Maritime
DisasterPrevention
Center

事件は会議室でも起こっている“Incident also occurs in the conference room”～ＩＣＳの構築に向けて～“ Needs for Incident Command Ｓｙｓｔｅｍ””

独立行政法人海上災害防止センター

防災部長 萩原貴浩
Takahiro HAGIHARA
Director, Disaster Prevention Department,
Maritime Disaster Prevention CenterMaritime
DisasterPrevention
Center目 次contents

 海上災害防止センターの概要

Out line of Maritime Disaster Prevention Center 東日本大震災における海上災害への対応
Response to Maritime Disaster on ３．１１ Catastrophe 事故の管理と問題の管理
Incident management & Issues management
 事件は会議室でも起こっている
Incident also occurs in the conference room
 事故対応組織のための指揮運用システム
Ｉｎｃｉｄｅｎｔ Ｃｏｍｍａｎｄ Ｓｙｓｔｅｍ 結び～非常事態への対応はスポーツと同じ～
Ｃｏｎｃｌｕｓｉｏｎ～Incident management is the same as Sports～

Maritime
DisasterPrevention
CenterRoles of MDPC

Not-for-profit, public/private Oil & HNS spill responseorganization designed to make a “best effort” response tomajor maritime disaster in certain Japan coastal water.
Implementation of removal of Oil & HNS and Fire-fighting
operations at sea.
Basically, MDPC contracts with the Polluter.（=ＲｅｓｐｏｓｉｂｌｅＰａｒｔｙ）
 Stockpiling of Equipments and materials for Oil & HNS
spill incidents.
Preservation of qualified personnel engaged in Oil & HNS
spill response.
Implementation of training and exercise for fire-fighting
and Oil & HNS spill response.
Research and study of equipments and techniques for firefighting and Oil & HNS spill response.

Maritime
DisasterPrevention
CenterMDPC has Two faces

Basically, MDPC is a Private
Company Contract with S/FOwner.

Direction to MDPC by JCG
Commandant.
Especially, MDPC changes
into a public company.

【Ship/Facility Owner】

In case that there is an urgent need to take measures, JCG
should direct MDPC to take measures for responding.

Maritime
DisasterPrevention
Center

Outline of MDPC’s Response System Independence management→MDPC don’t receive government’s management expense.
 Reasonable System→MDPC contract with many Sub-Contractors.
→MDPC prepare many Equipment and materials for response.
→S.C has many kinds of work boat, tug boat, worker and others.
Relationship between MDPC and Sub-Contractors.
→MDPC has contracted with 160 Sub-Contractors.
→Sub-Contractor’s main business are tugboat, port service, agent etc,.
Training, Education & Pre-planningManagement Expense for equipments
Dispatch to the site with MDPCＭ.Ｄ.Ｐ.Ｃ.

Watch Keeping for 24h,365 days
Offer Tug Boat, Worker etc,.

Sub-Contractors

Maritime
DisasterPrevention
CenterResponse Policy for Maritime DisasterTime Line

SafetyActivities
Firefighting
Activities

RemovalActivities

１st Stage

２nd Stage

Full dress

FinalSampling

Continuous
DetectEvaluation

Simulation andBoundaryOn Fire

Fire fighting

Evaluation

Analysis/ Tactics

Possibility Fire
Protection
Confirm Safety

Fire protection

Dilute/ Water Splay

Dilute/ Water Splay
Prepare Recovery

Gelling/Recovery
Evaluation【Difference between oil and HNS spill】
MDPC’s responders have conviction that is compound fromthree factors. HNS responder are required three factor’s
knowledge and technique by the Law/ Regulation.

