & private partnerships and voluntarism.

1.3

Scope & Limitations of the Study

In fact disaster risk management is new to Sri Lankans. Japanese are the most experienced nation
who lives on earth as far as disaster impacts are concerned, since they live on the most vulnerable
place on the earth. Therefore to recover and mitigate the impact of natural and human induced
disasters Japanese have introduced disaster risk management systems from ancient era. That was
revealed by the historical evidence. Also after each catastrophic event Japanese revisit theirsystem with the lesson learnt. Therefore the existing system is addressed fluently despite thenatural disaster cannot be prevented. Therefore my scope is to study the disaster management
framework from national level to the grass root level. But due to time constraint and thecomplexity my study was limited to the national level cabinet office and their operations and themunicipality of Kobe.

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2.0 REVIEW OF LITERATURE
2.1

National Profile of Japan

Figure 2. Location of Japan in the world map
GeneralJapan consists of total of 6,852 islands extending along the Pacific coast of East Asia. Japan lies
between latitudes 24° and 46°N, and longitudes 122° and 146°E (as shown in figure 2). The mainislands, from north to south, are Hokkaido, Honshu, Shikoku and Kyushu. The Ryukyu Islands,
which includes Okinawa, are a chain to the south of Kyushu. Together they are often known as
the Japanese Archipelago.
73 percent of Japan is forested and mountainous, therefore lands are scares for agricultural,industrial, or residential use. As a matter of fact, the habitable zone, mainly located in coastal
areas, contains extremely high population densities.
As per the records following three decades of unprecedented growth, Japan's economy
experienced a major slowdown starting in the 1990s, Still the country still remains a strong
economic. In March 2011, Japan's experience largest-ever earthquake, and an accompanying
tsunami, devastated the northeast part of Honshu island, killing thousands and damaging several
nuclear power plants (fukushima). The catastrophic event impacted to the Japan's economy andits infrastructure, and tested its ability to withstand to disasters.
Japan is located in eastern Asia, an island chain between the North Pacific Ocean and the Sea ofJapan, east of the Korean Peninsula. In 2003 Japan’s population was 128 million, and the City of
Kobe represented 1.2% of the total. Most of the country’s population is urban, accounting for the
78.8% of the total, with a density of 341 persons per square kilometer. Almost 15% of the
population is under 15 years old and 23.6% is over 60 years old. In the year 2000 there were 46.78
million households, 58.4% of which were nuclear family and 27.6% one-person households. In
2002 the country GDP was $38,160 per person.
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Physiography

2.1.1

Japan is located in a volcanic zone on
Pacific Ring of Fire. It is primarily the aresult of large oceanic movements
occurring over hundreds of millions ofyears from the mid-Silurian to the
Pleistocene as a result of the subduction
the Philippine Sea Plate beneath thecontinental Amurian Plate andOkinawa Plate to the south, andsubduction of the Pacific Plate under
Okhotsk Plate to the north. Japan was
originally attached to the eastern coast
the Eurasian continent. The subducting
plates pulled Japan eastward, opening
Sea of Japan around 15 million years
Subduction zones and four continental
plates movements shown in figure 3

the

of

the
of
the
ago.

Figure 3. Subduction zones of Japan

Japan has 108 active volcanoes. Destructive earthquakes, often resulting in tsunami, occur several
times each century. The 1923 Tokyo earthquake killed over 140,000 people. Recent major quakes
are the 1995 The Great Hanshin Awaji earthquake and the 2011 The Great East earthquake, a 9.0magnitude quake which hit Japan on March 11, 2011, and triggered a large tsunami. Due to its
location in the Pacific Ring of Fire, Japan is substantially prone to earthquakes and tsunami,
having the highest natural disaster risk in the developed world.

2.1.2

Climatology

The climate of Japan is predominantly temperate, but varies greatly from north to south. The
average winter temperature in Japan is 5.1 °C (41.2 °F) and the average summer temperature is25.2 °C (77.4 °F). A major feature of Japan’s climate is the clear-cut temperature changes between
the four seasons. In spite of its rather small area, the climate differs in regions from a subarctic
climate to a subtropical climate. The side of the country which faces the Sea of Japan has a climate
with much snow in winter by seasonal winds from the Siberia. Most of the areas have damp rainyseason from May to July by the seasonal winds from the Pacific Ocean.
From July to September, Japan frequently suffers from Typhoon.
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Japan's geographical features divide it into six principal climatic zones: Hokkaido, Sea of Japan,
Central Highland, Seto Inland Sea, Pacific Ocean, and Ryūkyū Islands. The northernmost zone,
Hokkaido, has a humid continental climate with long, cold winters and very warm to coolsummers. Precipitation is not heavy, but the islands usually develop deep snow banks in thewinter.

Socio-Economic Profile

2.1.3

Japan is an industrial developed country and after World War Two Japan had significantly
developed their economy. The socio-economic indicators of Japan is shown in Table.1
Table 1. Socio-economic index of japan
Socio-economic Indicators
GDP: Gross domestic product (million current US$)2011

5870357

GDP per capita (current US$)2011

46407.0

GNI: Gross national income per capita (current US$)2011

48084.0

Population (millions)2014

127.14

Urban (% of population)

2014

92.51

Sex ratio (males per 100 females)

2012

94.9

Life expectancy at birth (females/males, years)

2010-2015

87.1/80.1

Adult literacy rate (% ages 15 and older)

2002

99

Expenditure on education (% of GDP)

2014

3.78

Source: http://nidm.gov.in/easindia2014/err/pdf/country_profile/Japan.pdf

2.1.4

Administrative Setup

The government of Japan is a constitutional monarchy whereby the power of the Emperor islimited and is relegated primarily to ceremonial duties. The government, like in most other states,
is composed primarily of three branches: the executive branch, the legislative branch and the
judicial branch, as defined by the post-war constitution of Japan.

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1. Regions and Administrative Divisions of Japan

Figure 4. Regions and administrative divisions of Japan

Under the Constitution, the powers of the executive branch of the government is explicitly vested
in the Cabinet; of which, must enjoy the confidence to be in office by the National Diet, the organof the legislative branch. The National Diet is, under the Constitution, known as "the highest
organ of state power"; which strictly reflects the Sovereignty of the people as represented by theDiet.
The 47 prefectures of Japan form Japan's first level of jurisdiction and administrative division.
They consist of 43 prefectures (ken) proper, two urban prefectures, Osaka and Kyoto), one"circuit" or "territory" Hokkaido) and one "metropolis" (Tokyo). The first prefectures, replacing
the provinces of Japan, were created by the Meiji Fuhanken sanchisei administration in 1868(shown in figure 4).

The chief executive of each prefecture is a directly-elected governor (chiji). Ordinances andbudgets are enacted by a unicameral assembly (gikai) whose members are elected for four-year
terms.

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2. Local Administrative System
Under the current Local Autonomy Law, each prefecture is further divided into cities (shi) anddistricts (gun) and each district into towns (chō/machi) and villages (son/mura). For example,
Hokkaido has 14 sub prefectures which act as branch offices (shichō) of the prefecture. Someother prefectures also have branch offices, which carry out prefectural administrative functions
outside the capital. Tokyo, the capital, is a merged city-prefecture; it has features of both cities
and prefectures. (Local administration system is shown in figure 5)

Figure 5. Local administrative divisions of Japan

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2.2

Disaster Profile of Japan

Historically, destructive natural disasters have posed greatest challenge for Japanese society. Japanis located in four plates of the Circum-Pacific Mobile belt where seismic and volcanic activities
occur constantly which is sometimes called as Pacific Ring of Fire. And Japan covers only 0.25%
of the land area on the earth. (As shown in figure 6)
Unfavorable geographical, topographical and meteorological conditions of Japan have made it
more disaster prone countries in the world such as typhoons, torrential rains’, floods, landslides aswell as heavy snows falls and Tsunami.

Figure 7. Dynamic tectonic plate of Japan

Figure 6. Earthquakes and volcanic activities of Japan compared to the world

As shown in the Figure 7. Japan is located in four tectonic plates – Eurasian Plate, North
American Plate, Pacific Plate and Philippine Sea –subducting each other which are the cause ofhigh seismicity of Japan territory. Tsunami tidal waves triggered due to an earthquake at thebottom of the ocean or by landslides in the vicinity of the coast. Earthquakes and tsunamis are themajor causes of disasters in Japan as per the historical evident. Although Japanese government
spending billions of money for to improve Disaster Management and despite remarkable successhave been achieved in increasing disaster preparedness of the country recent big disaster causedby the Great Hanshin-Awaji Earthquake in year 1995 and Great East Japan Earthquake in year
2011 demonstrated that they still remain as the biggest challenge for disaster management systemof the country (no of deaths due to past disasters is shown in figure 8). Therefore vital role andresponsibility of the JMA, MLIT and BRI before, during and after an emergency must beemphasized in their institutional disaster management plans.
22 | P a g e

Typhoons (cyclones) and high instance rain due to typhoon system are the main causes of storm,
storm surges, flood and sediment related disasters in Japan. Starting from 1945 series of typhoons
caused severe damages to Japan by storm, tidal wave and mainly on high tides during the periodof May to October and August to September. Year 1959 is the recorded highest death tall due to“Isewan” typhoon and also considered to be the turning point of fighting with typhoons. Since
then as a result of typhoon disaster preparedness measures and applications developed by Japan
Meteorological Agency (JMA) the number of deaths due to typhoons drastically decreased.

Figure 8. Number of people deaths due to major natural disasters (1945-2011)

Risk of fire hazard is high in Japan. This is mainly due to large forest cover which covered about
70% of Japan, highly industrialized, large number of nuclear & thermal power plants, use ofelectricity for public utility is high, developed chemical and all kinds of end products, close
proximity of buildings in densely populated areas and use of wood for building houses. Moreover,tsunamis and earthquakes are also likely to entail large-scale fires in its immediate aftermath. As
per the records 7000 fire cases occurred in immediate aftermath of the Great Hanshin-Awaji
earthquake in 1995.
As per the Topography and geography of Japan lead to foods and sediment related disasters due torapid flow of rivers from the mountains violently. Moreover, ratio between normal volume offlow and that during a storm is extremely disastrous. A high intense rain falls are on the Japanesearchipelago during the heavy rainy season (June to July) and typhoons. During periods ofintensive rainfall, even a small stream that usually dried may become a raging torrent. Moreover,combination of such factors as steep slopes, fast-flowing rivers, unstable and soft soil, rainy
climate and frequent earthquakes often lead to such sediment disasters as debris flows, landslides
and slope failures.( shown in figure 9) situation in Japan with regard to floods and sedimentdisasters.

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Figure 9. Comparison of steepness of Japanese with other major river around the world

Japan has 108 active volcanoes and has several volcanic regions and it is frequently affected byearthquakes and Tsunami. Volcanic disasters triggered by eruption and disaster happened due topyroclastic flow. Destructive earthquakes, often resulting in tsunami, occur several times eachcentury. The 1923 Tokyo earthquake killed over 140,000 people.
Also Japanese have experienced pyroclastic flow and debris flow due to volcanic eruption of
Mount Unzen-Fugen in 1991 and killed 41 persons whereas damage cost over 220, 0 billion
Japanese yen . As per the historical evidence revel that first eruption was happened in 198 years
back and debris flow due to volcanic eruption fall in to Mizunashi river and that generated hugetsunami tidal wave and killed more than 3000 people lived on the other side of the neighboring
prefecture. Occasionally heavy snowfalls and blessed warring Japanese as they are witness one of
the most vulnerable communities live on earth. Natural disaster occurrence of Japan for last 100
years are shown in figure 10 and number of deaths due to each disasters from 1945-2014 isannexed as an annex 1. The impact of top ten major disaster strikes to japan are shown in & table
2, 3, and 4.

