March 2023

Sendai City
International Research Institute ofDisaster Science, Tohoku University (IRIDeS)Table ofcontents

1 Greetings …………………………………………………………………………… 1
2 Rationale……………………………………………………………………………… 3
2.1 Purpose and background …………………………………………………………………… 3
2.2 Midterm assessment implementation method ………………………………………… 4

3 Assessment ﬁndings ……………………………………………………………… 6
3.1 Initiatives taken prior to the Sendai Framework for Disaster Risk Reduction … 6
3.2 Progress and results in implementing initiatives related to the four priorities for action … 8
3.3 Analysis ﬁndings for data related to the seven global targets ……………………36
3.4 Summary (Assessment at the midterm point of the Sendai Framework for Disaster Risk Reduction) ……47

4 Implementation of midterm assessment by citizens …………………… 49
5 Future outlook …………………………………………………………………… 51
5.1 Continuation of initiatives related to the priorities for action ……………………

51

5.2 Responding to revisions to disaster risks such as local earthquakes …………

51

5.3 Promotion of eﬀective disaster risk reduction measures …………………………

51

5.4 Future Eﬀorts at the International Research Institute of Disaster Science, Tohoku University (IRIDeS) …

55

5.5 Toward the standardization of disaster statistics …………………………………

57

6 Conclusion ………………………………………………………………………… 58

Unless otherwise noted in the text, the content of this report is co-authored by
Sendai City and the International Research Institute of Disaster Science, Tohoku
University (IRIDeS). The authors of “3. Assessment Findings” are listed in the following
table.
3.1 I‌nitiatives taken prior to the Sendai Framework for Disaster
Risk Reduction
Sendai City
3.2 P‌ rogress and results in implementing initiatives related to thefour priorities for action
3.3 A‌ nalysis findings for data related to the seven global targets
3.4 ‌Summary (Assessment at the midterm point of the Sendai
Framework for Disaster Risk Reduction)

IRIDeS

1 Greetings
The Sendai Framework for Disaster Risk Reduction 2015–2030, a global
policy guidance for disaster risk reduction, was adopted in our city, Sendai,
in March 2015, as we were making steady progress toward recovery fromthe Great East Japan Earthquake. Taking this as a point of pride, the cityand citizens of Sendai have worked together to improve the disaster risk reduction capabilities of the local area. In addition, as a gesture of reciprocation for the warm support we have received from a multitude of people bothin Japan and abroad, we have endeavored to disseminate our experiences
widely in order to contribute to disaster risk reduction around the world.
As the Sendai Framework for Disaster Risk Reduction 2015–2030 reaches
its midpoint this year, midterm reviews are being conducted at the national
level all around the world. This represents a critical opportunity to consider
the second half of the Sendai Framework for Disaster Risk Reduction 2015–
2030. Sendai has also decided to use this milestone to review the progress
the city has made thus far.
Using Sendai as an example, this report serves to both evaluate and makepublic the progress that has been made with the specific goals set forth in
the Sendai Framework for Disaster Risk Reduction 2015–2030. Apparently,
this is the world's first initiative to conduct analytical assessment on a local
government basis.
In preparing this report, Sendai City has worked in collaboration with theInternational Research Institute of Disaster Science, Tohoku University, aworld-leading research base for disaster prevention science and an indispensable partner for the city to promote disaster risk reduction measures.
We have strived to make our assessment as objective as possible.
Sendai has experience in overcoming numerous disasters working together
with its citizens. This report will also serve as an opportunity to share withour citizens, once again, Sendai’s work in building a community of resilience,
one that is resilient to disasters. Together, we will take new steps in disasterrisk reduction measures during the second half of the Sendai Framework for
Disaster Risk Reduction 2015–2030.
We also look forward to continuing to share our experiences and learnings with the rest of the world, including the methodology we employed in
conducting out midterm assessment, in order to help achieve the successful
implementation of the Sendai Framework for Disaster Risk Reduction
2015–2030 for the entire world.
We hope that this report will help strengthen disaster risk reduction measures in cities around the world.
March, 2023

Kazuko Kori

Mayor of Sendai

1１Greetings

The International Research Institute of Disaster Science, Tohoku University (IRIDeS) was established about a year after the Great East Japan Earthquake. Our mission is to deepen disaster science and build practical researchon disaster risk reduction, learning from the Great East Japan Earthquake, inorder to prevent the repeat occurrence of such disasters.
Sendai offered its full support for the Third UN World Conference on
Disaster Risk Reduction, held here in March 2015. The Sendai Frameworkfor Disaster Risk Reduction 2015–2030 was adopted at this UN conference.
To promote its implementation, we engage in a range of research andpractical activities, with a focus on collaborative efforts between industry,
government, academia, and citizens in Japan and overseas.
To monitor the progress of the Sendai Framework for Disaster Risk
Reduction 2015–2030, we require statistical data on disaster damage. The
inadequacy of such data in countries worldwide is a challenge that we face,
however. This led to the establishment of the Global Center for Disaster
Statistics (GCDS) within IRIDeS, in order to support the development ofdisaster damage statistics and the monitoring of progress in implementing
the Sendai Framework for Disaster Risk Reduction 2015–2030.
In addition, we established the World Bosai Forum as a forum for the
discussion and sharing of information on constantly evolving disaster risk
reduction issues, and have held discussions on the importance of disasterdamage statistics. These initiatives were made in close collaboration with
Sendai City, the birthplace of the Sendai Framework for Disaster Risk Reduction 2015–2030.
Having reached the halfway point of implementation of the Sendai Framework for Disaster Risk Reduction 2015–2030, Sendai City and IRIDeS haveconducted a joint assessment of the progress of implementing the Framework. As an example of monitoring conducted through disaster damage
statistics provided by a local government, the publication of this review in ajoint report is an extremely pioneering initiative.
Moving forward, Sendai and IRIDeS will continue to cooperate with eachother and other related parties to disseminate information on disaster risk
reduction efforts from Tohoku and Sendai. Working with others, our aim
is to consider ways of responding to new disaster-related risks, accumulateknowledge, and make a contribution to disaster risk reduction on a global
level.
March, 2023

Fumihiko Imamura

Director
International Research Institute of Disaster Science,
Tohoku University2

2 Rationale

2.1 Purpose and background
The Third UN World Conference on Disaster Risk Reduction was held in 2015

in Sendai. As the host city of the conference, Sendai has worked to implement the
Sendai Framework for Disaster Risk Reduction 2015–2030 (hereinafter referred toas “the Sendai Framework for Disaster Risk Reduction” or “the Framework”), thedocument produced as the outcome of the conference.

Incorporating the participation of diverse stakeholders (a principle of the

Sendai Framework for Disaster Risk Reduction), Sendai City has taken note oflessons learned from disasters and has been building a disaster-resilient andenvironmentally friendly city that incorporates the perspectives of disaster risk
reduction and environmental concerns into all measures (see p.7).

The Sendai Framework for Disaster Risk Reduction has reached the midpointof its lifespan and is now undergoing a process of review by the United Nations
Agency for Disaster Risk Reduction (UNDRR) and the Japanese government. In linewith this, the purpose of the present undertaking is for Sendai City to reflect on its

own initiatives, working in cooperation with the International Research Institute ofDisaster Science, Tohoku University (IRIDeS). This collaborative project is basedon the Agreement on Collaboration and Cooperation between Sendai City andTohoku University (concluded on April 22nd, 2022) and will analyze and assessachievements and results of Sendai City initiatives, working in a manner modeledon the Sendai Framework for Disaster Risk Reduction.

This endeavor serves the dual purpose of considering initiatives for the second

half of the Sendai Framework for Disaster Risk Reduction, while also presenting
the methodology and findings of the reflection process both in Japan andinternationally, thereby contributing to the disaster risk reduction around the world.

3

２

Rationale

2.2 Midterm assessment implementation method
In carrying out the midterm assessment, we are conducting a review of initiatives

taken to date, first in Sendai, modeled after the four priorities for action (Note1) that appear in the Sendai Framework for Disaster Risk Reduction. In addition,in order to shed light on the results of these initiatives, IRIDeS has conducted ananalysis based on statistical information held by Sendai City and an evaluation of
the city’s progress in implementing the seven global targets (Note 2) related to the
expected outcome and goal of the Framework.