Maritime
DisasterPrevention
Center

MDPC’s Stockpile Basefor Oil & HNS Spill

稚内

Oil Recovery System

室蘭

Oil Booms, Absorbent and Dispersant

函館

HNS PPE, Materials, Equipments

むつ小川原

Oil & HNS Response Experts

秋田船川

Total ４４ Bases

新潟(including ２９HNS bases)
神戸

姫路

水島
今治

鹿児島

松山

大分

喜入

仙台

小名浜

福井
川崎
四日市/名古屋
堺

岩国

徳山下松

宇部

関門

北九州

上五島

串木野

久慈伏木富山

佐世保

金武中城

長崎

門司

苫小牧

横浜

伊良湖 清水 横須賀
和歌山

尾鷲

鹿島
千葉北
千葉南

Maritime
DisasterPrevention
CenterLarge Experience in responses

MDPC was established as an authorized corporation in １９７６.
In ２００３, Reformed as an independent administrative agency
and took over all duties of the authorized corporation.
The number of MDPC’s response are “１５６” since １９７６.

Oil Spill from ship

Oil Spill from Facilities

Maritime
DisasterPrevention
Center東日本大震災を起因としたコンビナート火災と流出油事故 3.11Catastrophe
LPG Tank Firefighting & Oil spill Response

沸騰液膨張蒸気爆発
Boiling Liquid Expanding Vapor Explosion：BLEVEＭＤＰＣ Response

ＭＤＰＣ’s Fire Fighting Boats【提供：共同通信社】【Photo by MDPC】【Photo by MDPC】

Maritime
DisasterPrevention
CenterCatastrophe
LPG Tank Firefighting（11 March）
thBefore Firefighting“After Firefighting”Purpose: Exposures Protection ＆ Confinement【Photo by MDPC】

Maritime
DisasterPrevention
CenterCatastrophe
LPG Tank Firefighting（12 March）
thMDPC Firefighting Boat
【Photo acquired from Internet】

ゾーニング・マップ

Recovery & Cleanup of Asphalt at Chiba port in Tokyo Bay
N-4

N-5

N-3

N-7

N-6

N-1

N-8
N-13
N-2

Zoning map

N-9
N-12

N-10

N-14

N-11
N-15

N-17

N-16
C-1

C-13

C-12

C-11

YOKOHAMA

C-2

C-10
C-9
C-14

C-8

C-3

C-7
C-6

C-4
C-5

C-15

C-16
C-19

C-20
C-21
C-22

YOKOSUKA
S-20

S-24

S-21

S-19

S-23
S-22

C-24

S-4
S-3

C-25

S-2

S-7
S-8

コスモ石油 S-18
千葉製油所

C-23

S-5

S-6

S-9

S-1

S-10

S-11
S-12
S-17

S-13

S-14
S-15

S-16

C-17
C-18

Spilled Oil at early stage in CHIBA Port

Difficult toclean up【Photo by MDPC】【Photo by MDPC】【Photo by MDPC】【Photo by MDPC】

Clean up operation in SENDAI Port
Zoning Map

Ｓ－９
護 岸

STEP1 ×
ガス局

Ｓ－７
Ｓ－５

STEP4 ○
全農

Ｓ－４

Ｓー８

STEP4 ○Ｓ－３

SENDAI/SHIOGAMA
PORTSTEP3 ○STEP2○STEP4 ○

【Photo by MDPC】

High pressure washer【Photo by MDPC】

Oil snare【Photo by MDPC】【Photo by MDPC】

Maritime
DisasterPrevention
Center

事故対応組織の指揮運用～“事故”と“問題”の管理～“Issues Management & Incident Management”“問題”の管理
Issues Management“事故原因は？”人体・漁業への影響は？“今後どのような対応を実施するのか？”

運用/計画/支援/総務
Operations/Plan/Logi/Fina・Admin
第３段階
Tier3

第２段階
Tier2
第１段階
Tier1

要求

Incident Management
危険範囲の設定は？
具体的な防除活動は？油処理剤は？何を守って･･･何を犠牲にするのか？

IC/Command Staff

支援“事故”の管理

意志決定

中央政府/地方自治体/警察/消防等＆民間事業者
で「組織構造・任務・名称はバラバラ！」

Maritime
DisasterPrevention
Center“問題の管理”という概念の範囲
Range of issues management陸上火災と海洋汚染の比較
Compare Land Fire with Marine Pollution

StationFire

Oilspill【Photo by KOEM】

Marine Pollution
海洋汚染
Marine Pollution

Land Fire

公共の水域PublicField

災害
Disaster

自社の敷地内（管轄内）で“災害は起こる“→”責任の範囲は限定される”と思いこんでいる。

Maritime
DisasterPrevention
CenterIncidents also occur in theconference room!