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Figure 10. Natural disaster occurrence of japan from 1900 to 2014(Source:
http://nidm.gov.in/easindia2014/err/pdf/country_profile/Japan.pdf)

Table 2. Numbers of deaths due to top 10 natural disasters in Japan from 1900 - 2014
Disaster

Date

No Killed

Earthquake (seismic activity)

01/Sep/1923

143000Earthquake (seismic activity)

11/Mar/2011

19846

Earthquake (seismic activity)

17/Jan/1995

5297

Earthquake (seismic activity)

28/Jun/1948

5131

Storm

26/Sep/1959

5098

Storm

Sep/1917

4000

Storm

18/Sep/1945

3746

Earthquake (seismic activity)

02/Mar/1933

3064

Storm

21/Sep/1934

3006

Storm

Sep/1923

3000

Source: http://nidm.gov.in/easindia2014/err/pdf/country_profile/Japan.pdf
Table 3. Economic loss due to top 10 natural disasters in Japan from 1900 - 2014
Disaster

Date

Damage (000 US$)

Earthquake (seismic activity)

11/Mar/2011

210000000

Earthquake (seismic activity)

17/Jan/1995

100000000

Earthquake (seismic activity)

23/Oct/2004

28000000

Earthquake (seismic activity)

16/Jul/2007

12500000

Storm

27/Sep/1991

10000000

Storm

03/Sep/2004

9000000

Flood

10/Sep/2000

7440000

Storm

22/Sep/1999

5000000

Storm

17/Sep/1990

4000000

Storm

22/Sep/1998

3000000

Source: http://nidm.gov.in/easindia2014/err/pdf/country_profile/Japan.pdf
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Table 4. Summary of natural disasters in Japan from 1900-2014
No. of Events

KilledTotal

Damage (000 US$)Affected
Earthquake

Earthquake (ground(seismic

shaking)

44161794960008146841400

3677.121818.43337304.5

32576

436947212821000

2326.931210.5

15201500

1

534

-

0.5

267

-

-

2000000--

2000000

-

616

94300

-

123.2

18860

-

12814

7015269268300413.42262998654.82125807

1950000

21

25807

1950000

232

1510343214000

16.6

10788.1

229571.4

343841437440000

17

192071.53720000

13

-

-

13

-

-

994

25706

21000047.3

1224.1

10000

1890

19281445350078.88033.918895.8219

11686977020014.6

7791.351346.7

32629

7615483

55669900

276.5

64538

471778.8

515

99979

13200034.3

6665.3

8800

-

222

-

-

222

-

activity)
ave. per event
Tsunami14

ave. per event
Epidemic

Bacterial Infectious

2

Diseasesave. per event
Viral Infectious
Diseases1

ave. per event
ExtremeHeat wave

temperature

ave. per event

Flood

Unspecified

531

ave. per event
Flash flood

1

ave. per event
General flood

14

ave. per event
Storm surge/coastal

2

flood
ave. per event
Mass

Avalanche

Movement

ave. per event

wet

Landslide1
21

ave. per event
Storm

Unspecified

24

ave. per event
Local storm

15

ave. per event
Tropical cyclone

118

ave. per event
VolcanoVolcanic eruption

15

ave. per event
Wildfire

Forest fire
ave. per event

1

Source: http://nidm.gov.in/easindia2014/err/pdf/country_profile/Japan.pdf

26 | P a g e

2.3

Disaster Management System of Japan

2.3.1

Legal Basis

To protect national land as well as citizens' lives, livelihoods', and property from natural
disasters is a national priority. In Japan, the disaster management system has been developedand strengthened by the following the better experience of large-scale natural disasters andaccidents.

1. National Policy, Strategy and Legislation in Disaster Risk Reduction
Various disaster management related laws adopted since late 40s has laid down the legal
framework for the disaster management system of Japan. These laws cover all phases of disastermanagement – preparedness, prevention/mitigation, response and recovery/rehabilitation
phases. There are 7 Basic Acts; 18 with regard to Disaster Prevention and Preparedness; 23
Disaster Recovery and Reconstruction and Financial Measures annex as an annex 2.
The cornerstone of legislation on disaster risk reduction is the Disaster Countermeasures Basic
Act, enacted in 1961, which set out the basis for measures to reduce disaster risk in Japan. There
are also organizations involved in disaster risk reduction, legislation on disaster risk reductionand emergency response to disasters, post-disaster recovery and reconstruction, and all-roundlegislative provision regarding specific disaster risk reduction activities. Disastercountermeasures and risk reduction are comprehensively covered.
Under the Disaster Countermeasures Basic Act, the Basic Plan for Disaster Management has
been introduced, setting out comprehensive and long-term plans for disaster risk reduction in
Japan: Based on this Plan, a comprehensive disaster-management planning system has been
established.
The lessons learned from the Great Hanshin-Awaji Earthquake (Kobe Earthquake) of 1995
prompted enhancements to Japan’s disaster risk reduction legislation and government policy. In
recent years, particular priority has been accorded to countermeasures for large-scale
earthquake disasters. Specifically, legislation has been passed regarding countermeasures forlarge-scale ocean-trench type earthquakes such as the anticipated Tokai, Tonankai and Nankai
Earthquakes, earthquake countermeasures for large cities where damage is likely to be wideranging have been established, and improvements have been made to the overall frameworkwith regard to legislation on disaster risk reduction and disaster countermeasures.

2. Multi-sectorial Coordination and Collaboration in Disaster Risk Reduction
Under the Disaster Countermeasures Basic Act, the Central Disaster Management Council wasformed. Its brief being to ensure the comprehensiveness of disaster risk management and to
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discuss matters of importance with regard to disaster management. (An organizational diagramand description of roles is included in the documentation attached.)
Within the Cabinet Office, which is the secretariat for this Council, the Minister of State forDisaster Management has been assigned as the Minister State for Special Missions for this issue.
This Minister is assisted by the department of the Cabinet Office Director-General for Disaster
Management. His mandate being to handle planning and central coordination with regard tomatters relating to basic policy on disaster risk reduction, and matters concerning disastercountermeasures in the event of a large-scale disaster. The Minister is also responsible for the
integrated handling of information-gathering and other emergency measures, working closelywith the Cabinet Secretariat, in the event of a disaster. (Source: White Paper on Disaster
Management, 2014.)

2.3.2

Disaster Management Structure at National Level

The Cabinet Office closely collaborates with relevant ministries and agencies to prevent,respond to, and recover from disasters and works to ensure that the nation prepares strongly forsuch events.
Under the Disaster Countermeasures Basic Act of 1961, the Central Disaster Management
Council (CDMC) was formed with the main objective of "ensuring comprehensiveness of
disaster management and to discuss matters of importance with regard to disaster management".
The Central Disaster Management Council was positioned within the Cabinet Office as one ofCabinet's major policy councils. The Central Disaster Management Council is chaired by thePrime Minister and comprises of Minister of State for Disaster Management, all ministries, headsof major public institutions and experts. Since the reorganization of ministries and agencies inparticular, leaders of local public bodies and experts with practical experience have been
incorporated as new participants. The council promotes comprehensive disastercountermeasures including deliberating important issues on disaster reduction according torequests from the Prime Minister or Minister of State for Disaster Management. The
organization structure of the Central Disaster Management Council is shown in figure 11 andthe status of the establishment of CDMC committees is annexed as an annex 3.

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Organization Structure of Central Disaster Management Council

Committees for Technical Investigations
On countermeasures for the Tonakai and Nankai Earthquakes (formed October ,2001)
On lessons learned from past disasters (formed july,2003)
On the promotion of Nationwide movement of disaster management (formed
December,2005)

On the evacuation measures for the Tokyo inland Earthquake (formed augest,2006)
On large scale flood countermeasures (formed augest,2006)
On countermeasures for the Tokai Earthquake (formed march,2002-may,2003)
On information sharing of disaster management (formed October,2002-july,2003)
On the promotion of disaster reduction activities by the private sector(September,2003october,2005)

On countermeasures for the Tokyo inland Earthquake (formed september,2003-july,2005)
On countermeasures for the Trench type Earthquake in the vicinity of the Japan andchishima Trenches (formed october,2003-january,2006)
Figure 11. Composition of CDMC & Committees for technical investigation

Duties of the CDMC


Prepare and promote implementation of the Basic Disaster Management Plan and draft the
Earthquake Disaster Management Plan.

Prepare and promote implementation of the urgent measures plan for major disasters.

29 | P a g eDeliberate important matters pertinent to disaster management according to requests fromthe Prime Minster and/or Minister of State for Disaster Management (general coordinationof basic disaster management policies and disaster management measures, declare
emergency situations caused by disasters etc.)Offer opinions regarding important matters pertinent to disaster management to the Prime
Minister and Minister of State for Disaster Management. (DRR Cycle of cabinet officeshown in figure 12)

Disaster Risk Reduction Cycle, Cabinet Office, 2005

Figure 12. DRR cycle of cabinet office

The DCBA which covers all phases of disaster management and stipulates establishment ofdisaster management councils at three levels: national – Central Disaster Management Council;
Prefectural – Local Disaster Management Council and Municipal Disaster Management Councils
as well as defines organization and duties of these councils and defines conditions forestablishment of headquarters for disaster control in case of emergency. Structure of disastermanagement system in japan is shown in figure 13.

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Structure of the Disaster Management System in Japan

Designated government organizations, 23 Ministries and agencies
Designated public cooperation, 63 organizations including bank of Japan,
Japanese red cross society, NHK, electric and gas companies and NTT

Figure 13.
Disaster management

system in Japan

In prefectures and local municipalities, the prefectural and municipal Disaster Management
Councils are established with the members of representatives of local government organizations
including police and fire management department, and designated local public corporations.
Implementation of disaster risk management measures is based on the Local Disaster Management
Plans drafted by the Councils.

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2.3.3

Disaster Management Planning

Basic Disaster Management Plan is themaster plan and a basis for disaster
reduction activities in Japan.

Disaster Management Operation Plan is aplan made by each designated governmentorganization and designated public
corporation, andLocal Disaster Management Plan is a plan
made by each prefectural and municipal
disaster management council, based on
the Basic Disaster Management Plan.
Structure of Disaster management
planning system of japan is shown infigure 14.
Figure 14. The Structure of disaster management planningsystemBasic Disaster Management Plan is prepared by the Central Disaster Management Council inaccordance with Article 34 of the Disaster Countermeasures Basic Act. The plan clarifies theduties assigned to the Government, public corporations and the local government in
implementing measures. For easy reference to countermeasures, the plan also describes thesequence of disaster countermeasures such as preparation, emergency response, recovery andreconstruction according to the type of disaster. The structure of basic disaster management planis shown in figure 15.

32 | P a g e

Figure 15. Structure of basic disaster management plan

The Disaster Management Planning System comprises:
i. The Basic Disaster Management Plan - BDMP sets forth the basic activities for each type ofdisaster management plan, which is the foundation of the nation's disaster management
measures. It was entirely revised on the light of the 1995 Great Hanshin-Awaji Earthquake
clarifying roles and responsibilities of every administrative body and providing guidelines
for preparedness, emergency response and recovery and reconstruction, according to thetype of disaster. (BDMP in each level is shown in figure 16)•National Goverment
BADCM •(Basic Disaster Mangement Plan)•Prefectural Goverments
BADCM •Prefectural Disaster Management Plans•Municipalities
BADCM •Local Disaster Management Plans

RivisedBCMA•C ommunity Disaster Management Plans•in Kobe those disaster Safe-welfarecommitees called BOKOMI

Figure 16.BDMP in each levelii. The Disaster Management Operation Plan, prepared by different administrative
Organizations and Public Corporations according to the guidelines on the BDMP.
33 | P a g e

iii. Local Disaster Management Plan, prepared by each prefecture and municipal disastermanagement council taking into account local conditions and the BDMP.

iv. The recently revised Disaster countermeasures basic act recommends the development of“Community Disaster Management Plans” for each community which specifies the actions
to be taken at the site, or at the community level, during a disaster. Kobe city community
disaster management plan is developed for each disaster-safe welfare community called
BOKOMI

National Development Plan

2.3.4

The National Development Plan strongly incorporates aspects related to safety, mitigation andrisk reduction countermeasures as one of the five fundamental objectives of the country. The
national vision of "making Japan a safe and comfortable place to live" is prioritized through awell understood criteria of minimizing the damage caused by earthquakes and other natural
hazards. National disaster risk reduction coordination mechanism is shown in figure 17.