Note 1   ‌Four priorities for action (from the Sendai Framework for Disaster Risk Reduction[outline]. Source: Ministry of Foreign Affairs website)

Priority 1: Understanding disaster risk
Priority 2: Strengthening disaster risk governance to manage disaster risk
Priority 3: Investing in disaster risk reduction for resilience
Priority 4: ‌Enhancing disaster preparedness for effective response and to “Build
Back Better” in recovery, rehabilitation and reconstruction* ‌The promotion of the Sendai Framework for Disaster Risk Reduction requires thatits priorities for action are advanced at national and local levels, in addition to thestrengthening of international cooperation and global partnership and for the various
stakeholders to carry out their roles (stakeholder responsibility).
Note 2   ‌Seven global targets related to the expected outcome and goal of the Framework
Source: Ministry of Foreign Affairs websiteA) ‌Number of mortalities
B) Number of affected peopleC) Economic lossD) Damage to critical infrastructureE) N‌ umber of countries with disaster risk reduction
strategies (formulation of plans for disaster risk
reduction)F) ‌International cooperationG) ‌A ccess to multi-hazard early warning systems anddisaster risk information

Targets aimed at
reduction(to be reduced)

Targets aimed atincrease(to be increased orstrengthened)4

Diagram: Conceptual diagram of midterm assessment（図表） 中間評価の概念図

Contents of Sendai Framework for…仙台防災枠組の内容
Disaster Risk Reduction

Contents of Assessment in this report…本報告書における評価の内容

ステークホルダーの責任
Stakeholdersʼ
responsibility(Participationof diverse stakeholders)（多様なステークホルダーの参画）

仙台市がステークホルダーと連携して
In collaboration with stakeholders,
実施した取組みについて評価
Sendai City assesses implemented
initiatives

Priorities for action

優先行動

Global target
グローバルターゲット(Centered on the national
government and local（国や自治体が中心）
governments)

仙台市の取組みを中心にAssessment focusing on
評価
Sendai Cityʼs initiatives

5

International cooperation
国際協力とグローバル・andglobal partnership
パートナーシップ(Centered on national government
and（国や国際機関が中心）
international organizations)

取組みの成果として、達成
Assessment of progress as
状況を評価
the result of initiatives

３

Assessment findings

3 Assessment findings

3.1 Initiatives taken prior to the Sendai Framework for Disaster Risk Reduction（１）Initiatives taken prior to the Great East Japan Earthquake
Sendai has worked with its citizens to create a safe city. Based on theexperience of the 1978 Miyagi Earthquake, Sendai became the first city inJapan to proclaim itself a Disaster-Resilient City the following year on June
12th, 1979. The same date was designated as Citizen Disaster Prevention Day.
In addition, the Great Hanshin earthquake of January 1995 acted as theimpetus for creating a disaster-resilient city with even greater levels of safety,
and the city’s fundamental goal became the creation of a disaster-resilient cityin which everyone is able to live with peace of mind. In March 1997, this cameinto being as the Sendai City Disaster Prevention Plan, whose aims included thepromotion of disaster-prevention measures with a focus on countermeasuresagainst large-scale earthquakes.
The disaster resulting from the Great East Japan Earthquake on March 11th,
2011 occurred in such a context. Its scale far exceeded assumptions made indisaster prevention measures and urban development efforts that had been
undertaken prior to that time. The tremors, however, did not cause buildings
to collapse, thanks to measures that had been taken in the past. This includes
seismic-resistance measures for buildings in anticipation of the next Miyagi
Earthquake off the coast, one that recurs periodically every several decades.
On the other hand, unexpected damage did also occur, mainly due to thetsunami—a reminder of the threats posed by the forces of nature.
（２）Initiatives taken until the adoption of the Sendai Framework for Disaster Risk Reduction
While the Great East Japan Earthquake showed that past disaster risk
reduction measures were effective to a certain extent, many precious lives
were lost due to the massive tsunami that struck the eastern part of the city.
Powerful and long-lasting tremors caused landslides and damage to retaining
walls, and residential areas throughout the city suffered damage.
The Great East Japan Earthquake clearly demonstrated that there are limits
to the amount of control that man-made structures can offer against the furyof nature. Consequently, the Sendai City Earthquake Disaster Reconstruction
Plan, which was formulated in November 2011, does not aim for total disasterprevention involving control over nature. With an emphasis on the protectionof human life, the plan has shifted toward disaster risk reduction—theminimization of damage in case of disasters—as its basis. The reconstruction
plan encourages the protection of one’s own self in case of disaster (selfhelp) and community support for those who need help, such as the elderly
and people with disabilities (mutual aid). With regard to the reconstruction ofeastern parts of the city—those that suffered the greatest tsunami damage—the plan incorporated the creation of new value and vitality rather than simply
restoring the area to its pre-earthquake state. The strengthening of disasterrisk reduction through the participation of diverse members of the population,
including women and the younger generation, was later discussed during the6

process of adopting the Sendai Framework for Disaster Risk Reduction.
In March 2015, the Third UN World Conference on Disaster Risk Reduction
was held in Sendai thanks to the efforts of various stakeholders, includinginternational organizations, the Japanese government, Tohoku University,and local economic organizations. The plenary session was attended by over
6,500 delegates: the United Nations Secretary-General; over 100 ministers,
including 25 heads of state; government delegations from 185 countries; 49intergovernmental organizations; 188 NGOs, and 38 international organizations.
In addition, the public forum, which was held in conjunction with the plenary
session, included symposia, exhibitions, and other events that attracted inexcess of 150,000 people. It was one of the largest UN-related international
conferences to have been held in Japan.
The Sendai Framework for Disaster Risk Reduction was the document
produced as the outcome to the conference. Its adoption has resulted in"Sendai" becoming a common word in the field of disaster risk reduction aroundthe world. In view of the significance of this fact, Sendai City is working on
the Sendai Framework for Disaster Risk Reduction by promoting the creationof a disaster-resilient and environmentally friendly city based on three pillars:
community development aiming for communities that are highly sustainable
in the face of disasters; human capacity building aiming at the participationof a diverse range of citizens, irrespective of age, gender, or attributes; andthe passing on of experiences and lessons learned from The Great East Japan
Earthquake to the future and the rest of the world.
Diagram: Conceptual diagram for the building of a disaster-resilient and environmentally friendly city
Background

Measures

Experiences and Lessons ofMajor Earthquakes and theEarthquake Disaster
Reconstruction Plan
UN World Conference on
Disaster Risk Reduction andthe adoption of the Sendai
Framework for DRR, etc.

Disasterresilience
Sendai DisasterResilient andEnvironmentallyFriendly city for a
Carbon Secure Future

free
Low Carbon

DRR and environmentfocused city planningEaseofliving

DRR and environmentfocused “humancapacity building”

Passing down
experiences andlessons

Enactment of the "Sendai City
Ordinance for Promoting Disaster
Prevention and DRR”

Establishing a City Brand
Building a safe, secure and sustainable City

7

Disaster Recovery Efforts

History of Environment
Building in the“City of Trees”

３

Assessment findings

3.2 Progress and results in implementing initiatives related to the four priorities for action
Under the supervision of IRIDeS, this document outlines results of Sendai Citypromoted initiatives related to the four priorities for action, which have generally
been carried out since the Great East Japan Earthquake.
Each initiative is classified according to the relevant priority for action
and presented together with data that shows the state of progress in its
implementation. An evaluation of the initiative’s contribution to the achievement of
the seven global targets is also included.
In addition, as the Sendai Framework for Disaster Risk Reduction makes a callfor stakeholder responsibility and international cooperation and global partnershipalong with the promotion of the priorities for action, this section will also describe
the results of initiatives carried out in collaboration with various stakeholders andthose that make a contribution internationally.

3.2.1 Priority 1: Understanding disaster risk
Priority 1 emphasizes the importance of learning and understanding for disaster
preparedness in relation to knowledge that can be gained and lessons that canbe learned from past disasters and disaster risk reduction. It also calls for theutilization of various networks and methods for the collection and dissemination of
information on disaster risk reduction.

Key initiatives undertaken by Sendai are as follows.
（１）Handing down experiences and lessons learned
To preserve the memory of the disaster for a long time and to put experiences
and learnings from 2011 to use in future disaster risk reduction, concrete form
must be given to memories of the disaster and mourning for its victims, anda process of handing down to future generations must take place. Based on
this understanding, Sendai City works to hand down experiences within its
staff; it manages memorial facilities and runs a video and photo archive related
to the Great East Japan Earthquake. Working in collaboration with citizens
and community groups, the city runs events and other activities that carry theexperiences of learnings of Great East Japan Earthquake toward the future.
In addition, we will work to put our experience in overcoming numerous
disasters to good use in the future, based on the understanding that disasters areinevitable and cannot be fully predicted. We will work with citizens to create adisaster-aware culture—which is to say, one that has the skills and knowledge toovercome disasters. Spreading this culture through Japan and around the world,
we aim to contribute to disaster risk reduction on the global level.