In the case of an oil spill by an oil company…
 Marine pollution incidents need local community consensus on response
strategies and tactics (Dispersant application, etc.)→ “We can’t do anything on site. Get the incident command office’s staff
on it!”
 Incidents in home territory easily understood, but when they impact a wider
area as in the case of marine pollution, it is difficult to respond to accident
information and claims.
→ “I don’t understand the place names or the technical terms! Someone elsetake the phone!” Why can’t we respond to real incidents the way we do in training?
→ “We could handle it on our own pier, but not somewhere unfamiliar. We
need permission to go into another company’s area! Get the incident
command office’s staff on it! ”
 Staff are accustomed to short drills onsite, but there are no exercises orsystems for commanding and controlling incident response teams over a long
period of time.

油回収スポットを事前に計画できていれば・・・残念！

Maritime
DisasterPrevention
CenterIncidents also occur in theconference room!

 Overly formulaic training can result in a chronic lack of preparedness

and overly rigid knowhow and skills.
 Personnel bring their apprehension with them as they assemble in theconference room
People’s apprehension increases as they interact andas a result it is unclear where responsibility lies.
Lack of preparedness turns apprehension into fear.
 In the incident command office :“We will decide on concrete measures once information from the scene
has been confirmed.”“Does anyone know about this?” “No one told me anything about that.” On site:“We’ll ask the incident command office’s staff for instructions before wedo anything.”“Who will take responsibility?”

Maritime
DisasterPrevention
CenterWhy is issue management lacking?

Factor 1: Strong cooperation frameworks have been established traditionallyand through legislation for incident management  Neighborhood watch
groups, cooperative disaster prevention organization, etc.
However, when it comes to issue management, response command andcoordination is the responsibility of the parties involved in the incident, andoutsiders (parties providing cooperation) are not expected to interfere.
∴ No concept of cooperating in issue management
Factor 2: In formulaic training, the scenario is that public institutions willtake responsibility. In fact, the primary responsibility lies with the party
causing the incident.
*Misunderstandings, illusions and false knowledge rampant.
*Japanese nature not to clarify where responsibility lies.
*Only in Japan does training focus on fighting spirit, visualappearance, strict timeframes and traditional ceremonies.

What the
現場の特性は誰がcharacteristics of the
熟知しているの？

A incident occurring is theworst thing that could happen(response starts here)

Trade off ?

sate?

Where isthe expert?

Who paysmoney?

The face doesn’t appear

How to minimize damage disaster mitigation

Disaster mitigation efforts
Assume that a incident will
occur  Establish common
understanding among relevant
parties during normal times

Realizing a “public-private chess game” (shared incident management
and issue management) will require standardizing rules and terminology,establishing an organizational structure, and eliminating
misunderstanding.

Maritime
DisasterPrevention
CenterStandardizing incident command andcoordination methods

 In the case of the Great East Japan Earthquake, the parties bearing primary
responsibility were also the victims. Victims should not be expected to engage
proactively in response activities.
 Resources such as equipment, materials, and personnel from unaffected areas
should be mobilized and a long-term response program set in place.
 Resources need to be used effectively.

 Responses to large-scale marine pollution incidents are the same.
 Governments, local authorities, related groups, volunteers and other NPOs, etc.,
involved in marine pollution incidents need to form a single incident commandorganization, sharing information and commanding and coordinating
operations to ensure that resources can be obtained and utilized effectively.
Approaches to issue management need to be standardized across the publicand private sector to realize “one voice”.