Meteorology
Hydrology
Seismology
Volcanology

Figure 17. Disaster Risk Management coordination scheme in Japan

1. Sectorial plans which incorporate risk reduction into development
1. Comprehensive National Development Plan (provision of nation-wide spatial plan)This is a comprehensive plan setting out Japan’s policy on developing its national territory,
based on the Comprehensive National Development Act. Drafted in 1998, this Plan
identifies “making Japan a safe and comfortable place to live” as one of the five fundamental
objectives of national development, and defines its aim as improving the country’s safety
34 | P a g e

with regard to large-scale earthquakes and other natural disasters. “Disaster mitigation
counter risk reduction measures” based on the principle of minimizing the damage causedby disasters prioritized as the main task.
Specific objectives are: establishing a disaster-resilient transport and communications
infrastructure; introducing public works design standards commensurate with theirimportance; promoting the assurance of earthquake-resistance capacity in buildings;
establishing an earthquake watch network and other disaster watch systems; promoting
research into disasters and their prevention; assessing and publishing the degree of risk of
local disasters, and reflecting this information in local development and land use; providing
disaster management manuals for local, corporate and administrative bodies, tailored to
specific disaster type and scale; establishing systems enabling an appropriate response to be
mounted in the event of a disaster, such as strengthening information-relaying systems,
evacuation, aid and rescue systems, volunteer-dispatch systems, and backup systems foradministrative functions and company activities; and provisions for people requiring help
in the event of a disaster.
2.

Social Infrastructure Development Priority Plan (provision of social infrastructure ）This is a long-term plan aimed at ensuring that social infrastructure development projects
are implemented in a focused, effective and efficient manner. Before March 2002, social
infrastructure had been created in accordance with long-term plans specific to operational
areas (roads, traffic safety facilities, airports, ports, municipal parks, sewers, flood control,
steep slopes, coastal cliffs), but from April 2002 onwards, efforts have been made to
improve liaison and efficiency of communication between these operational departments asmuch as possible, through the implementation of the Social Infrastructure Development
Priority Plan. The most important issues are the establishment of facilities to prevent flood
damage, facilities and systems for the real-time relaying of information on floods and othernatural disasters, evacuation sites and routes, disaster risk reduction facilities, and routes forthe provision of aid in the event of disaster.

3. Long-Term Plan for Land Improvement (improvement of agricultural areas and land）
The aims of this Plan are to mitigate disaster-related damage to agricultural industry, and toincrease safety and peace of mind in provincial communities. Specifically, it is focused on
agricultural areas where flood damage was anticipated.
4. Forestry Maintenance and Conservation Projects Plan (forestry)
This is a long-term plan relating to forest maintenance and afforestation projects aimed atmaintaining and conserving forests in an appropriate manner. “Creating a society where
citizens can live their lives with peace of mind” by preventing landslide disasters throughthe regeneration of damaged forests and the prevention of further forest damage was
35 | P a g e

specified as one of the Plan’s objectives. One of its concrete goals was to increase thenumber of communities whose surrounding forests have been subjected to mountaindisaster-proofing.
5. Ministerial Ordinance Governing Technical Standards for Water Supply Facilities (watersupply operations)This Ministerial Ordinance includes the following requirements regarding water supply
facilities. Consideration must be given to ensuring that in case of disaster or otheremergency, the suspension of the water supply and other adverse effects on the watersupply were minimized; consideration must also be given to ensuring that recovery can beachieved speedily.
Bearing in mind topography, geology and other natural conditions, facilities must be
structurally safe with regard to their own weight and the loads they were required to bear,water pressure, earth pressure, uplift pressure, buoyancy, seismic force, weight ofaccumulated snow, ice pressure, thermal load and other foreseeable loads.
Besides having structural safety with regard to seismic force, commensurate with theirimportance, facility construction must give consideration to the impact of liquefaction,
lateral flow and other phenomena produced by earthquakes.
In order to prevent damage spreading in the event of an earthquake or other emergency,
cutoff valves and other necessary fixtures must be provided as required.
Other requirements for disaster-proof construction were set out regarding water intake
facilities, water storage facilities and other types of facilities.

2.3.5

National Land Use Management System and Relevant Legislation

The Ministry of Land Infrastructure Transport and Tourism (MLIT) was established in 2001,
through the consolidation of the former Ministry of Construction, Ministry of Transport,
National Land Agency and Hokkaido Development Agency. MLIT's responsibilities include
collectively promoting national land planning policies, infrastructure policies, social fundmaintenance and transport policies. The Ministry's overall responsibility is to conceive andimplement a concrete vision of how to comprehensively harmonize and develop the physical,
economic and social infrastructures of Japan. Its purpose is to maintain the viability of thecountry's land, while ensuring a mobile environment that enables both the government andprivate sector to develop their potential.

36 | P a g e

MLIT has established the following five objectives in order to carry out these goals:
1) Supporting Joyful Life,
2) Enhancing Global Competitiveness,
3) National Safety,
4) Preserve and Create a Beautiful and Benign Environment, and
5) Enhancing Regional Diversity.
National and regional development plans and land use plans based on necessary research aredeveloped every five years. Among the different policies that the Ministry promotes, two havebeen taken as good examples of comprehensive land use and management practices:I.

Building a favorable urban environment
MLIT pursues zero emissions of waste in metropolitan areas. To this end, the ministry strives toreduce, reuse, and recycle waste to "close the loop" of resource circulation. To revitalize urban
environment infrastructure, MLIT implements a number of measures including:(i) Conserving, regenerating or creating precious natural environments in metropolitan areas,(ii) Creating green zones in waterfront areas and expanding green zones in urban areas,(iii) Reviving rivers and seas.

II.

Promoting urban development initiatives by the private sector
A total of 63 areas (as of the end of December 2004) have been designated as "the Prompt
Development Area for "Urban Renaissance" under the Special Measures Act for Urban
Renaissance. In these areas, various projects are well underway. For example, business andcommercial buildings opened one after another in the area surrounding Tokyo and Yurakucho
stations. A basic plan has been developed to build a hub for international business and cultural
exchange in the area around Osaka Station, the Nakanoshima area and the area in and around
Midosuji. A redevelopment project has been completed in the area centering on Takamatsu
Station and the Marugame-town area.
The National Institute for Land and Infrastructure Management (NILIM), which is part of the
MLIT, performs research that contributes to the planning and enactment of technology policies
to achieve the goal of creating a beautiful national land with safety and vitality in order toincrease the satisfaction of the people who are the end users of housing and infrastructure. To
accomplish this goal, NILIM promotes the following:

37 | P a g e•Creation of a beautiful national land to support sustainable society in Japan and one that issafe against natural disasters•

Creation of a comfortable living environment•

Regional management interacting with public involvement•

Creation of a comfortable housing market•

Creation of society with vitality and regions with individuality•

Achievement of smooth exchange of people and efficient flow of goods, revitalization ofactivity in the city and the region•

Improvement of methods of managing housing and infrastructure, technological standard
and contract methods and options for evaluating policies and public service•

Creation of society with vitality utilizing IT (Information Technology)

2.3.6

Business Continuity Planning (BCP)

Japanese impacted by large-scale disasters such as Earthquake and Tsunami with the return
period of hundred years. Due to such events all the servicers will be disrupted for an instancetransportation disrupted, electricity services disrupted, water, gas, telecommunications andshutdown of all nuclear power plant for checkup. Also the emergency response agencies also
straggle to carry out their operations due to the loss of human and equipment. At the sametime other organizations such as banks, insurance cooperation’s and private sector organizations
also straggled to continue their servicers. After the disaster they suffered to recover the damageof buildings & infrastructures, brake of supply chain and loss of livelihoods. Damage to theprivate sector due the grate east earthquake in 2011 is shown in figure 18.

Figure 18. Damage to the private sector due to the grate east earthquake

To mitigate the risk of disruption happen to such organizations due to potential threats, need aPlan to pursue business continuity by introducing BCP (the concept of BCP is shown in figure
19).
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Basic components of BCP are as follows,








Policy & strategy
Damage estimation
Priority
Recovery time objective
Backup system and office
Keep persons in charge
Safety confirmation.

Figure 19. The concept of Business Continuity Planning

Building Standard Law (BSL)

2.3.7

Japan has the Building Standard Law (enacted in 1950) and the Act for Promotion of the
Earthquake Proof Retrofitting of Buildings (enacted in 1995). It has been confirmed thatbuildings constructed under the revised Building Standard Law (known as the “New Seismic
Design Method”) enacted in 1981 have adequate earthquake resistance. But Japanese disastermanagement authorities revisit the BSL after a disaster and introduced new amendments.
Following figure 20 is showing the development of earthquake resistance measures

Figure 20. Amendments of BSL towards resilient buildings

39 | P a g e

On the other hand, many buildings in Japan (roughly one-third of the total) have inadequate
earthquake resistance because they had been built before the relevant standards were tightenedin 1981; it has been pointed out that little progress is being made in improving the earthquake
resistance of these aged buildings.

Building Research Institute
The BRI is actively involved in response measures taken in immediate aftermath ofearthquakes, as well as in reconstruction measures. Initially, the BRI conducts preliminary
damage assessments of buildings just after an earthquake hit the area thereby defining whichbuildings is still strong enough to bear the shock which are not capable enough to sustain(Asshown in figure 21). Having completed assessment of each building BRI specialist attaches a
special sticker on which enables to define vulnerability level of a building. The measure helps
to avoid future human injury and loss as well as identify possible evacuations point. As a longterm measures the BRI is conducting research for building seismic resistant buildings andseismic retrofitting techniques.

Figure 21. BRI disaster response – building assessment stickers

As it was mentioned above, taking into account of the frequency and the scale of natural
disasters in Japan designated public and government organizations both at each level (national,
prefectural and municipality)are obliged to integrate disaster management measures to its
general activities.

2.3.8

Allocation of the Annual Budget for Disaster Risk Reduction

Disaster risk reduction is covered in the state budget. In fiscal year 2015, the budget for disasterrisk reduction was approximately 3.4 trillion yen, which is about 4% of the total generalaccount budget (from 1962 to 2015, budget allocations for DM activates by the Government ofJapan is annexed as annex 4).

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2.3.9

Stakeholder Participation in Disaster Risk Reduction

Under the Disaster Countermeasures Basic Act, private sector, persons with responsibilities
regarding disaster risk reduction must fulfill their responsibilities faithfully, and local residents,
besides taking measures to prepare for disasters, also make efforts to contribute disaster risk
reduction by, participating in voluntary disaster risk reduction activities. Specifically, publicbodies as well as legal bodies carrying on public business designated by the Prime Minister
under the Disaster Countermeasures Basic Act (public institutions such as the Bank of Japan,
and corporations running public operations such as electricity and transport) were obliged toparticipate in the Central Disaster Management Council and draft disaster risk reduction
operations plans based on the Basic Plan for Disaster Management, and also bear a range of
responsibilities regarding disaster risk reduction activities, including cooperation, in the eventof a disaster.

Other private companies were also given more opportunities to participate in evacuation drills
and to contribute to society by being involved in disaster risk reduction activities including
developing products with extra disaster risk reduction functions.

Academic bodies are playing a major role in carrying out scientific and technical research on
disaster risk reduction, and performing voluntary activities including research on natural
phenomena such as typhoons, torrential rains, earthquakes and volcanic eruptions. Working incooperation with the government, they are supplying expert technical knowledge to theCentral Disaster Management Council and a range of specialist investigative committees.

As for the mass-media, NHK (Nippon Hoso Kyokai/Japan Broadcasting Corporation) and thecommercial TV stations broadcast subtitles for news-flashes, information about earthquakes,
tsunami and meteorological disasters, and volcanic eruption warnings. They also broadcast
special disaster features as appropriate, and make a concerted effort to raise awareness about
disaster risk reduction. At the local community level, fire-fighting and flood protection groups
have always been active. Members of volunteer fire-fighting groups carrying out fire-fighting
activities usually have full-time jobs, and spring in to action when fires break out, motivated by
the desire to protect their homes. In recent years, these groups have been facing a number ofproblems such as dwindling and ageing membership, and an increase in the proportion ofmembers who have full-time jobs.