Disaster Memorial Ruin Arahama Elementary School

Sendai 3/11 Memorial Community Center

8（２）Promotion of Disaster Risk Reduction Education, Sendai Edition
In order to cultivate a society in which people are able to take appropriate
action in the event of a disaster, a new disaster risk reduction education
policy, the Disaster Risk Reduction Education Guide, Sendai Edition was put
together after the earthquake, and disaster risk reduction education has been
carried out in all municipal elementary and junior high schools in Sendai since
FY2016. All schools have a head of disaster risk reduction who plays a central
role in the promotion of disaster risk reduction education. Meanwhile, copies
of Sendai-specific supplementary reading material for disaster prevention
education have been distributed to all school children and are referred to in all
their subjects.
To convey lessons learned from the Great East Japan Earthquake, together
with information on disaster risks faced in the area, field trips to Disaster
Memorial Ruin Arahama Elementary School are organized (involving all
municipal elementary schools in Sendai since FY2022). A three-dimensional
diorama is used to represent the local topography, and workshop-styleclasses are run for children to think about the region’s disaster risks bythemselves.

NOTE: ‌Supplementary Reading Material for Disaster Risk Reduction Education, Sendai Edition

Supplementary reading material were created to convey lessons learned from the disasterto school children, to keep the memory of the disaster alive, and to help youngsters acquire
correct information about disasters together with disaster response skills.
The reading material is designed to support independent learning for youngsters andcontains activities such as learning tasks and boxes to fill in, together with stories frompeople who experienced the disaster. It is divided into three volumes: one for first to
third graders in elementary school, one for fourth to sixth graders, and one for juniorhigh school students. The material takes young people’s developmental stages into
consideration, while also reiterating important learning points so as to ensure retention.

（３）Disseminating disaster risk information
A hazards map showing areas that may be affected by earthquakes,
tsunamis, floods, landslides, and the bursting of reservoirs, together withways in which to protect oneself from such disasters, has been created andis being distributed to citizens and promoted online.
Meanwhile, to ensure that appropriate evacuations take place when
there is a risk of a disaster occurring, the number of outdoor public address
systems providing tsunami information has been increased since the Great
9

３

Assessment findings

East Japan Earthquake. Social media accounts (Crisis Management Station
on Twitter) have been set up, and information distribution via the Internet
has been enhanced. People are being encouraged to check disaster andweather information, using these sources in conjunction with TV, radio, andother media as appropriate. Furthermore, advanced technologies such as
Diagram:Figures
for theSendai
Crisisspeeding
Management
Twitter accountfollowerof
dronesare also
being
putCity
to use,up Bureau
and increasing
the number
communication channels.
count

Diagram: Figures for the Sendai City Crisis Management Bureau Twitter account follower
80,000

Follower
Followers
Followercountcount

count Management Bureau's Twitter accountDiagram: Followers of the Sendai City Crisis
80,00060,00045,14360,00040,00025,61340,00020,0004,275

20,000045,14351,80253,73751,80253,73757,37557,37567,62064,746

67,62064,746

25,613

4,275
2014

2015
2016
2017
2018
2019
2020
2021
0
Sendai City2014
Crisis Management
BureauTwitter2018
account,2019
number 2020of followers
2015
2016
2017
2021
Sendai
City of
CrisisManagement
Bureaunumberof accountfollowers■
Followers
the（Source
Sendai CityofCrisis
Bureau's
TwitterdataManagement: Twitter
Sendai account,City
CrisisManagement
Bureau）（Source of data: Sendai City Crisis Management Bureau）（Source of data : Sendai City Crisis Management Bureau）
Diagram: Figures for outdoor public address systems in operation
Diagram: Figures for outdoor public address systems in operation

Numberof units
Numberof units

90
80
90
70
80
60
70
50
60
40
50
30
40
20
30
10
20
0
10
0

Diagram: Figures for outdoor public address systems in operation

47

47

49

47

47

49

49

50

49

50

68

70

68

70

76
76

79

79

79

79

79

79

79

79

79

79

76

76

76

76

28
12

28

12
20052006200720082009201020112012201320142015201620172018201920202021
Figures of outdoor public address systems in operation
20052006200720082009201020112012201320142015201620172018201920202021*1 The drop of 38 units in FY2010 was due to the tsunami caused by the Great East Japan Earthquake

Figures
outdoorpublicaddress
operation*2 The reduction of 3 units in
FY2020ofwas
due to thereplacementof systems
units that in
were
no longer serviceable.
Replacementby38
high-performance
unitsdue
resulted
the removal
3 unitswhose
sound
rangeswould have
*1 The drop ofunits in FY2010 was
to theintsunamicausedofby
the Great
East
Japan
Earthquake
overlapped.
*2 The reduction of 3 units in FY2020 was due to the replacement of units that were no longer serviceable.
Replacement by high-performance units resulted（Sourcein the removalof 3 units
whose
would haveBureau）
of data:
Sendai
Citysound
Crisisranges
Management(Source of data: Sendai City Crisis Management Bureau)(Source of data: Sendai City Crisis Management Bureau)

10Diagram:
Deployment
figures
radios usedusedbybylocallocalgovernment
government
Diagram:Deployment
figuresfor
fordisasterdisaster prevention
prevention radios
900
800

Number of units

700

695

707

712

717

717

717

2015

2016

2017

2018

2019

2020

800

600
500
400
300
200
100
0

2021

Figures for disaster prevention radios used by local government*Type: digital mobile radio until FY2020; IP radio from FY2021（Source of data: Sendai City Crisis Management Bureau）(Source of data: Sendai City Crisis Management Bureau)

NOTE: Tsunami Evacuation Announcement Drone
Tsunami Evacuation Information Drone
Based on the experience of the Great East Japan Earthquake and the need for

multiplexed public information on tsunami evacuation, the tsunami evacuation
information drone was put through a series of demonstration experiments
Based on the experience of the Great East Japan Earthquake and the needcommencing in 2019, with full-scale deployment commencing in October 2022.
fordrone
multiplexedpublicon othertsunamievacuation,
tsunamiTheis equippedwith informationa speaker andequipment.
When thea tsunami
warning
is announced,
the dronedrone wastakes
and automaticallyalong aevacuation
information
putoffthrougha series of flies
demonstrationpredetermined route to publicize the evacuation.
experiments
in 2019,with full-scale
deployment
This
represents commencing
two world firsts:
an automateddrone being
used to commencing
disseminatein
tsunamievacuation
October
2022. information and a drone being controlled by a dedicated LTE
communication network. The use of the drone will facilitate the communication of
The drone is equipped with a speaker and other equipment. When a tsunami
more detailed and effective tsunami evacuation information to visitors to the areas
warningannounced,
the drone takes off and automatically flies along a
alongJapan’siseast
coast.

predetermined route to publicize the evacuation.
This represents two world firsts: an automated drone being used todisseminate tsunami evacuation information and a drone being controlled
by a dedicated LTE communication network. The use of the drone will
facilitate the communication of more detailed and effective tsunami
evacuation information to visitors to the areas along Japan’s east coast.
Automatically landing Drone11

３

Assessment findings（４）Seminars of the Sendai Framework for Disaster Risk Reduction
Since FY2016, Sendai and IRIDeS have been jointly holding a seminartargeting everyday citizens. Learning about the Sendai Framework for Disaster
Risk Reduction, citizens can enhance their awareness about disaster risk
reduction. Meanwhile, the city also gains through an increase in the numberof people supporting disaster risk reduction in the region.
Participants learn about the contents of the Sendai Framework for Disaster
Risk Reduction through lectures. In the Foundation Seminar, they makea presentation on their own activities, while in the Applied Seminar, they
engage in discussions and workshops with other participants, the purpose ofwhich is to catalyze their activities.
In November 2022, which marks the midterm point of the Sendai Frameworkfor Disaster Risk Reduction, a special program was held to share informationon the progress of the Framework’s midterm review. (For details, see 4.
Implementation of midterm assessment by citizens (summary of outcomesfrom the Special Edition Seminar/workshop that was part of the Sendai
Framework for Disaster Risk Reduction Seminar) (p.49))
Diagram: ‌Figures related to the Sendai Framework for Disaster Risk Reduction course (numberof times held, number of participants)

Year held

Number of times held

Number of participants

2016

5

386

2017

2

123

2018

2

165

2019

2

125

2020

1

48

2021

1

48

（Source of data: Sendai City City Planning Policy Bureau）

IRIDeS evaluation of initiatives relating to Priority 1
The creation of hazard maps using geospatial information, together withinitiatives directed at disaster risk reduction education and public awareness all
promote the understanding of disaster risks. In addition, sharing information about
our activities through workshops and similar events helps promote voluntary
initiatives and network formation in the region.
In supporting the effective acquisition of a range of information related todisaster risk reduction, these efforts are felt to contribute to the achievementof global Target G in particular: “access to early warning systems, disaster risk
information, etc.”123.2.2 Priority 2: Disaster risk governance for disaster risk management
Priority 2 calls for governments and communities to understand their respectiveroles and manage plans and schedules appropriately to reduce disaster risk. Thispriority also recognizes the need for all stakeholders to participate in disaster risk
reduction and cooperate with each other.