Maritime
DisasterPrevention
Center

受動的対応と能動的対応
REACTIVE / PROACTIVE
人的物的リソース
戦術戦術
人的物的リソース
事故
Incident

ResourcesTactics
受動的対応（初期の対応）
Reactive Response

戦略目的事故Incident

Objectives
Strategies
Tactics
Resources
能動的対応（先を読んで行動する）
Proactive Response

Maritime
DisasterPrevention
Center

Incident Command System (ICS) This is not a special organization, but rather a common template.
 It is a framework for unifying public-private approaches to command andcoordination by incident headquarters, etc., in cases of emergency or when there isan incident at a company
 In the case of large-scale or wide-area disasters, a cooperative arrangement is needed
so that local authorities, national government ministries and agencies, the local
community and other parties can work together.  The organizations andinstitutions involved need to work smoothly and cooperatively within a single
management system.
A unified response is not possible where different institutions bring in their own
traditional ways of working. If the private and public sectors prepare a joint approach
during normal conditions, they will be able to work together effectively whenincidents occur.  “Unity of efforts”
 With an ICS, organizations and institutions establish comprehensive organizational
functions and a structure geared to the particular emergency situation without
losing their respective legal rights.
 An extremely flexible approach is taken to establishing the organizational structure.

Maritime
DisasterPrevention
CenterNational Incident Management System (NIMS)

Component
Incident CommandSystemICS
Multiagency
Coordination SystemMACS

Outline・A standardized command system for times of emergency which has been usedby local authorities (firefighting, emergency medical services, rescues, etc.) for
more than 30 years
・Clear responsibilities, integrated communications system, integrated chain ofcommand, standardized terminology, standardized organizational format
・Efficient use of materials, equipment and personnel. Even in different places
and with different organizations, the equipment, materials, personnel andsupplies, etc., held by multiple organizations are incorporated into one standardorganization.
・Established where an emergency situation comes under the jurisdiction ofmultiple authorities and institutions, or where the emergency situation becomescomplex.
・Defines the operation, management and organizational structure ofmanagement support organizations established in times of emergency at federal,
regional (over multiple states and local governments) and local level.

*NIMS is a national template launched on 1 March 2004 by the US Department of Homeland Security.
*The ICS is the heart of the NIMS, and an active education program is in place for emergency response
personnel in state and local governments and companies.

Unity of efforts
USCG（沿岸警備隊)
State（各州)
○△省

○○省

□△省

○県市 “力”を合わせて頑張ろう！しかし、組織毎に△ＮＰＯ 対策本部

RP（原因者)

運用部門(OSC)

機関代表者(AREP)

報道官(PIO)

連絡調整官(LNO)

安全管理(SOFR)

計画部門(PSC)

後方支援部門(LSC)

財務部門(FSC)

救助ユニット(SRU)

航空監視ユニット(AOU)

油防除ユニット(ORU)Disaster/Large scale marine pollution incident
Form a Japan National Team!

Public Team

Private Team

Differ with each teams
As for sports, /Different terminology
the practice is/Different rulebook
important.
/Different objects ････etc

Sharing ofterminology& simple
rule.

The incident response is the same as sports!

Maritime
DisasterPrevention
CenterMDPC Training & Exercises
in YOKOSUKA Training CenterMaritime
DisasterPrevention
Center

防災の神髄「神明はただ平素の鍛錬に力（つと）め、戦はずして既に勝てる者に勝利の栄冠を授（あず）くると同時に、一勝に満足し治平に安（やす）んずる者より直ちに之をうばう。」【連合艦隊解散ノ辞抜粋】

 Heaven gives the crown of victory to those only whoby habitual preparation win without fighting, andat the same time forthwith deprives of that crownthose who, content with one success, givethemselves up to the ease of peace.
21st December 1905.
TOGO HEIHACHIRO

THANK YOU