All over Japan, initiatives aimed at “creating disaster-proof living zones” in the private-sector,
spearheaded by companies, citizens and NPOs working in cooperation. A good example of this41 | P a g ekind of collaboration between the private and public sector, including local public bodies, wasthe Local Council for Countermeasures Regarding Displaced Residents in the Vicinity of Tokyo
Station and Yuraku-cho Station.

2.3.10Volunteerism in Disaster Risk Reduction

There has been an increase in the number of voluntary disaster risk reduction organizations,
including women’s and young people’s groups, carrying out various disaster risk reduction
activities on a regular basis.
Since the Great Hanshin-Awaji Earthquake (1995 Kobe Earthquake), the importance ofvoluntary activities in disaster risk reduction has become widely recognized, and events
revolving around disaster risk reduction and volunteers are now held annually on January 17,
which has been designated Disaster Management and Volunteer Day, and over Disaster
Management and Volunteer Week, which runs from January 15 to 21.
The Disaster Countermeasures Basic Act explicitly states that national and local public bodies
must endeavor to provide an environment conducive to the performance of voluntary disasterrisk reduction activities.
Although volunteers also turn out in large numbers in the event of an actual disaster, muchremains to be done in terms of creating conditions conducive to the effective utilization ofvoluntary activities. Depending on the situation in the area, this issue is being addressed byeither making sure the community is already aware of the existence and running of volunteer
centers, or by setting up and running new volunteer centers based around Community-Based
Organizations (COBs), to aid the absorption of volunteers from outside the local area, and tocoordinate their activities.
The efforts of disaster risk reduction volunteers are important when things are normal as wellas in times of disaster.

2.3.11

International Emergency Response

Japan Disaster Relief Team (JDR)
In case of large-scale disaster strikes in any part of the earth, JDR will carried out theiremergency relief assistance upon the request of the disaster-affected country through the
Ministry of Foreign Affairs of Japan. The JICA based Disaster Relief Team will operate within
the framework of its Disaster Relief Program.
42 | P a g e

To maintain the rapid and reliable needed relief supplies in bulk amount, JICA must reserve
large stocks of supplies, also have to procure appropriately stockpiled in advance and locate
closest possible place near to disaster affected areas. Accordingly, JICA possessed warehouses infour locations worldwide, Germany (Frankfurt), Singapore, the United States (Miami) andSouth Africa (Johannesburg). Eight priority goods are stockpiled at these four locations—tents,
sleeping pads, plastic sheeting (tarpaulins), blankets, portable water containers (plastic jerrycans), water tanks, water purifiers and electric generators. In cases where other types ofsupplies are required, JICA takes emergency action, including procurement in affected orneighboring countries. When requested, emergency medical supplies are procured from theUnited Nations Children's Fund (UNICEF) Supply Division in Denmark or the International
Dispensary Association (IDA) in Netherlands and shipped to affected countries.
There are four types of JDR teams as shown in figure 22. They are dispatched as appropriate.

Figure 22. Structure of the JDR

2.3.12
1.

Disaster Assessments

Hazard Mapping/Assessment

Japan has carried out hazard mapping with regard to tsunamis, tidal waves, flooding, volcanic
eruptions and earthquakes. Progress has also been made in the development of dynamic flood

43 | P a g ehazard maps which predict how the flooding will spread over time. The scale of these maps
varies from 1/2,500 to 1/25,000 according to purpose.
Many hazard maps have been drafted by municipalities’ bylaw: the Cabinet Office, the Ministryof Agriculture, Forestry and Fisheries of Japan, the Fisheries Agency, the Ministry of Land,
Infrastructure and Transport and other agencies have drawn up manuals on the subject. Manyof these maps have been made available to the general public on the internet and elsewhere.
Several examples of hazard maps are attached as annex 5.

2.

Vulnerability and Capacity Assessments
 Assessment of vulnerability:
The Central Disaster Management Council and local governments have anticipated thedamage that would be caused in the event of a major earthquake, and have assessedvulnerability by, among others, evaluating the earthquake resistance of buildings andinfrastructure in as well as by appraising the awareness of community members with regard
to disaster risk reduction.
 Assessment of disaster-management capacity:
The Fire and Disaster Management Agency has drawn up a procedure enabling local publicbodies to make an objective assessment of their own disaster risk reduction and crisismanagement systems. Assessment is carried out using results based on replies to roughly
800 questions.
Department responsible: Disaster Management Division, Fire and Disaster Management
Agency, Ministry of Public Management, Home Affairs, Posts and Telecommunications.
 Self-evaluation Method for Disaster Prevention:
The Cabinet Office provides with an efficient methodology to self-evaluate and moreoverenhance community-base performance to collect information, foresee probable disaster andensure quick evacuation. Currently, two evaluation methods/systems for sediment disasteras well as flood are available on Web page.
Department responsible: Director for Disaster Preparedness, Cabinet Office for Disaster
Management.

3. Risk Monitoring and Risk Mapping

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Provision for monitoring and hazard mapping and keeping the public informed regarding
disaster countermeasures is included in the country’s basic disaster-risk reduction plan. The
institutions responsible are relevant government agencies and local governments.

4. Disaster Impact Assessment and Damage & loss Assessment
Although Japan’s central government did not carry out this kind of analysis regarding all
disasters, the competent administrative bodies assess disaster damage with regard to rivers,
roads, forestry and fisheries facilities, educational facilities, health and welfare facilities andother public facilities in order to expedite their swift recovery. The stricken area is subjected
to disaster damage assessment from the viewpoint of providing state aid for the recovery
operation.

In addition to this, loss assessment is carried out by private-sector think-tanks and local
government bodies. The damage caused by the Great Hanshin-Awaji Earthquake (1995 Kobe
Earthqauke), for example, was estimated (by Hyogo Prefectural Government) at
approximately 10 trillion yen. In the case of the 2003 Tokachioki Earthquake, damage wasestimated (by the Hokkaido Prefectural Government) at approximately 25.4 billion yen.
These results have been published and are available for use.
For the purpose of on
inheriting the experiences and knowledge precisely, increasing disaster management
consciousness and being useful for disaster management after this on past large disasters,
Organization of Central Disaster Management Council established Organization for theTechnical Investigation on Disaster Lessons (October 2003). The organization systematicallypigeonholes information of the state of the damage, response of authorities, inferences on
people living condition and socio-economic impacts.

2.4

Early Warning Systems

All of Japan’s national territory was covered by early warning systems for storms, blizzards,
torrential rains, heavy snow, landslides of various kinds, tsunamis, tidal waves, inundation andfloods, the Ministry of Land, Infrastructure and Transport, the Japan Meteorological Agency
and local government bodies being the main institutions involved. Areas deemed to be atparticularly high risk of earthquake or volcanic eruptions are also covered by specificcountermeasures.
The lesson learned from public reaction to Early Warnings is that evacuation is too slow as per
the JMA presented. Another fact that residents of stricken areas who had previously seen theflood hazard map started their evacuating activities about an hour earlier than residents who
45 | P a g e

had not seen the map. Besides raising individual awareness, more effort needs to be made by
those issuing early warnings such as improving the reliability of meteorological warnings.
A system has also been developed whereby the size of an earthquake and its epicenter can be
estimated instantly from its preliminary tremors (or “P wave”), enabling alerts to be sent out,mere seconds after the P-wave arrives, to local governments and fire-fighting headquarters allover Japan. This system has been operating on a trial basis since February 2004.

Japan Meteorological Agency

2.4.1

JMA is semi-autonomous agency under the purview of the MLIT. Besides, function as central
weather service agency of Japan, the agency is responsible to provide information such asadvisories, warnings and other weather related information and established comprehensive
surveillance and awareness mechanism with regard to hydro-metrological hazards and seismic
hazards like earthquake, tsunami and volcano hazards. Regarding flood forecast DirectorGeneral of Japan Meteorological Agency (JMA) in the event of the imminence of a flood orstorm surge due to typhoons, informs to the Director-General of MLIT and the prefectural
governors about the present state. Figure 23 is showing the roles and responsibilities of JMA
while figure 24 showing the framework of forecasting operations. The organization structure of
JMA is shown in figure 25.
DM HQs(Prime Minister)Issue Advisories/warnings/other weather
informations

Framework of forecasting
operations

Supervise/instruct

Prefectures

JMA

National Forecast Center

Supervise/instruct

Supervise/instructions
Municipalities
Advice/Evacuation

Public(citizens)

Mass
Media

Supervise/instructions
Broadcast

Roles & Responsibilities of JMA
Figure23. Roles & responsibilities of JMA

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Regional Forecast Centers (11)Local meteorological office (56)Figure24. Framework of operations of JMA

Figure 25. Organization structure of JMA

1. Primary Responsibilities of RHQ
 To direct local meteorological offices, aviation weather service center and aviation
weather stations
 To serve as the regional meteorological center for six prefectures.
 To serve as the RHQ for local meteorological offices.
 To provide backup operations for the JMA headquarters in case of its loss offunctions (e.g., due to Tokyo inland earthquake).

2. Early Warning dissemination mechanism of JMA
As per the BCMA JMA is the mandated agency for EW dissemination in Japan. Therefore
they develop their EW mechanism with all the relevant stakeholder agencies (as shown infigure 26 & 27).

47 | P a g e

Figure 26. Mechanism of disseminating weather information by JMA

Figure 27. Last mile dissemination of weather information by JMA

Following examples will further elaborate the impact of EW dissemination mechanism of Japan
Example 1: Usuzan Volcanic Eruption (March 2000)
The seismic activity which began on the morning of March 27 became gradually more
pronounced, and on March 29, the Coordinating Committee for the Prediction of Volcanic
Eruptions deemed the possibility of an imminent eruption to be high. Thus notified, the Japan48 | P a g e

Meteorological Agency issued an emergency volcanic alert. In response to this, the relevant
local government bodies issued evacuation instructions, and the local residents (numbering up
to 15,815) were swiftly evacuated before the eruption took place. Thanks to this, and to theestablishment of the Mount Usu On-Site Liaison Association (renamed the Mount Usu OnSite Disaster Management Headquarters after the eruption) comprised of the central and local
governments, plus 41 other organizations, and the first such body to be established in Japan
before a volcanic eruption sound disaster risk-reduction countermeasures were adopted, andlarge-scale loss of life was averted.

Example 2: Torrential Rains in Southwest Kochi Prefecture (September 2001)
On September 6, record-breaking rains fell in Tosashimizu, Sukumo, Otsuki Mihara and otherparts of southwest Kochi prefecture. However, an alert was issued through the early
announcement of a heavy rain warning based on a forecast by the Japan Meteorological
Agency. In the course of the warning announcements, disaster alerts specific to the relevant
municipalities were also issued with regard to localities where the danger of landslide disasters
was deemed to be particularly high, judging from the current rainfall status and forecast.
Consequently, the local residents voluntary completed their evacuation in good time, andalthough mountain-area ground collapses and debris flow occurred in over 1,000 locations in
Kochi prefecture, a damage to human lives was averted.

For Sediment related hazards and revering flood the Director-General of JMA jointly issue theEW with MLIT Regional Bureaus. For a class A river the prefectural governors with handle the,water level or discharge if the possibility of flooding is deemed high orWater level or discharge, or the flood hazard area and the flood water depth if flooding
has already occurred.

Prefectural governors communicate the information received from both JMA and MLIT as
mention above and deploying flood protection managers, collect analysis of situation ,coordinate
response agencies ,sharing information for DIS disaster information system of cabinet office andcooperate with cabinet secretariat and relevant ministries and agencies as shown in figure 28.