Key initiatives undertaken by Sendai are as follows.
（１）Sendai's Disaster Risk Reduction Strategy
Sendai considers disaster risk reduction strategy to be one of the pillars
of its community development. The Sendai City Basic Plan 2021–2030(formulated March 2021) is the city’s basic guideline for community
development. The Disaster-Resilient and Environmentally Friendly City
Project, whose aim is to create a sustainable urban environment, sits under
the plan and is worthy of mention, while plans for individual divisions havealso incorporated elements of disaster risk reduction.
The Sendai City National Resilience Regional Plan formulated in November2020) is a compilation of the Sendai Regional Disaster Prevention Plan(see p.13) and a range of measures for pre-event disaster risk reduction
to reduce risk associated with large-scale disasters and for rapid recovery
and reconstruction. It is being used to systematically promote community
development by the city.
Diagram: Conceptual diagram of Sendai City’s system for disaster prevention strategy

Sendai City Basic Plan
【 Creating a Sustainable and Resilient Urban Environment】
Sendai Regional Disaster
Prevention Plan

City of Trees Environmental
Plan

Sendai City National
Resilience Regional Plan

Sendai City Greenery Basic
Plan

Sendai City Flood Prevention
Plan

Sendai City Earthquake-Resistant
Retrofit Promotion Plan

Sendai City BusinessContinuity Plan

Sendai City Sewerage Master
Plan

・
・
・

・
・
・
〔Excerpt〕（２）Sendai Regional Disaster Prevention Plan
The Sendai Regional Disaster Prevention Plan is the most basic plan fordisaster risk reduction in Sendai. Based on the provisions of Japan’s Disaster
Countermeasures Basic Act, its aim is to protect the lives, bodies, andproperty of Sendai citizens from disasters, which may include earthquakes,
tsunamis, and storm and flood damage.
In March 2013, the plan was revised according to lessons learned fromthe Great East Japan Earthquake, incorporating into the basic policy issues
13

３

Assessment findingssuch as disaster mitigation to minimize damage in the event of a disaster,
consideration for people requiring assistance in the event of a disaster, andthe promotion of gender equality.
To promote mutual aid initiatives taken by local communities, the plan isdivided into sections: Self-help and Mutual Aid, which concerns the activities
of individual residents and neighborhoods; and Public Assistance, which
concerns the activities of local government. It also stipulates the kinds ofactivities appropriate to each party. The plan developed mechanisms forstakeholders such as local residents to tackle disaster risk reduction, predating the June 2013 revisions to the Disaster Countermeasures Basic Act.
Diagram: Amendments to the Sendai Regional Disaster Prevention Plan

Year

Revisions made1964 onward

6 full revisions and 6 partial revisions since original formulation

2013

Full revision based on the Great East Japan Earthquake

2014

Full revision of section on disaster countermeasures for storm
and flood damage and addition of section on nuclear disastercountermeasures

2015

Designation of designated emergency evacuation sites, etc.

2016

Review of designated evacuation centers to be opened during
heavy rainfall events, etc.

2017

Revision of standards for staff assembly at designated evacuation
centers during heavy rainfall events, etc.

2018

Establishment of criteria for issuing evacuation information forpriority reservoirs for disaster prevention, etc.

2019

Establishing criteria for issuing early evacuation advisories, etc.

2020

Review of infectious disease control measures in evacuation
centers, etc.

2021

Establishing criteria for issuing evacuation information for small
and medium-sized rivers, etc.

2022

Changes to tsunami evacuation areas, etc.

NOTE:‌Revision of the Disaster Relief Act

At the time of the Great East Japan Earthquake, authority to implement disaster
relief (the provision of emergency relief immediately after a disaster) rested withprefectural governments. Administrative work related to the construction of
prefabricated temporary housing was, therefore, not delegated to Sendai City,
resulting in long delays to the construction of the required number of units of
temporary housing in the city.
In light of this experience, several cities including Sendai approached Tokyo forrevisions to the legal system. In response, the law was amended in 2019, anddesignated cities were entrusted with the work of disaster relief.
In 2019, Sendai was designated a Relief Implementation City, enabling it
to independently implement disaster relief. In addition, this will allow Miyagi
Prefecture to focus on supporting other municipalities within the prefecture.

14

（３）Creation of areal evacuation center operation manuals
Working from issues that were experienced in the running of evacuation
centers during the Great East Japan Earthquake and feedback from local
community members who were involved in the management of such facilities,
a new Evacuation Center Operation Manual was created and came into use
commencing 2013. Using the manual as a blueprint, community groups suchas neighborhood associations, local government, and the management ofvarious facilities work together to rethink the running of individual evacuation
centers, and are developing unique manuals for evacuation center operationthat is tailored to the characteristics of the locality in each case.
Each local community is working on the operation of evacuation centers
based on its particular manual for evacuation center management, taking
り避難所ごとの運営のあり方を再検討し、各避難所の地域特性を踏まえた独自のinto consideration the particular characteristicsof the community and「地域alsoincorporating a diverse range of needs, including those of women, people
版避難所運営マニュアル」を作成している。
with disabilities,「地域版避難所運営マニュアル」
and foreigners.
各地域においては、に基づき、地域特性を考慮しつつ、
To be able to respond to diversifying natural disasters and infectious
女性や障がい者、外国人への対応も取り入れるなど、多様なニーズに配慮しながら、避難disease countermeasures at evacuation centers, new blueprint content
所の運営に取り組んでいる。
is being added. These include a new edition for evacuating during heavy
rainfall events and additional points covering Covid-19
countermeasures.
多様化する自然災害や避難所での感染症対策に対応するため、新たな雛形となる「大雨
The addition of such content is then being reflected in the areal manuals for
時避難・開設編」や「新型コロナウイルス対策追加事項」の追加も行っており、各地域にregional evacuation center operation.
おいて「地域版避難所運営マニュアル」への反映を行っている。
(As of March 2023, percentage of evacuation centers with completed
manuals is 100%.)

Diagram: Figures for evacuation centers with localized operations manuals completed
84%

94%

98%

100%

99%

99%

99%

200

80%
191

150
100
50
0

100%

38%

191
160

193 190193 193193 193194 193195 194195
182

40%

73

2014

60%

20%

2015

2016

2017

2018

2019

2020

2021

0%

completed manuals

Number of evacuation centers

250

Percentage of evacuation centers with

Diagram: Figures for evacuation centers with areal operation manuals completed

operation
manuals
completed
areal operation
manuals
completed■Number of evacuation centers with localized
Number of evacuation centers
Percentage of evacuation centers with completed manuals（Source of data: Sendai City Community Affairs Bureau）(Source of data: Sendai City Citizen’s Bureau)（４）Training of Sendai City Community Bosai Leaders (SBL)
Sendai City Community Bosai Leaders (SBL) play a central role in（１） 仙台市地域防災リーダー（SBL）の養成
disaster risk reduction during non-disaster times through activities such

「仙台市地域防災リーダー（SBL）」は、平常時には地域の特性を考慮した自主防災計画

15

づくりや効果的な訓練を企画・実践するなど、予防活動の中心的役割を担い、災害時には避難誘導や救助・救護活動を指揮するなど、地域の自主防災組織の核となる活動を行う人

３

Assessment findings

as the planning and implementation of effective drills or the formulationof independent disaster risk reduction plans tailored to the particularcharacteristics of a community. When disasters strike, the SBLs perform
central activities for local independent disaster risk reduction organizations,
including leading evacuations and carrying out rescue/relief operations.
In order to revitalize independent disaster risk reduction organizations andraise the level of local disaster risk reduction capabilities throughout the city,
SBLs have been trained and registered through a training program specific to
Sendai. To support active SBLs, refresher programs are also held each year.
These enable SBLs to improve their knowledge and skills and also serve tostrengthen cooperation among SBLs and with the local community.

Diagram:trained SBL
SBLs
in Sendai
Diagram:Figures
Figures forfor trainedin Sendai
1,200

Number of persons

1,000
800

584

600

0

690

890

890

2019

2020

392

400
200

638

792

1,001

197
50
2012

2013

2014

2015

2016

2017

2018

2021

inSendaiSendai■Figures
Figures forfor trained
trained SBLs
SBL in（Source of data: Sendai City Crisis Management Bureau）(Source of data: Sendai City Crisis Management Bureau)
IRIDeS evaluation of initiatives relating to Priority 2

優先行動２に関する評価コメント【東北大学災害科学国際研究所】

The adoption of a disaster risk reduction strategy and the assigning of roles

防災戦略を採択し、ステークホルダーに役割を与えることは、すべてのセクターにわ
tostakeholders helps mainstream disaster risk reduction across all sectors. It

strengthens disaster risk governance, which serves to improve the disaster risk
たる防災の主流化を促し、地域の防災力向上のための災害リスク・ガバナンス強化につreduction capacity of local communities.

ながるものである。
These efforts, which are represented by the Sendai Regional Disaster PreventionPlan,contribute to the achievement of global Target E: “local
disaster risk
仙台市地域防災計画に代表されるこれらの取組みは、ターゲット
E『地方の防災戦略
reduction strategies.”を持つ』の達成に貢献していると考える。

16

3.2.3 Priority 3: Investing in disaster risk reduction for resilience
Priority 3 maintains that investment in hard measures such as improving the seismic
resistance of vital facilities, together with soft measures, such as systematization forbusiness continuity, will serve to protect lives, assets, and ecosystems from disasters
and will promote swift post-disaster recovery and reconstruction. Compared to postdisaster investment, this kind of pre-event investment in disaster risk reduction is seen
to be more cost-effective. Its active promotion is desirable, also from the perspectiveof strengthening a city’s disaster-response capabilities.

Key initiatives undertaken by Sendai are as follows.
（１）Disaster countermeasures for critical infrastructure
The Great East Japan Earthquake and subsequent tsunami cut off water supply
to about half the total number of households in Sendai, while all households inthe city were left without city gas and electricity (which is supplied by private
power companies). The sewage system was also affected, with the coastal
treatment facility completely destroyed by the tsunami, (see p.23: Restoration of
the Minami-Gamo Wastewater Treatment Plant), however, downward flow wasable to be maintained due to a natural downward flow system design that takes
advantage of the difference in the elevation of the land.
For increased safety and peace of mind, backup functions such as
improving the seismic resistance of pipelines and facilities, the creationof dual water supply systems, and the introduction of equipment that will
receive gas supply under emergency conditions are being boosted one stepfurther. Measures to formulate a business continuity plan (BCP) focusing on
recovery and reconstruction are also being taken.

Rate of seismically resistant pipelines (%)

Diagram: Figures showing increases to seismic resistance of critical infrastructure (water pipelines)
100.0

88.0

86.5

（Reference）

88.6（Reference）

89.0

80.0
60.0
40.0
20.0
0.0

2014

2019

①水道管路耐震化率（耐震性を有する管路）①
Water pipeline seismic resistance rate
(pipes with seismic resistance)

32.4

33.4

2020

2021

②水道管路耐震化率（耐震性に優れた管路）②
Water pipeline seismic resistance rate
(pipes with strong seismic resistance)*The seismic resistance rate of water pipelines is calculated based on a management indicator(seismic resistance rate of pipelines) found in the Sendai City Waterworks Project Basic Plan
(FY2020–2029) and similarly in the Waterworks Project Guidelines. In 2020, the definition waschanged from (1) to (2) below.
(1) The seismic resistance rate of water pipelines with a diameter of 75 mm or more, which can beassessed as having a certain level of seismic resistance based on the strength of the materials andjoints (connecting pipe parts).
(2) From FY2020, the seismic resistance rate of water pipelines with a diameter of 50 mm or morethat can be assessed as having excellent earthquake resistance in terms of strength, etc.

（Source of data: Sendai City Waterworks Bureau）(Source of data: Sendai City Waterworks Bureau)

17①Water pipeline seismic resistance rate (pipes with seismic resistance)②Water pipeline seismic resistance rate (pipes with strong seismic

３

85.8

86.2

86.5

86.7

87.1

85.5 resistance of critical infrastructure (gas pipes)
84.9 seismic
Diagram: Figures
for improved
84.6
90.0

80.0

pipes(%)
pipes(%)

of seismicallyresistantgas
Rate ofRate
seismicallyresistant
gas

90.0

Assessment findings

84.6

84.9

85.5

85.8

86.2

86.5

86.7

87.1

2014

2015

2016

2017

2018

2019

2020

2021

Rate of seismic resistance for gas pipes
2015
2016
2017
2018
2019

2020

2021

80.0
70.0
70.0
60.0
60.0

2014

Rate of seismic resistancepipes(Sourcefor
ofgas
data:
Sendai City Gas Bureau)（Source of data: Sendai City Gas Bureau）(Sourceof data:
Sendai City
Gas Bureau)
Diagram: Figures for improved seismic resistanceof criticalinfrastructure(sewagepipes)
Diagram: Figures for improved seismic resistance of critical infrastructure (sewage pipes)

50.0

50.0
40.0
pipes (%)
pipes (%)

of seismicallyresistant
Rate ofRate
seismicallyresistantsewagesewage

Diagram: Figures for improved seismic resistance of critical infrastructure (sewage pipes)

40.0
30.0

33.8
33.8

35.2
35.2

36.6
36.6

38.1
38.1

39.9
39.9

41.0
41.0

42.5
42.5

44.0

44.0

30.0
20.0
20.0

2014
2014

2015

2016

2017

2018

2019

2020

2021

Rate of seismic resistance for sewage pipes
2015
2016
2017
2018
2019

2020

2021

（Source of data: Sendai City Construction Bureau）

Rate of seismic resistance for sewage（出典：仙台市建設局資料）
pipes（出典：仙台市建設局資料）

18

（２） 木造住宅・分譲マンションの耐震化
平成 7 年（1995 年）の阪神・淡路大震災において、昭和 56 年（1981 年）以前の建築基（２）Seismic resistance of wooden houses and condominiums
準で建てられた木造住宅が大きな被害を受け、多くの人命が失われたことを踏まえて、
Wooden houses constructed before 1981
suffered severe damage during市
有建築物の耐震化を進めている。
the 1995 Great Hanshin earthquake, resulting in the loss of many lives. This
led toimprovements
to the seismic resistance of city-owned buildings.
平成16 年度（2004年度）からは、戸建木造住宅と分譲マンションを対象とした耐震診With regard to detached wooden houses and condominiums, since
断や改修工事補助、診断結果に基づいたアドバイスなどを行っている。この制度により、FY2004, Sendai has been offering seismic resistance evaluations, subsidies
令和年度）までの間で、延べ2,398
2 棟の分譲マンション
for3 年度（2021renovations,and advice based on
the戸の木造住宅と
assessment findings.
Under thissystem, in the period until FY2021, a total of 2,398 wooden houses and two
が耐震化工事を行っている。
condominiums were upgraded to be earthquake resistant.
Diagram: Figures for improved seismic resistance of buildings in Sendai
Diagram: Figures for improved seismic resistance of city buildings

Ratio of seismically resistant buildings

100
99

95

96

90
88

85
80

99

83

90

91

93

84

75
70

2008

2015

2020

Ratio of seismically resistant buildings in Sendai (homes)
Ratio of seismically resistant buildings in Sendai (private buildings)
Ratio of seismically resistant buildings in Sendai (city-owned buildings)（Source of data: Sendai City Urban Planning Bureau）(Source of data: Sendai City Urban Maintenance Bureau)（３）Disaster-resistant solar power generation systems
the Great East Japan Earthquake, disruptions to electricity and other（３） During
防災対応型太陽光発電システム
sources of power caused a variety of problems in initial response, affecting
東日本大震災では、電気などのエネルギーの途絶により、避難所運営などの初期対応に
the operation of evacuation centers and the like. Based on this experience,
おいてさまざまな問題が生じた。こうした経験を踏まえ、市内全ての指定避難所（小中学systems combining solar power generation and storage batteries has been
校など）約
installed200
in カ所に太陽光発電と蓄電池を組み合わせたシステムを導入している。
approximately 200 designated evacuation centers (elementary
andjuniorhighschools, etc.) throughout
the city.
災害時における自立型の電源の確保と、平常時の脱炭素化を図る取組みであり、
停電時This initiative works to secure an independent source of power in the eventには、昼は太陽光発電、夜は蓄電池に切り替えて電気を確保することで、防災無線やテレ
of a disaster and to decarbonize the city during normal times. In the event
ビなどの情報通信機器、照明などの使用が可能である。
of a power outage, electricity can be sourced by using solar power in thedaytime and switching to storage batteries at night, allowing for the use of
また、企業や大学等との連携のもと、防災対応型太陽光発電システムに遠隔監視・制御
communication devices such as disaster prevention radios and TV, lighting,等が可能となるエネルギーマネジメントシステムの導入に向けた取組みを進めている。
and other needs.
Working in cooperation with corporations and universities, initiatives
working for the introduction of an energy management system offering
remote monitoring and control of disaster-resistant solar power systems arealso underway.