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Figure 28. Flood warning Information Dissemination by JMA, Jointly with MLIT

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NHK – Japan Broadcasting Company

2.4.2

As one of the public corporations designated for disaster management under the Disaster
Countermeasure Basic Act, NHK plays the key role in disaster broadcasting and emergency
warning. NHK has dedicated vast resources for emergency response. Also they developed
effective coordination mechanism with other stakeholder agencies, mainly with the JMA. If alarge-scale earthquake occurs, that information automatically redirected to NHK within few
seconds. Moreover, NHK has installed their seismic meters in 73 different locations
countrywide. This enables to issue alert & early warning, provide necessary information
regarding the magnitude and epicenter of the earthquake as well as tsunami information
nationwide. Emergency Warning System (EWS) utilized in JMA is only if special emergency
cases such as large-scale tsunami (as shown in figure 29) and earthquake warnings based on therequest of governors and mayors. NHK owned 4 TV channels and 3 radio channels, to alert as
many people as possible they can switches to television and radios automatically. Since 1985
they broadcast 18 EWS alert for tsunami warnings, while they held transmission in every
month and emergency drills every day.

Figure 29. NHK Tsunami warning broadcasting51 | P a g e

To broadcast live telecast from site NHK used their own 14 helicopters which are equipped withnecessary devices for live broadcasting and stationed at 12 locations. Also 460 remote controlledcameras installed countrywide.
In addition to that NHK launched their official web-page which provides disaster and weather
information online. (As shown in figure 30)

Figure 30. NHK official web-page live volcano eruption broadcasting

2.5

Emergency Response Mechanism at each level

As per the DCBA of Japan entire disaster management framework is divided in to three levels;
national, prefectural and municipal levels. Therefore the emergency response phase in Japan is
managed at each level. It is the mandated responsibility of municipalities to carry out
emergency response activates during emergencies, such as firefighting, search & rescue,
ambulance service within its territory whereas prefectural governments are authorized torender assistance. National government and its relevant bodies oversee the whole coordination
process during emergency situations and provide local governments with necessary assistanceand guidance for the better response. While local governments provide the national
government agency with the loss and damage information (As shown in figure 31).

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If the disaster event exceeded its coping capacity of the local government national government
involve with its own disaster response mechanisms. On-site emergency headquarters oforganizations such as electric power corporations, Japan Railway Company etc. were
established Depending on the scale of the disaster scenario. The national government collects
relevant disaster information at the Cabinet Information Center regularly at the time of a largescale disaster. The director-generals of the designated emergency response team of therespective ministries and agencies gathers immediately at the Crisis Management Centerestablished in the Prime Minister’s Office to analyze the disaster situation, and advised to thePrime Minister. If necessary senior officials of the relevant stakeholder ministries and agencies
gathered to discuss basic response policies needed to implement. According to the severity ofdamage, the National government may establish a Major Disaster Management Headquarters
headed by the Minister of State for Disaster Management or an Extreme Disaster Management
Headquarters headed by the Prime Minister. Further, a government investigation team headedby the Minister of State for Disaster Management may be dispatched to the disaster affected
area, or an on-site disaster management headquarters will be established. Disaster response
mechanism of cabinet office is shown in figure 32.

Figure 31. Disaster Response Mechanism in Japan

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Disaster response mechanisum of cabinet officeCabinetofficeDisaster information collection
and transmission
 24-hour system
 Simultaneous assembly call to thedesignated emergency response
teams, ministries and agencies

Collect information (disaster situation,
response) Collection & completion of informationfrom government and public organizations
 Information distribution & sharing withingovernment organizations
 Dispatch of initial emergency team

PM officeLarge Scale
Disasters

Assemble
emergency
response
teams

No immediateneed toEstablishedheadquarters

Analysis of damage situation, coordination of emergency response
measuresCollect & analyze information regarding damage and response
operations (cooperate with cabinet secretariat and relevant ministries
and agencies
Comprehensive Damage information:Disaster information system (DIS) (Cabinet office)
Visual information (helicopters, etc.)
Initial information from related ministries, agencies andpublic organizations

Analysis of scale of damage
Need to established headquarters
Consultation by relevant cabinet members

Declaration of disaster Emergency and setting up Headquarters by
the extraordinary cabinet meeting decision on the counter-measurepolicies by the government, etc.

Information collection &emergency operations
coordination

Establishment of majordisaster management
headquarters

Chief: Minister of statedisaster Management
Location: cabinet officeSecretariat: cabinet officeInter ministerial meetings
Coordination of
emergency operation byeach ministry
Dispatched of government
investigation team
Administration of on-site
disaster management
officeRescue activity by emergency
fire response team (at GEJE,
Kesennuma, Miyagi)

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Establishment of extra ordinary disastermanagement headquarters
Chief:
Prime Minister
Location: Prime minister’s officeSecretariat: Prime minister’s office &cabinet office

Management of Headquarters
 Coordination of
emergency operations byeach ministry Dispatch of government
investigation team
 Administration of on-site
disaster management
headquarters etc.

Management of Headquarters
 Coordination of emergency
operations by each ministry Dispatch of government
investigation team
 Administration of on-site disastermanagement headquarters etc.

Emergency fire response teamheading to the affected areas(at GEJE, Kesennuma, Miyagi)

Support by fire crops using
heavy equipment (at IzuOshima,Typoon No.26)

Figure 32. Disaster Response Mechanism of the Cabinet officeRescue activity at Ontake
volcano eruption

2.6

National Level

2.6.1

Fire and Disaster Management Agency

Fire services started as an agency in the municipalities with functions closely with local
community and have the role and responsibility to ensure the safety and security of the generalpublic of Japan. FDMA is activate in wide range areas from emergency rescue to the handling of
hazardous materials, as well as fire prevention and fire fitting .FDMA will expand all effort tofull fill its responsibilities in enhancing the current municipality based fire and disasterprevention system that operates around regional fire defense headquarters and volunteers fire
crops, and with the cooperation of residents in local communities
Fire and Disaster Management Agency comprised of following divisions:•

General Affairs Division Fire
• Ambulance Service Division• Fire Prevention Division• Civil Protection and Disaster Management Department.

Role of the fire and disaster management agency
Safe and secure regional development with the cooperation with residents and national
response in time of need (The role of FDMA during disaster and pre-disaster periods is shownin figure 33)

Figure 33. The role of FDMA during disaster and pre-disaster periods

As per the Fire Defense Organization Law that the FDMA is responsible to conduct research,
formulates plans, etc, in order to strengthen the fire defense capabilities of municipalities. And
it provides municipalities by advice, guidance and recommendations regarding their fire service
operations and activities. However it does not have the authority to control such organizations
and its activities. Below are the main affairs under the Mandate of the FDMA:
55 | P a g e• Planning and formulating overall fire services system to respond an emergency• Preparing guidelines to strengthen the fire service facilities• Conducting research and development activities in the field of fire service
science and technology• Conducting Training for fire service personnel and volunteer fire corps• Advice, guidance and recommendations to improve prefectural and municipal
fire services• Requests for the needed support during an emergency for the better response• Planning, formulation ,coordination and implementing disaster prevention
activates granted by local governments

The FDMA is also functions as the Emergency Operation Center for local stakeholder fireresponse organizations and as well as the government coordination body during the large scaledisasters or an emergency.
Further, if the coping capacity of the local firefighting organization exceeded by the large-scalewide spread disasters, then elite emergency rescue teams known as, Emergency Fire Response
Teams (FFRT) will support them.
Also the commanding officer in charge of the municipal teams inspects and controls theiractivities. Also an officer in charge himself deployed with Command Support Group to disaster
affected areas using helicopters and other vehicles in order to gain a better understanding of thedisaster situation, and providing instructions and relevant command to local firefighting teams.
Since 2004 the Commissioner of the Fire and Disaster Management Agency has the authority tomobilize and control firefighting teams in the event of a large-scale disaster or an emergency.
The FDMA controls and manage, from obtaining real-time information of the disaster to
instructing Emergency Fire Response Teams to mobilize. As of 2004, 2800 Emergency Fire
Response Teams has been registered across the country covering about 15 % all fire brigades inJapan.
Roles & responsibilities of Emergency Response Fire Teams are as follows:•••

Firefighting Teams: control and extinguish fire to prevent the spread offlames during large-scale wide spread fire emergency.
Rescue Teams: Ensure the search and rescue missions in place for to save
lives of the disaster affected community.
Emergency Teams: Ensure the equipment made available and better
prepared for the response in an emergency.

56 | P a g e••Logistic Teams: Assist each team by providing logistic support inemergency.
Special Disaster Teams: for responding to chemical Hazards, including
poisonous substances, major toxic elements and chemical spills.
Special Equipment Teams: carrying special equipment for responding toemergencies those required by teams for rescues and also carrying water toremote areas in situation.
Air Squadrons: Firefighting activities conducted using fire fitting helicopters•

Marine Squadrons: Firefighting activities conducted using fire fitting boats••

Emergency Fire Response Teams was temporary established in 1995, after the Great HanshinAwaji Earthquake and institutionalized by the Fire Defense Organization Law and it was
officially amended in 2003. EFRT was officially established in 2004 under The Minister ofInternal Affairs and Communications. A basic plan of organization and facility arrangement
was prepared by brigading FDMA and EFRT. Communication mechanism of FDMA is shown infigure 34.

Figure 34. Communication mechanism of FDMA

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2.6.2

Ministry of Health, Labor and Welfare

Disaster relief and assistance policy including the urgent rescue and evacuation activities of the
Ministry are managed by the Social Welfare and War Victims’ Relief Bureau through thepermanent Disaster Relief Contact-Coordination Council established under the purview of the
Ministry. The Council is responsible to operationalize disaster management plan of the
Ministry. The members of the Council as well as all other members of the Ministry whose
duties are related with disaster management, Therefore during non-emergency times they are
responsible to prepare guidelines for the Disaster Response Headquarter of the Ministry. andthey are responsible to made available of contact at the same time certain means of transport inorder to reach the Headquarter in case of emergency. The Disaster Response Headquarter is set
up only during large scale emergencies. They have to perform following functions.
Summarize information of the emergency as per the given format by the Ministry.
• Control and coordinate disaster response measures.
• Information sharing among the relevant divisions of the Ministry and with other relevant
stakeholder agencies.
• Heads of the Ministry should be informed about the situation such as loss & damage,
response activities and statistics.
•

If needed, the Ministry dispatches their officers to disaster affected areas to establish local
disaster response headquarters inside the Regional Bureau of Health, Labor and Welfare. The
Concept of Emergency Relief under Disaster Relief Act is shown in figure 35.

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Figure 35. Basic Concept of Emergency Relief under Disaster Relief Act

Ministry of Land, Infrastructure, Transport and Tourism

2.6.3

The MLIT provides disaster management policy at national level related to flood and sedimentdisasters. Also provides urban development plans which are help to develop disaster resilient
cities for both natural and man-made disasters. Disaster prevention center was established under
the purview of the ministry to conduct its disaster response activities in case of an emergency.
Functions of the Disaster Prevention Center are as following:

Mobilizing incident commanders, officials and relevant departmental
officers

Monitoring & Observations of meteorological information, data ,siteimages, etc. and distributedCollecting and sharing information (integrating damage assessment)

59 | P a g eExchanging relevant information with the ministry office, otherstakeholder ministries and agencies, local departments, etc.

Providing information to the general publicProviding necessary assistance to the regional ,local governments(the assistance given by the MILT in large-scale disasters is shown in figure 36)
The assistance given to the local governments by the MLIT In large-scale disasters:

Figure 36. Assistance given by MLIT for disaster response

MLIT is the mandated agency to mitigate the impact due to flood and sediment related disasters
caused by intense rainfall and typhoons. Flood forecast center of MLIT will be established inregional development bureaus to mitigate the impact of disasters. They monitor the distributionof flood and providing information to municipal governments, the mass media, etc. Flood forecast
centers are responsible to develop an advance flood prediction system by using flood risk
evaluation and climate change monitoring. To achieve that task following activities are
implemented:•

Collection of point data (e.g. rainfall amounts, water levels and water quality) Rainobservation by rain gauges and telemetry system – the data obtained by telemeters arerecorded in one designated place, for an instance regional bureau and a prefectural office,through connected network system. Then, they send information to each stakeholder
agencies to update the real-time flood prediction calculations.

•Collection of area data (rainfall amounts)
From the Radar, The information of 1-km grid resolution is updated every half an hour andavailable at the Internet. The radar data are calibrated by using the ground data.