19

３

Assessment findings

Diagram: Figures for evacuation centers where disaster-resistant solar power generation
systemshave beensolar
installed
Diagram: Figures for evacuation centers where
disaster-resistant
power generation systems have been installed
200

Number of evacuation centers

180

194

194

196

196

197

198

198

2015

2016

2017

2018

2019

2020

2021

160
140
120
100
80

92

60
40
20
0

17
2013

2014

防災対応型太陽光発電システムを導入済みの避難所数
Figures for evacuation centers with disaster-resistant solar power generation systems installed（Source of data: Sendai City Environmental Bureau）(Source of data: Sendai City Environmental Bureau)
防災対応型太陽光発電システムを導入済みの避難所数（４）Green Infrastructure in the City of Trees
Figures for evacuation centers with disaster-resistant solar power generation
Documents such as the Sendai City Basic Plan 2021–2030, which functions
systems
installed
as thecity’s guideline for community development, and the Sendai City
Green Basic Plan 2021–2030, which defines measures related to greenery, an
important resource in Sendai City’s community development, present a visionof sustainable community development that takes advantage of the city’s（４）
杜の都の「グリーンインフラ」
favorable
environment.
仙台市では、まちづくりの指針である「仙台市基本計画
Working with these plans, the city’s intention2021-2030」や、まちづくりのis to reduce the risk offlooding by enhancing green infrastructure working in alignment with the
重要な資源である「みどり」に関する施策等について定める「仙台市みどりの基本計画
numerous processes of nature to build the foundations of human life. This
2021-2030」などにおいて、良好な環境を活かした持続可能なまちづくりを都市像に掲げ
include the utilization of green spaces and planted spaces in the city centerている。
to facilitate the filtering of rainwater into the ground.
In coastal areas, a key
activity has been the planting of 雨水を地下に浸透させtrees by citizens to
これらの計画に基づき、都心部などの緑地や植栽空間を活用し、
restore the coastal disaster-prevention forests that were destroyed by theるなど、自然が持つ多様な機能を利用して暮らしの基盤を築く「グリーンインフラ」の充tsunami (see p.20: Furusato no Mori Forest Regeneration Project). This works
実を図り、水害リスクの低減などを図ることとしている。
to both preserve the coastal ecosystem and to enhance the effectiveness of
沿岸部では、津波で失われた海岸防災林の再生（11multiple defenses against future tsunamis (see p.頁「ふるさとの杜再生プロジェク
24).
ト」を参照）を、市民の手による植樹活動を中心に進めており、海辺の生態系の保全と併せ、津波に備える「多重防御（エエラー! ブックマークが定義されていません。頁参照）」（５）Furusato no Mori Regeneration Projectの効果を高めている。
The Great East Japan Earthquake caused extensive damage to green areas,
including coastal disaster-prevention forests, in Sendai’s eastern coastal
areas.
The regeneration of green areas involves not only the planting of trees, butalso a significant investment of time and energy in other activities including
looking after the growth of the trees, their conservation, and so forth.
20

Consequently, Sendai City has partnered with citizens, NPOs, companies, andother organizations since 2014 on activities to plant and look after trees.
This project is a symbol of the reconstruction of Sendai, the City of Trees.
In recognition of the city’s efforts to restore the lush green landscape of its
eastern area and make it attractive to visitors once again, it was awarded theGrand Prize (Minister of Land, Infrastructure, Transport and Tourism Award) inthe 1st Green Infrastructure Award in 2021.

Tree planting and tending in action

IRIDeS evaluation of initiatives relating to Priority 3
Disaster countermeasures for critical infrastructure, improved seismic resistancefor wooden houses and condominiums, and cooperation between the public
and private sectors contribute to the resilience of the country. The promotion ofgreen infrastructure and disaster-resistant solar power systems helps create anenvironmentally sustainable society that cares for the environment.
Investment in disaster risk reduction prior to the event reduces the damage
caused by disasters and contributes to significant reductions in global Target A:“mortality rate,” Target B: “number of affected people,” Target C: “direct disaster
economic loss,” and Target D: “damage to critical infrastructure and disruption ofbasic services.”21

３

Assessment findings

3.2.4 P‌ riority 4: Enhancing disaster preparedness for effective response and to “Build Back Better” in recovery, rehabilitation and reconstruction
Priority 4 sees the key to disaster risk reduction in enhancing the disaster
response capabilities of all stakeholders, both in terms of hard and soft measurestaken. In particular, the process of recovery and reconstruction that happens aftera disaster is seen as a critical opportunity to “Build Back Better,” incorporating
experiences and lessons learned from the disaster and strengthening the disaster
response capacity of the entire city.

Key initiatives undertaken by Sendai are as follows.
（１）‌Disaster risk reduction through the synergy of self-help, mutual aid, andpublic assistance
Since the establishment of Citizen Disaster Prevention Day in 1979,
comprehensive disaster preparedness drills have been carried out on anannual basis in various locations throughout the city working in collaboration
with a range of stakeholders such as local residents and neighborhood
associations. From 2012 onward, this has also incorporated evacuation
center management, based on the experience of the Great East Japan
Earthquake.
Each local community organizes community-led drills and trainings based on
scenarios for earthquakes, flooding, and other risks arising from the particularcharacteristics of the geographical area. These include tsunami evacuation
drills for the city’s eastern coastal regions, and training for responding topeople who would be left stranded in the central parts of the city if public
transportation services were suspended (see p.31). Local neighborhoods arepreparing for the occurrence of a large-scale disaster through a combinationof self-help, mutual aid, and public assistance.

NOTE: ‌Registration System for People Requiring Assistance in Times ofDisaster: protecting community members who need assistanceAn information registration system for persons requiring assistance in the eventof disaster was launched in FY2012 and is used to create a local evacuation
support system. Through the system, information is provided to local organizations
on people who need assistance in areas such guidance on evacuation or theconfirmation of personal safety.
Registration is through the request of persons in need of support. As of March
2022, 10,055 people have registered.

Assistance drill in community

22

（２）Restoration of the Minami-Gamo Wastewater Treatment Plant
The Minami-Gamo Wastewater Treatment Plant used to treat about 70%
of Sendai’s sewage. The tsunami of over 10 meters in height that hit theplant after the 2011 earthquake caused catastrophic damage resulting inthe shutdown of sewage treatment functions. Buildings suffered structural
damage, machinery and electrical facilities were engulfed by the tsunami or
swept away, power transmission towers collapsed.
As the plant is indispensable as infrastructure supporting the everyday
lives of Sendai residents, discussions were held on how to implement its
quick recovery concurrently with other tasks: the disposal of debris that had
washed into the plant and the restoration of vital lifelines. In September 2011,a restoration policy that extended beyond the plant’s previous functions was
decided upon. After a design phase of approximately one year, the plant wasconstructed in a shortened timeframe of around three years—a process thatwould normally take ten years—with the entire system going into operationin 2015.