60 | P a g e•Collection of image data.
CCTV Network of regional development bureaus under the Ministry of Land,
Infrastructure and Transport, have real-time access to 3,900 CCTV cameras and locatedalong the rivers and streams with the length of 12046 km (as of 2006). Those CCTV images
are used for developing flood control plans. Also river information systems developed byindividual regional development bureaus have been integrated into a national river
information system. Regional development bureaus can customize the system according totheir requirements.

2.6.4

Japan Coast Guard

Emergency preparedness and marine search and rescue are the major responsibility of JCG .they
conduct search and rescue operations once ship wreck occurs. The JCG raise awareness andeducate people about the basic principles of self rescue in a marine emergency. Also they makeeffort to respond promptly to save lives of the passengers and crow of the ship in a wreck. The
JCG comprise of various rescue deployments such as mobile boats for to save lives fromdrowning, rescue helicopters for air search and rescue, scuba diving teams, and emergency firstaid teams. they also working to improve the rescue and first-aid capabilities of their divers andemergency medical technicians. The JCG also works together with relevant stakeholder public
and private rescue organizations including police and fire departments to cover the areas ofJapanese coast. JCG was established 24 hours maritime accident reporting service which iscalled Global Maritime Distress and Safety System (GMDSS) for the purpose of quick response
to maritime accidents reported through 118 or by onboard phones.
Japan Coast Guard is functioning under the purview of MLIT of and their responsibilities asfollow: (organization structure of JCG is shown in figure 37)

1. Administration Department

Public relation, international relation, personnel management,
budget, etc.

2. Equipment & Technology
Department

Shipbuilding and construction of JCG's airplanes.

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3. Guard & Rescue
Department

Maintenance of public order, oil pollution response and Search andRescue4. Hydrographic andOceanographic Department

Hydrographic surveys, oceanographic observation and provision ofnavigational charts, publications and information that required
ensuring navigational safety.

5. Maritime Traffic Department

Implementation of navigation safety measures, and construction,
maintenance and operation of Aids to Navigation.

Figure 37. Organizational structure of JCG

Just after the Great East Japan Earthquake of 2011 JCG immediately dispatched their emergency
response teams and carried out search and rescue missions, surveillance and protect the areaadjoining” fukushima” nuclear power station, securing emergency transport route by ensuring
navigation safety, emergency transportation of goods need for field assistance, and they rescued
About 360 persons, recovered 302 dead bodies and towed 85 drifting vessels.

To respond for the large-scale oil spills, discharge of hazardous chemical and noxious substances
to coast due to maritime accidents and shipboard fires, JCG was mobilized fire-fighting ships
and maritime disaster prevention equipment around the country. Also for The effective
response JCG conducting simulating exercises with the participation of private-sector disasterprevention organizations in Japan and overseas. Therefore JCG makes effort to keep theirsystems in function by conducting drills for large-scale wide spread natural disaster and humaninduced disasters.
They also developed hazard maps of submarine volcanoes, volcanic islands, oil spills andsubmarine earthquakes by using regular observations, tectonics movements and bathometric
62 | P a g e

surveys. Also JCG provides “coastal area environmental protection information” throughInternet so that when an oil spills occur environmental impact assessment is done by JCG andpublished. Related damage can be minimized by using organizations involved in oil removal aswell as local municipalities and private-sector groups. (Locations of regional stations and theresources of JCG is shown in figure 38)

Figure 38. Regional station and resources of JCG

2.6.5

Self Defense Forces (SDF)

As per the definition of Article 83 of the Self-Defense Forces Law of 1954, SDF of Japan has the
responsibility to respond to the requests for assistance from prefectural governors to support infire fighting, disaster response, searches & rescue missions, reinforcement of embankments andin the event of an emergency. The SDF conducts a variety of disaster relief operations incollaboration with municipal governments also when disasters occurs in any part of thecountry, by engaging in the search and rescue of disaster victims or missing ships or aircraft,controlling floods, offering medical treatment, preventing epidemics, supplying water, andtransporting personnel and goods. In particular, over 100,000 SDF personnel were deployed at apeak time of relief operations of the large-scale earthquake and nuclear disaster that was
happen due to the Great East Japan Earthquake in March 2011.
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SDF can be deployed only upon the request by the prefectural governor. Therefore Municipal
mayors have to ask prefectural governors for such request to disaster relief deployment of SDF.
If the respective mayors unable to make such request to the prefectural governor because of hisabsence, then the Mayer can inform the Minister of Defense, or those designated by the
Minister. Under the circumstances of extreme urgency when there is no time to wait for arequest, the Minister of Defense or those designated by the Minister authorize an exceptional
deployment (discretionary dispatch). The Minister of Defense is authorized only to dispatch
SDF when an earthquake or nuclear threat alarm is issued, based on the request of Chief of the
Nuclear Disaster Countermeasures Headquarters and Chief of the Earthquake Disaster Warning
Headquarters (Prime Minister).

Prefectural Governments

2.7Japan prefectural governments are not directly involved in emergency response since theirgoverning body within its territorial boundaries. But they have the advising, directing, guiding
and coordinating authority over municipalities. Roles and Responsibilities of the jurisdiction ofprefectures as follows:••

Liaise and coordinate municipal fire services••

Advice, guide and recommend municipal fire services••

requests assistance and give directions during an emergency••

Conduct training and education programs for fire service personnel andvolunteers (at prefectural fire academies)••

Preparing of prefectural disaster mitigation plans and implementation ofcomprehensive disaster countermeasures.

To carry out their mandated responsibilities they established departments and divisions within
their prefecture. Although it might slightly vary from prefecture to prefecture due to the risk
and vulnerability due to potential Hazards. The following figure 39 describes the general
concept of prefecture government with disaster management departments/divisions
highlighted.

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Figure39. Organizational Structure of a Prefecture in Japan

Despite of prefectural governments in Japan has the authority to control police headquarters
Police staffs engage in disaster response activates upon the request of the mayor of affectedmunicipality. Following case study is conducted for the better understanding of disastermanagement mechanism in Japan, in particular, response, recovery, preparedness andmitigation activities carried out by the Hyogo Prefectural government during and after the
Grate Hanshin- Awaji earthquake.

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3.0 CASE STUDIES

3.1

Case study: Hyogo Prefecture Disaster Management Framework

Location: Honshu Island, Kansai region
Area: 8,393.34 km2
Population: 5, 58 million
Capital and the largest city: Kobe
Hyogo is the 12th largest prefecture of Japan. The prefecture consists of 41 municipalities and 8
districts.

Disaster: The Great Hanshin-Awaji Earthquake summary of the disaster is shown in figure 40

Summary of Damage

Figure 40. Damage due to The Grate Hanshin-Awaji Earthquake

As a result of comprehensive recovery program conducted by the government of Japan today
the city of Kobe is completely restored. It is one of the risk inclusive developed cities of Japan.
The earthquake also forced to reconsider basic components of DRR activities, building laws
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disaster management mechanism in both prefectural and municipal levels. Prefectural level
Disaster Management Planning Bureau and the Disaster Response Bureau were established in
2005. Considering the inconsistencies during disaster response operations by emergency
medical services in the Great Hanshin-Awaji earthquake, Hyogo Emergency Medical Center
was established for better response on future emergencies. The organization charts of theDisaster Management Bureau and Emergency Relief Headquarters which was temporary
established for large-scale emergencies are described in figure 41 & 42.

Figure 41. Structure of the Disaster Management Bureau of Hyogo Prefectural Government

Figure 42. Structure of Hyogo Prefecture Emergency Relief Headquarters

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3.1.1

Mechanism of Emergency Risk Management

1. Disaster Management Center of Hyogo Prefecture
Government was established in August 2000. It was
known as the first local government office dedicated todisaster management in Japan. The center is capable tosustain even if the lifelines are disrupted and it wasstrong enough to withstand earthquakes magnitude 7
on the Japanese intensity scale. The center consists of 7
floors. (shown in figure 43)

Figure 43. Hyogo DM Headquarters

2.

Emergency accommodation facility which can accommodate 77 families in case of disasters,also they had built three such facilities within 5minites walking distance and one within 30
minutes distance.

3. Emergency Management System(“PHOENIX”) was established with aim of improving theinitial disaster response mechanism, Phoenix Disaster Management System collects disaster
information from 334 terminals installed in all the disaster management agencies in theprefectural governments offices, district administration offices, local administrative organs,municipalities, fire headquarters, police headquarters, police stations, self-defense forces,
national government (Fire and Disaster Management Agency, etc.), lifeline providers, etc. In
addition earthquake information is received from the automated seismometers installed in theprefecture.

Main function of this system is: collection of observation data, analyze and prediction ofearthquake damage. Also for the collection of damage information, geographic information,
image information, and estimation of supply for the people affected.

Main broadcasting transmission network is based in prefectural government office and it links
with, district administration offices and other relevant units by a loop of dedicated digital line
using a fiber optic cable in large-scale network with a total length of 1400 km.

Finally, they introduced the internet service “Hyogo Net” in 2005, which provides the disaster
related information to the resident of the Hyogo prefecture (shown in figure 36). Further for
68 | P a g ethe benefit of foreigners resides in Hyogo prefecture provides information in English, Chinese,
Korean, Portuguese and Vietnamese languages.

Figure 44. Hyogo web services

4. Hyogo Satellite Communication Network consists of 166 satellite based stations installed
across the prefecture, which is used to collect and transmit information, alerts and early
warning massages.
5. Video Phone System has been set up for information exchange between prefectural andmunicipal disaster management headquarters during disasters.

6.

Helicopter Video Transmission system

As of 2006, there were 260 designated helipads across the prefecture. Three helicopters owned
by Hyogo prefecture and Kobe city are fitted with video transmission system and firefighting
tanks. Two additional helicopters can be called into service at any given time.
24-hour monitoring and quick response system is standby for anticipated potential emergencies.

3.1.2

Preparations for Potential Future Disasters

Regional Emergency Management Base is a facility which store rescue equipment and relief
supplies for victims. That facility operates to collect and distribute relief supplies, assemble
response teams and mobilize emergency relief workers. Currently, 5 regional emergency
management bases are under the purview of Hyogo Prefecture government. The largest among
them is Miki Earthquake Disaster Memorial Park and it occupied about 220 hectares.
Emergency response and relief items store at Miki REMB is shown in Table 6 and figure 45 is
showing Hyogo Prefectural REMBs.
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Table 6. Stored response and relief items in REMB

Figure 45. Hyogo prefecture regional emergency management bases
Stockpile warehouse (under the athletic
Stadium)

Miki Disaster Prevention Park70 | P a g e

3D full scale Earthquake Testing Facility

Wide area disaster Prevention center3.2

Municipal Level

Municipalities of Japan are mandated to carry out fire services such as fire fighting, rescue andambulance services within their administrative boundaries. However, for such activates neededfinancial allocations and resources, therefore to handle such problems they jointly performed
with other municipalities, some municipalities are doing so by establishing “municipal
corporations” or “area associations.” The institution assigned for handling the fire services
consist of fire departments, fire stations and volunteer fire corps. The main responsibilities ofsuch municipalities are as follows.
• To establish, manage and operate fire servicers.
• To carried out Fire prevention, fire fighting, search & rescue and ambulance services ,response to earthquake, storm and flood damage• Preparation of municipal disaster mitigation plans and implementation of comprehensive

disaster countermeasures.