NOTE:‌Enhanced disaster prevention and environmental features at the
Minami-Gamo Wastewater Treatment Plant

The plant’s primary and final sedimentation tanks are a two-tray system, while
the reaction tank is installed underground in the interests of compactness. The
plant is elevated so as to be able to withstand tsunamis of Tokyo Peil* (T. P.) +10.4 meters in height,* and doors in the building are a watertight design, enabling
the plant to resist a tsunami of the scale of the wave that hit Sendai after the Great
East Japan Earthquake.
A discharge line has been secured to allow the treatment and discharging
of the minimum amount of wastewater without the use of a pump in the eventof a blackout. The plant is equipped with a solar power generation system. A
small-scale hydroelectric power generation system, useful to reduce power
consumption, has also been newly installed, making the facility one that embodies
the “Build Back Better” approach.
Policy related to the construction of facilities that can generate biogas fromsludge was announced in 2022. Used for power generation and convert it into
energy by the private sector, the aim is both to reduce greenhouse gas emissions
and achieve economic efficiency through the sale of the gas.
*T.P. (Tokyo Peil) refers to the average sea level of Tokyo Bay, which sets thestandard for sea level height in Japan.

Exterior of the facility

23

３

害を最小限に抑える
御Assessment findings（３）Multiple layer defenses against tsunamis
After the Great East Japan Earthquake, group relocations of populations
living in the eastern coastal area were organized (see p. 24: Relocation toinland areas (project to promote group relocations for disaster prevention)).
Meanwhile, projects to build coastal embankments and elevated roads werecompleted by 2019.
Such initiatives reduce the impact of a tsunami. Meanwhile, initiatives suchas drills for residents using evacuation facilities assist in building multiple
defenses that protect both human lives and urban functions.
Diagram: Multiple layer defenses against tsunamis

Defense against a tsunami of the largest scale

Cross-section view(conceptual image)

Defense against a tsunami that occurs once every few decades to once every hundred years or more
Inland relocation

Residential area
Sendai Tobu Road

Evacuation
facilities

Evacuation road

Shiogama-Watari
Prefectural Road

Elevated road

Evacuation hills

Coastal disaster prevention forest
Coastal embankment

Parks (hills)

Beach
Teizan canalSea（４）Relocation to inland areas (project to promote group relocations for disaster prevention)
Even with multiple defenses in place, an area (of approximately 1,210
hectares) where the estimated flooding due to tsunami would exceed 2
meters was designated a disaster risk area in December 2011, and 1,540
local households were encouraged to relocate to safer regions in the west of
the city.
The development of the relocation site and the purchase of land werecompleted by 2016.

New homes in the collective relocation site（５）Utilization of disaster prevention collective relocation sites
In the aim of creating new appeal and value for the land (collective
relocation site) that was purchased by Sendai City under the project topromote collective relocations for disaster risk reduction, land is being leased
out to motivated citizens and businesses that have been selected through an
24

open-call process. It is being used in a self-directed way according to the freeideas of the private sector.
As of June 2021, land utilization has been decided in relation to 35
subdivisions and 18 businesses. Ventures such as a tourist orchard, a dog
run, and a complex (with hot springs, restaurants etc.) are creating new life in
the area.

Examples of the new site in use（６）Restoration of cultivated agricultural areas in the east of the city
The eastern part of Sendai was severely damaged by the tsunami. Drainage
pump stations were destroyed and farmland subsided, for example. To
support the resumption of commercial agriculture in this area, damaged landis being restored while concurrently undergoing conversion into large-sizedplots in order to improve productivity.
Under the initiative of national and prefectural governments, cultivated landis being upgraded through conversion into large-sized plots. City government
first promoted consensus building among local residents, with the projectcommencing in stages from 2013 and 2,000 hectares converted by FY2020.
Commercial farming resumed in 2014 on farmlands whose production basewas successfully put in order. Improvements to profitability are being sought
through efforts such as the incorporation of commercial farming organizations
and the consolidation of agricultural land.

Commercial farming resumed after the restoration of agricultural land（７）‌Supporting disaster-stricken areas based on the experience and lessons
learned from the Great East Japan Earthquake
Experience and knowledge gained from the Great East Japan Earthquake
allows Sendai to provide recovery and reconstruction support to otheraffected areas by dispatching personnel or providing relief supplies, forexample.
25

３

Assessment findings

After the 2016 Kumamoto earthquake, staff members who had been
involved in the operation of the Disaster Response Headquarters at the timeof the Great East Japan Earthquake were send to Kumamoto to act in thecapacity of advisors, offering counsel and recommendations based on theirexperiences. This was presented as a positive example in a report by the
Ministry of Internal Affairs and Communications on methods for dispatchingsupport staff.
In addition, while providing support tailored to the situation so as tominimize the time required for the recovery and reconstruction of disasterstricken areas, new insights and challenges arising from the situation arereflected in the Sendai City Disaster Support Plan (formulated in 2018), a
document that stipulates the details of the organizational structure andoperations for support from the Sendai to other cities.

NOTE: ‌Information on support personnel dispatched after the Great East
Japan Earthquake (actual personnel numbers, with some duplication)●July 2012: Torrential rains in northern Kyushu・‌Taketa, Oita Prefecture: disaster response support, disaster victim certification
administrative support, health activities support (12 people)
・Y‌ ame & Yanagawa, Fukuoka Prefecture: disaster response support, disastercertification administrative support (10 people)●April 2016: Kumamoto earthquakes

・‌K umamoto, Kumamoto Prefecture: disaster victim certification administrative
support, evacuation center management support etc. (269 people)●2016: Typhoon Lionrock (known in Japan as 2016 Typhoon No. 10)・‌Iwate Prefecture: emergency firefighting support team (231 people)●2018: Torrential rains in Western Japan・‌Soja, Okayama Prefecture: disaster victim certification administrative support, etc.
(103 people)・U‌ wajima, Ehime Prefecture: water supply restoration support (21 people)
・K‌ aita, Hiroshima Prefecture: health support for victims (15 people)●September 2018: Hokkaido Eastern Iburi earthquake・‌Shiraoi, etc.: dispatching an advance team (2 people)
・‌Sapporo: Disaster assessment advice for sewage pipes (2 people)
・‌Abira: health consultations (15 people)●June 2019: Yamagata offshore earthquake・‌Yamagata Prefectural Office: local liaison headquarters personnel (4 people)
・‌Tsuruoka, Yamagata Prefecture: disaster victim certification administrative support (2people)●2019: Typhoon Faxai (known in Japan as Reiwa 1 Boso Peninsula Typhoon or Typhoon #15)

・‌Minamiboso, Chiba Prefecture: disaster victim certification administrative support (6people)●2019: Typhoon Hagibis East Japan Typhoon (known in Japan as Reiwa 1 East Japan Typhoon or Typhoon No. 19)

・‌Miyagi Prefecture: emergency firefighting support team etc. (336 people)・‌Osaki, Marumori, Osato, Miyagi Prefecture: support for water supply activities (191people)・‌Fukushima Prefectural Office, etc.: support for restoration of sewage facilities (2people)・‌Iwaki, Soma, etc., Fukushima Prefecture: emergency water supply support (12people)●2021: Fukushima Prefecture offshore earthquake・‌M arumori, Yamamoto, Shiogama, Miyagi Prefecture: emergency water supply
support, support for restoration of sewage facilities (34 people)

26

IRIDeS evaluation of initiatives related to Priority 4
Hard measures such as the speedy emergency measures seen in the restorationof the Minami-Gamo Wastewater Treatment Plant, the creation of multiple
defenses in preparation for a tsunami, and land use policy related to disasterprevention collective relocation, together with soft measures that promote disasterrisk reduction through the synergy of self-help, mutual aid, and public assistanceboth serve to strengthen the advance preparations that are part of the recovery
and reconstruction process.
Seen to make significant reductions in Target A: “mortality rate,” Target B:“number of affected people,” Target C: “direct disaster economic loss,” and Target
D: “damage to critical infrastructure and disruption of basic services,” these efforts
assist in the reduction of disaster risk.

27

３

Assessment findings

3.2.5 Stakeholder responsibilities
In the promotion of the Sendai Framework for Disaster Risk Reduction, allstakeholders, including citizens, local organizations, academic institutions, andprivate sectors, are required to fulfill their respective roles and responsibilities.
In addition, multiple perspectives should also be reflected, including disaster risk
reduction measures from the perspective of gender.

Key initiatives undertaken by Sendai are as follows.
（１）Sendai Symposium for Disaster Risk Reduction and the Future

To ensure that the efforts of citizens at the Third UN World Conference on

Disaster Risk Reduction are not a one-time event, the Sendai Symposium forDisaster Risk Reduction and the Future, has been held every year since 2014as an event open to citizen participation.