(Municipal governments EW mechanism and the mode of communication is shown in figure 46)

Figure 46. EW mechanism and the mode of communication

But there are exceptions, for an instance all 23 municipality Fire services are handled by the
Tokyo prefecture. Also Higashi Kurume City and Inagi City fire service carryout the various
activities such as rescue from fire, traffic accidents, water accidents, natural disasters, CBRN
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accidents and terrorism caused by human induced disasters and transport community to safe
places.
Ambulance service as per the law enforced in 1963 the ambulance service was defined by anoperation of the fire service organizations. Prior to this, fire service organizations were
providing the ambulance service based on municipal ordinances, regulations, etc. theambulance service was started Yokohama City in 1933. This was later followed by Nagoya,Tokyo, Kanazawa and Wakayama.
In principle, the ambulance service in Japan transports the sick and injured personals to medical
institutions regardless of sickness or accident. While transporting necessary first-aid treatment
were given. In addition, qualified paramedics will be able to carried out a wider range of firstaid treatments such as defibrillation.
An ambulance composed of vehicle and no less than three emergency medical technicians(EMS personnel). In case of transport by air, a unit is composed of no less than two EMS
personnel per aircraft. The emergency transportation by helicopter is mainly carried out by
prefectures and “designated cities”, with their own fire fighting and disaster prevention
helicopters.
In 1977, the government established the concept of building emergency medical service centers
as tertiary emergency medical facilities in each region of the nation, serving a population of
about a million each. Simultaneously, approximately 6,000 medical facilities were reorganized
into three levels: primary, secondary and tertiary facilities.

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Kobe city Fire Department

3.2.1 Case Study – Kobe Fire Department
Overview of the Kobe Fire Department (As of 1 April 2016)
Kobe City profile
I. Surface area: 552.83 km2
II. Population: 1,542,458 people
III. The number of households: 685,639 households

Resources available in Kobe Fire Department(1) Organizations:Fire Department Head Quarters (1), Fire Stations (10), Fire Station Division (1),Fire Station Branches (18), First Aid Station (1)(2) Number of employees : 1,396 people (quorum)(3) Number of resources : such as fire engines (total: 232 units)
・ Number of fire engines: 133 units (Pumpers, Pumpers with foam, Aerial ladders,
Rescue tracks, Special disaster response vehicle, etc.)
・ Number of ambulance: 36 units
・ Number of other vehicles: 63 units (vehicles for inspection and public relations,transportation vehicles, etc.)
・ Fireboat: 1 unit
・ Aircraft (Helicopter): 2 units

Status of Voluntary Disaster Prevention Organizations (BOKOMI)
Already formed: 191 districts (all over the city & school districts)

Status of Volunteer Fire Corps(1)(2)

Organization: headquarters (10), Divisions (15), Sub-divisions (159)
Number of members: 4,000 (quorum)

Kobe Fire Department comprised of 24 hours Emergency Operation room and 119 Call center.
After they receive an emergency call they coordination and deployed the relevant response
teams near to the affected site. Once a call received automated system identifies and displays
caller’s data and exact location on the digital map. Overall following activities of dispatched
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teams take place under supervision and coordination of the Operation Room officer in charge.
In order to ensure that all incoming calls are counted there are 126 telephones utilized in thefacility. Further, 5 surveillance cameras were located to ensure the safety of critical places Kobe
City area, National Broadcasting Channel and JMA.

1.

Municipal level voluntary emergency response teams•

Voluntary Fire fighting Corps is organized by municipalities in Japan under thesupervision of fire departments and fire stations. But they are not professionals and they
engaged in fire fighting as secondary occupation, in cases of where the fire corps is calledout in emergencies, they must follow the orders of the chief of the fire department or firestation. Basically there is one fire crops in each municipality. However, there aremunicipalities that have established more than one corps (in most “designated cities”) .butthere are exceptions of not having established the corps are Osaka city, and some towns
and villages in Aichi Prefecture.

•

Voluntary flood fighting teams in Japan is known as “Suibo-dan” they play important rolein flood fighting activates. These teams are usually established within the municipalities
in the vicinity of rivers. The members of “Suibo-dan” normally engaged in different jobs
but they are also engage in patrolling, inspecting and levee protection works in close
coordination with river administrators and other relevant organizations during flood
situations. They still conduct patrols and inspection of levees, provisions for flood fighting
warehouses and for communication facilities, drills and other activities in preparation fora flood before the rainy periods and also before typhoon warnings. As of 2009 there wereabout 900 000 voluntary flood fighters all over Japan.

•

BOKOMI – BOKOMIs are community based & elementary school district based disaster
Preparedness voluntary teams. Based on the lessons learned from the Great East HanshinAwaji Earthquake, all the districts in Kobe city that of 191 districts had established
BOKOMIs. Before decided to establish BOKOMI there will be a discussion between
voluntary local associations, local government organizations and local fire departments.
The equipment and materials needed for the activities are provided by the local
government and storehouses established in local parks for emergencies. Public Schools inJapan used as evacuation centers during emergencies. In normal times BOKOMI conducts
various emergency drill programs such as on how to use the fire fitting equipment andmaterials (for ex. fire extinguishers, fire hydrants), rescue drills, evacuation drills,
information transmission drills, flood control drills and etc. In addition, BOKOMI also
conduct welfare activities such as lunch gatherings for the elderly people who live alone.

74 | P a g e

2.

Relationship between Levels
In order to maintain the chain of command of municipal fire servicers, law prescribes suchorganizations should operate and managed under the purview of municipalities. This means
such organizations would not controlled by the national or prefectural governments despite
the consideration of personnel management, organization, budget, or fire fighting activities
or other acts.
National government can only advise, guide or recommend prefectures and municipalities
but cannot control them. However, in case of large scale emergencies such as earthquakes,
typhoons, flood and fire disasters, national government can request prefectural andmunicipal governments to provide assistance.
If the disaster occurs within the jurisdiction of prefecture, the prefectural government canrequest the municipalities within their administrative boundaries to provide assistance. If thedisaster occurs outside of their jurisdiction, the Commissioner of the Fire and Disaster
Management Agency can make request to the relevant municipalities for assistance.
The municipalities can assist each other based on agreements. Even in cases where there areno such agreements, they are obliged to make efforts to assist each other.

3.2.2

1. Case Study – Disaster Medical Assistant Teams

Disaster Medical Assistance Teams are specialized and trained medical aid teams which operate
during large scale disasters. DMAT was established in 2005 based on the lessons learned on the
Great Hanshin Awaji Earthquake. The guidelines for the deployment of DMATs are based on
the results of the research conducted by the Ministry of Health Labor and Welfare (MHLW).
As per these guidelines, DMATs are defined as “mobile, trained medical teams that can be
rapidly deployed during the acute phase of a disaster (within 48 hours). “DMAT Team Member
Training Course” is conducted at the National Hospitals of Japan that is known as Disaster
Medical Center (an independent administrative agency) and commissioned as DMAT
75 | P a g e

personnel. DMAT member are specialized to render medical assistance and treatment in acute& during phases of disasters as well as transferring casualties to safe areas.

The role of each stakeholder institution as per the guideline as follows:1.

Prefectures: a. Non-emergency times: formulate operational plans, conclude agreementswith medical institutions, and provide training; b. Emergency times: Deploy DMATs andprovide necessary support for relief activities. The prefectures must assume the central
role.

2.

MHLW: a. Non-emergency times: produce operational guidelines, certify personnel,
promote education and training; and b. Emergency times: collect information; overall
coordination.

3.

DMAT-designated medical institution: a. Non-emergency times: prepare for deployment,
train personnel; and b. Emergency times: Dispatch DMATs on request.

4.

Emergency base hospitals, Japanese Red Cross Society, and the National Hospital
Organization: provide necessary support (collect information, provide contacts,
coordination, personnel, and materials)

Activation of DMAT is based on the agreement between prefectural governments, medical
establishments and DMATs. They are deployed only upon the request of government of disaster
affected prefecture in case of large scale disasters such as: an earthquake of Japanese seismic
intensity 5 occurring within any of the 23 wards of Tokyo; an earthquake of Japanese seismic
intensity of nearly 6 or greater occurring in any other area (outside of the 23 wards of Tokyo); atsunami alert is issued; an earthquake alert is issued for the Tokai region; or large-scale aircraft
crash occurs. MHLW is ensured overall coordination of relief activities collect, share
information and assist local government in decision-making. Coordination of MHLW andmechanism of DMAT operation is shown in figure 47.

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Figure 47. Mechanism of DMAT operation.

- Japan Medical Association Teams
The concept of JMAT had been building up since 2009 by a subcommittee of the Japan Medical
Association’s Committee on Emergency and Disaster Medicine. For the first time, JMAT cameinto action in March 2011, when the Great East Japan Earthquake occurred. Triage cards wereprepared by the Japan Medical Association for JMAT activities in the Great Eastern Japan
Earthquake. Different from triage tags used during the acute phase of a disaster, physicians
write their on-the-spot judgments down on these cards and give to patients in evacuation
shelters and other locations so that they can be connected later treatment and used by takeover
caregivers. Also, the checklists were prepared for each evacuation shelter to enable the easy
sharing of information when presiding at the joint conferences held locally every morning andevening, mainly at the local municipal medical associations. (operating system of JMAT isshown in figure 48)

77 | P a g e

Figure 48. Mechanism of JMAT activation

More detailed information and the organization of JMAT are as described below:

1.

Purpose• Is to provide medical assistance at hospitals and clinics in the disaster‐affected areas(and to provide the ongoing medical treatment that needed to be continued even
before the disaster occurred)• Is to provide medical treatment at evacuation sites and first‐aid centers2.

Supporting site, supporting medical association (general rule)
Iwate: Hokkaido, Tohoku (Akita), Tokyo, Kanto‐Koshinetsu and Kinki blocks (Osaka,
Wakayama) Miyagi: Tokyo, Kanto‐Koshinetsu, Kinki (Hyogo, Nara), and Chugoku/
Shikoku blocks Fukushima: Tokyo, Chubu, Kinki (Kyoto, Shiga) blocks Ibaraki: Kyushu
block 3. Team composition (example): Physician: 1; nurses: 2; coordination staff(driver): 1

4.

Necessary medical supplies and equipment:
Corresponding to the above tasks, including food and others

5.

Dispatching duration of the team:Approximately three to seven days (depending on discussion with supported sites andsupporting associations)

6.

Communication method with JMA: Mobile phone

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4.0 CONCLUTIONSBeing one of the most disaster prone countries in the world and also the frequently impacted bylarge scale wide spread natural and human induced disasters, Japan has the vast experience toprevent, response and recover effectively and efficiently .Natural disasters cannot be prevented
and only the impact of disasters can be mitigated. With their past experience of compromise withsuch catastrophic events they developed a comprehensive DRM framework by using the lesson
that they learned and knowledge that they gained. National government and the local
government of Japan treated the safety of Japanese people as their primary objective. Therefore
they implement all possible measures to achieve their objective by research and development on
DRM, preparedness at each level and in all sectors, developing emergency response mechanismand Early warning systems, continuous awareness programs and drills, building disaster memorial
museums, training facilities and conducting disaster commaration ceremonies, public & private
partnership in DRM and the comprehensive recover with the concept of “built back better”.
Formation on 3-layered national government system and administrative delimitation of thecountry and evolution of the disaster management system in Japan has been heavily influenced byunfavorable geographical position, as well as, meteorological, and topographical conditions. Also
various large-scale disasters have been driving the force of new changes and enhancements.
Although some basic elements evolve from previous systems, current disaster management ofJapan has been formed during last 50-60 years. Rapid development of the country during thisperiod enabled to allocate considerable investments on DRM and integrate latest technologicalachievements of the country for DRM.
DCBA reflects the importance of DM in Japan by leading prime minister himself as the inchargeof DM. Cabinet Office itself gives the relevant guidance and advice to the prefectural government
to prepare and maintain disaster management plans at each levels and in all sectors and to carryout DRM activates of their administrative boundaries as per their plan. Also Cabinet Officeadvices to the relevant stakeholder agencies to prepare their own operational DM plans as per
their role in disaster response. Also cabinet office promotes DM plans for public and privateorganizations for the safety and the continuity of services.
Rather than being managed by one central body disaster management system of Japan isdecentralized and growing trend of decentralization is being observed during recent years. As oneof the most prominent characteristic features of the system decentralization enables moregovernment agencies to be involved in disaster management bearing various responsibilities,
fosters development disaster coping capability of each body or region individually and together
enhance overall disaster management framework.
In turn, 3-layered hierarchy of the system fosters comprehensive supervision and management ofoverall system. It also allows tackling the each disaster and accident on relevant level and with79 | P a g e

relevant resources depending on its scale and implications. Activities at national, prefectural andmunicipal levels are taken in coordinated manner and supervised by the immediate higher level.
Such a hierarchical system itself distributes the responsibilities and it will ease the burden of eachinvolved body and enabling each of them to manage specific issues in with more effective andefficient manner. Integration of disaster management measures by specific bodies allows handlingspecific disaster risk management issues more effectively.
Japan has given the importance for emergency response by introducing various systems to
distinguish major, additional, specialized and voluntary response bodies and forces. Earlier they
assumed municipalities as the major bodies for holding the primary responsibility of ensuring andcarrying out quick response operations, later specialized bodies are trained for emergency medical
assistance DMAT and JMAT and specialized teams of several public corporations designated fordisaster management under the DCBA. Further, additional forces are introduced by national levelgovernment organizations such as FDMA, MLIT, and MHLW. Once, the coping capacity of amunicipal government exceed their limits. Then national level supervision and coordination
bodies such as MLIT, FDMA, and MHLW will carry out their own emergency response activities
during large-scale disasters.
JMA is the key body in prediction and forecasting of major natural hazards such as earthquake,tsunami, typhoon and volcano eruptions while MLIT is doing the forecasting on flood andsediment disasters .Therefore the cooperation between them is essential for municipalities andother disaster response organizations for better response. It must be noted that application ofnewest sophisticated technologies for disaster warning and communication by JMA had greatly
improved their accurate prediction capabilities. In addition, for the quick dissemination of EW forstate infrastructure, relevant stakeholder agencies and service agencies such as railway companies
and gas & electricity companies, NHK has established quick information sharing system with JMA
and other relevant bodies as well as response mechanism within their field of operation. National
Police and Self-Defense Forces are playing an important role during large-scale disaster.
Large-scale natural disasters in recent decades, such as, Isewan Typhoon, the Great HanshinAwaji Earthquake and the Grate East Earthquake have influenced currents disaster management
system in Japan. The system has undergone some organizational changes, new disaster response
forces formed (DMAT) and new disaster response mechanisms for an instance Phoenix System
and Emergency Medical Information System in Hyogo Prefecture has been introduced.
Establishment of temporary headquarters during large-scale disasters at all levels for disaster
response in Japan. Such headquarters serves effectively when mobilizing of forces, better
coordination of activities and maintain disaster information sharing. Therefore the potential oflarge-scale natural disaster recurring is high in Japan, Establishment of permanent bodies isnecessary to reduce impact of disasters.
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Massive numbers of voluntary response teams and organizations involved in disaster responsereflects the high level of dedication, social responsibility and disaster awareness of Japanese.
Therefore all phases of disaster management acting in collaboration with the permanent officials’
voluntary teams demonstrate their remarkable efforts and that will raise the psychological impact
to vulnerable community.
Disaster preparedness is highlighted by remembrance of past catastrophic events. Therefore
Japanese build memorial museums, education facilities, training centers using sophisticatedtechnology to increase the disaster awareness and preparedness among Japanese and international
community. They conduct drills in all levels and in all sectors frequently for effective response.
Japanese show their preparedness for large scale wide spread disasters by developing simulations
for each potential hazard such as earthquake, tsunami, sediment disaster and fire withcomprehensive potential damage and loss assessments. They built backup emergency operation
facilities, emergency supply stores and resource pools used for potential large scale disasters.
With lesson learned, Japanese understand the importance of resiliency of each sector for effective
recovery. Therefore they introduced the public private partnership in disaster risk management
and business continuity planning. That will help to continue the services without interruption.
Finally Japanese disaster management framework is more matured with their experience andlesson learned. After each catastrophic events they revisit all the related existing laws and plansby appointing technical advisory committees to fill any existing gap and introduced newlaws ,revised and add related chapters to the DM plans to counter future disasters.
Lesson learnt

The government of Japan, officials, stake holder agencies and the general public learned thelesson of being prepared for natural disasters.



Public, private & academia partnership in disaster risk Management was advocated by the
CDMC.



Volunteerism & CBDRM approaches were advocated by CDMC as well as Local
governments.



The importance of BCP & Recovery planning with BBB concept in public and private sector
disaster preparedness for resilient nation was advocated by the government of Japan.



Remembrance, commemorations and continuous disaster awareness will be able to raise
spirit of culture of safety among vulnerable communities.

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How I used the Knowledge that I gained from above Lessons


Based on my research findings I will make a presentation in front of DMC officials and
NDMCC (Major national level stake holder meeting held in once a month in Sri Lanka).

Advice to establish the provincial & municipal disaster Management setup which was
not functioning yet.

Advice the importance of BCP and recovery planning in disaster preparedness.

Advice the importance of volunteerism and private sector involvement in emergency
response.



Advice the importance of commemorations days and continuous awareness to achieve
the objective of the culture of safety among vulnerable communities in Sri Lanka.

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REFERENCESi.

Disaster Countermeasures Basic Act (No.223, November 15, 1961)

ii.

“BOKOMI” Guidebook. Published by Disaster Reduction Learning Center (DRLC), KOBE City Fire
Bureau (KCFB). 2015.

iii.
iv.

Disaster Management in Japan hand book. Published by Director General for Disaster Management,
Cabinet Office. 2015.
Available at: http://www.bousai.go.jp/1info/pdf/saigaipanf_e.pdfv.
vi.

National Disaster Risk Profile of Japan. National Institute of Disaster Management (NIDM)
Available at: http://nidm.gov.in/easindia2014/err/pdf/country_profile/Japan.pdf

vii.

Presentation/lecture materials by Cabinet Office, JICA, IRP, JMA, Kobe Fire Department, Hyogo
Disaster Prefecture Center, Miki Earthquake Disaster Memorial Park, Hyogo police station, ADRC
conference room-BCP, DM planning, Risk mapping & Private sector DRR.

viii.
ix.

Defense of Japan 2011. Part III: Measures for Defense of Japan
Chapter 1 Operations of Self-Defense Forces for Defense of Japan and Responses toDiverse Situations. Ministry of Defense Publication. 2011.
Available at: http://www.mod.go.jp/e/publ/w_paper/pdf/2011/09_Part3_Chapter1.pdf

x.
xi.

xii.
xiii.
xiv.
xv.

Disaster Management in Hyogo Prefecture. Working towards disaster reduction based on experienceand expertise. Brochure planned and edited by Disaster Prevention Policy Planning Division,
Disaster Prevention Policy Planning Bureau, Hyogo Policy Planning and Civil Affairs Department.
Hyogo Prefecture Government.
Available at: http://www.drlc.jp/english/wp-content/uploads/english11.pdf

xvi.

Emergency Disaster Relief by JICA. Official web-page of the JICA.
Available at: http://www.jica.go.jp/english/operations/schemes/emergency.html
Establishing Disaster Medical Assistance Teams in Japan. Prehospital and Disaster Medicine Journal.
Vol. 24. No. 6. An Official Publication of the World Association for Disaster and Emergency
Medicine. Cambridge University Press. 2010.
Available at:
http://pdm.medicine.wisc.edu/Volume_24/issue_6/kondo.pdf
Fire Service Law. Published by International Fire Service Information Center. 2005.

xvii.

Fire Defense Organization Law. Published by International Fire Service Information Center. 2005.

xviii.

Fire and Disaster. Actual Condition and Prospects of Fire and Disaster Management
Administration. Fire and Disaster Management Agency.
HNS Tanker Owners Duty in Japan. Brochure published by Maritime Disaster Prevention Center.
Available at: www.mdpc.or.jp

xix.

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xx.

Japan Medical Association Team. Japan Medical Association Disaster Headquarters Status Report.
March 15. 2011. Available at: http://www.med.or.jp/english/report/JMAT.pdf

xxi.
xxii.

Dispatch of Japan Disaster Relief Team. Official web-page of the Ministry of Foreign Affairs ofJapan. Available at: http://www.mofa.go.jp/policy/emergency/assistance1.html

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LIST OF ANNEXURES
Annex 185 | P a g e

Annex 2
The Status of establishment of Central Disaster Management Committees

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Annex 3
In Japan disaster preparedness measures are taken based on the Disaster Countermeasures Basic
Act and various disaster management laws and regulations derived based on DMCA

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Basic Acts
1.
2.
3.
4.
5.
6.
7.

Disaster Countermeasures Basic Act (1961)
Acts on Prevention of Marine Pollution and Marine Disaster(1970)
Act on Disaster Prevention in Petroleum Industrial Complexes and other petroleum
Facilities(1975)
Acts on Special Measures for large-scale Earthquakes(1978)
Acts on Special Measures for Nuclear disasters(1999)
Acts on Special Measures for promotion of Tonankai and Nankai Earthquake Disaster
Management(2002)
Acts on Special Measures for Promotion of Disaster Management for Trench-type
Earthquakes in the Vicinity of the Japan and Chishima Trenches (2004)

Disaster Prevention and Preparedness
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.

Erosion Control Act(1870)
Building Standard Law(1950)
Forest Act(1951)
Act on Temporary Measures for Disaster Prevention and Development of Special Land
Areas(1952)
Meteorological Services Act(1952)
Seashore Act(1956)
Landslide Prevention Act(1958)
Act on Special Measures for Disaster Prevention in Typhoon-prone Areas(1958)
Act on Special Measures for Heavy Snowfall Areas(1962)
River Act(1964)
Act on Prevention of Steep Slope Collapse Disaster(1969)
Act on Special Measures for Active Volcanoes(1973)
Act on Special Financial Measures for Urgent Earthquakes Countermeasures Projects inareas for intensified Measures(1973)
Act on Special Measures for Earthquake Countermeasures(1995)
Act on Promotion of Earthquake-proof retrofit of building(1995)
Act on Promotion of Disaster resilience improvement of densely inhabited areas(1997)
Act on Promotion of Sediment Disaster Countermeasures for sediment disaster prone
areas(2000)
Specified Urban River Inundation Countermeasures Act(2003)

Disaster Recovery and Reconstraction,and Financial Measures
1.
2.
3.

Forest National Insurance Act (1937)
Agriculture Disaster Compensation Act(1947)
Housing Loan Corporation Act(1950)

88 | P a g e

4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.

Act on Interim Measures for Subsidizing Recovery Projects for Agriculture, Forestry and
Fisheries Facilities Damaged Due to Disasters(1950)
Small-Medium Business Credit Insurance Act(1950)
Act on National Treasury Share of Expenses for Recovery Projects for Public Civil
Engineering Facilities Damaged Due to Disasters(1951)
Public Housing Act(1951)
Fishing Boat Damage Compensation Act(1952)
Agriculture, Forestry and Fisheries Finance Cooperation Act(1952)
Railway improvement Act(1953)
Act on National Treasury Share of Expenses for Recovery of Public School Facilities
Damaged Due to Disasters(1953)
Act on Interim Measures for Financing Famers, Woodsmen and Fishermen Sufferingfrom Natural Disasters(1955)
Airport Improvement Act(1956)
Small-Scale Business Equipment Installation Financial Support Act(1956)
Act on Special Financial Support to Deal with Extremely Severe Disasters(1962)
Fisheries Disaster Compensation Act(1964)
Act on Earthquake Insurance (1966)
Act on Special Financial Measures for Group Relocation Promotion Projects for Disaster
Mitigation(1972)
Act on Payment of Solatia for Disasters(1973)
Act on Special Measures for Reconstruction of Disaster-Stricken Urban Areas (1995)
Act on Special Measures for Reconstruction of Jointly Owned Buildings in disasterStricken Areas(1995)
Act on Special Measures for Prevention of Rights and Profits of the Victims of Specified
Disasters(1996)
Act on Support for Livelihood Recovery of Disaster Victims(1998)

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Disaster Management Budget allocations by Year (1962-2015)

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Annex 4

Annex 5
Developed Risk Maps
1. Flood Hazard Map –Tenpaku River- Tentative Hazard Map of Mt.Fuji

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2. Estimated Distribution of Seismic Intensity of The Tohnankai and Nankai Earthquakes–-

Probable Source
RegionEstimated Height of Tsunami at high tide –The Tohnankai and Nankai Earthquakes

Probable Source
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Ogasawara