Citizens, private sectors, NPOs, educational research institutions, and avariety of other stakeholders come together in an event where they can learn
and think about disaster risk reduction through exhibitions, presentations,and experiential content.

Diagram: The theme of each session, together with visitor numbers

Year held
2016

Theme
One Year After the UN World Conference on
Disaster Risk Reduction
Contributing to the future of disaster risk
reduction from Sendai and Tohoku

2017Communicating, sharing, and handing down
experiences

2018

Protecting lives, putting down roots in thecommunity
Corporate disaster risk reduction initiatives

Mar., 2019

The leading role of multi-stakeholders
We know and we act
Toward a future of disaster risk reduction

Nov., 2019

※Held inconjunction
with  World
Bosai Forum

Delivering our disaster preparedness

2020

Nine Years after the Great East Japan
Earthquake

To the world, to the future

Past progress, future thoughts
2021*Held for 2 days

Ten Years after the Great East Japan
Earthquake
For an even better future

Venue

Number ofattendees

SendaiInternational
CenterApprox.
2,500

SendaiInternational
CenterApprox.
1,600

El Park
Sendai127

SendaiInternational
CenterApprox.
3,500

SendaiInternational
CenterApprox.
3,700

El Park
SendaiSendaiInternational
CenterNone*Video
distribution

Approx.
4,300（Source of data: Sendai City City Planning Policy Bureau）

28

（２）‌Promotion of local disaster risk reduction from a gender equality
perspective (women and disaster risk reduction community development)

In the aftermath of the Great East Japan Earthquake, there were many

instances where women found themselves unable to demonstrate fullleadership in the management of evacuation centers or the process of

Age group

reconstruction.

It is important to create an environment
20s in9 which women can play an activerole as leaders in building disaster-resilient communities together. Since

2016, Sendai has run Decision-making and
30s Taking Action, a training program

or localolder community
to build human resources60sfor
development. In order to have
18
33

group
various people, including women, Ageparticipatingin local disaster risk reduction
20s 9
during normal times, in 2014, the city created
and ran a workshop program

40s

in collaboration with citizens50s
to consider
30s issues related to the management
35
of evacuation centers.

37

60s or older
33

18

40s
50s
35
37
Diagram: Numbers of participants who have completed the Decision-making and Taking Action training program

Age group

Organization
Organization
20s 9

60s or older
33

50s
37

30s
18

40s
35

Other
23

Other
23

Non-profit orsimilarorganizations
49

132 participants
completed the course(2016‒2021)

Neighborhood
association orcommunityorganizations
60

Neighborhood
association orcommunityorganizations
60

Non-profit orsimilarorganizations（Source of data: Sendai City Community Affairs Bureau）
49
Organization（３）BOSAI-TECH Innovation Creation Promotion Initiative

Since 2019, Sendai has been working under the theme of disaster risk

reduction and technology (BOSAI–TECH) with the aim of revitalizing local

industry through
Other the creation of disaster risk reduction-related ventures, anexample of23
which is experiments with technologies such as drones (see p.11:

Neighborhood
association or
The Sendai BOSAI–TECH Innovation Platform was established in Februarycommunity
2022. Participants include companies, organizations, and human resources
organizations
activein the fields
Non-profit
or of60disaster risk reduction, technology, and business. The
platform
is an arena for the ongoing creation of new solutions to various
similardisasterrisk reduction issues through a collaboration of industry, academia,organizations
49
government,
and finance. As of December 2022, the platform has more than
Tsunami Evacuation Information Drone).

140 members, including other municipalities in Japan and also domestic
29

３

Assessment findings

and foreign companies. It supports the creation of new ventures by member

companies and has plans to expand within the city, the country, andinternationallyas well.
（５）
ふるさとの杜再生プロジェクト

東日本大震災により、海岸防災林をはじめとした東部沿岸地域のみどりも甚大な被害（４）Cooperation with local governments, companies, research institutes, etc.
を受けた。
Preparedness for the occurrence of a large-scale disaster has been in
みどりの再生には、樹木を植えるだけでなく、その後の樹木の育成、保全等に多くの力
place since before the Great East Japan Earthquake. Under agreements forと時間が必要となる。このため平成
26 年（2014年）以降、市民・NPO・企業等と連携し
mutual support concluded between
municipalities,
local governments have

た植樹・育樹活動を行っている。
supported each other by dispatching personnel or providing supplies in timesof disaster.
Sendai also had agreements in place with private companies for（１）
自治体、企業、研究機関等との連携
a range of emergency
measures including public
relations activities and the
東日本大震災以前から、
大規模災害の発生に備え、自治体間で相互応援協定を締結し、supply of food and other goods, and has partnered with research institutes
職員派遣や物資提供の相互支援を行っている。また、広報活動、食料等物資の供給、そのon joint research projects that are playing a part in disaster risk reduction.
他の応急措置について、民間企業等との協定を締結しているとともに、研究機関等とも防In the wake of the Great East Japan Earthquake, Sendai received a variety of
災・減災に資する共同研究等を行っている。東日本大震災では、これらの協定等により、support from all over the country thanks to these agreements.
全国から様々な支援を頂いた。
Based on the lessons learned from the Great East Japan Earthquake, thecity is also working to have帰宅困難者対策や津波避難
private facilities made（エavailable
東日本大震災の教訓を踏まえて、
エラー! ブforックtsunami
マークがevacuationandas shelter for stranded commuters (see p. 24: Multiple
定義
されていません。頁「津波に備える多重防御」を参照）のための民間施設の利用も進
defenses against tsunamis), building a solid support and cooperative system
めており、多様なステークホルダーとの連携による強固な応援協力体制を構築している。
through collaboration with various stakeholders.
Diagram:Figures for signed support agreements
Diagram: Figures for signed support agreements

Number of agreements signed

250

200

177

150

132

100
67

81

93

100 105

144

184

197

206

214

228 233160

109 11350

020052006200720082009201020112012201320142015201620172018201920202021
Number of agreements signed（Source of data: Sendai City Crisis Management Bureau）(Source of data: Sendai City Crisis Management Bureau)

30

NOTE: ‌Strategies taken in collaboration with companies to respond to【コラム】企業などと連携した帰宅困難者対策
stranded commuters
東日本大震災では、公共交通機関の運行停止により、観光客を含む 1 万人を超えAfter the Great East Japan Earthquake, more than 10,000 people, including

tourists, found themselves unable to return home due to the suspension of public
る帰宅困難者が発生し、最寄りの避難所に殺到するなど混乱が生じた。

transport services and caused great confusions as they streamed into the nearest
これを教訓として、仙台駅などの交通結節点周辺において、交通事業者・ホテル・
evacuation shelters.
Learning from this, the city has secured
temporary accommodation for stranded
商業施設・大学などの協力を得て、帰宅困難者を受け入れる一時滞在場所を確保し
commuters in the vicinity of transportation hubs such as Sendai Station throughている。
the cooperative efforts of transportation operators, hotels, commercial facilities,
JR 仙台駅及び長町駅周辺の地区では、関係者が連携、協力し、災害発生時のuniversities,
and JRothers.
In the aim of preventing confusion in the event of a disaster, concerned parties
混乱を防ぐことを目的に「帰宅困難者対策連絡協議会」を設立している。協議会でin the areas around JR Sendai and JR Nagamachi stations have worked together
は、駅周辺における事業者の共助の取組みを示した「帰宅困難者対応指針」を策定
to set up a liaison council for responding to people who have been stranded
and are unable to return home. The council has drawn up a set of guidelines for
し、事業所からの一斉帰宅の抑制の周知など、災害時の取組みや役割分担を定める
responding to stranded people, a clear demonstration of the efforts toward mutualとともに、定期的に訓練を実施している。
assistance made by business operators in the station areas.
Temporary accommodation for stranded people and figures for the
NumberDiagram:of temporary
accommodations for stranded people and their capacity
number of people accommodated

14,39014

52012201320142015201620172018201920202021

15,00010,0005,000

Capacity

30

14,400

Number of facilities

29

14,150

4

10

12

11,610

0

7,400

5

5,800

10

10,76015

10,40020

29
14,40026

25

29
14,40030

0Capacity
Number of facilities that can accommodate stranded people（Source of data: Sendai City Crisis Management Bureau）(Source of data: Sendai City Crisis Management Bureau)31３Assessment findings

IRIDeS evaluation of initiatives taken by stakeholders
Opportunities such as the running of the Sendai Symposium for Disaster Risk
Reduction and the Future, the promotion of women's leadership, and promoting
the creation of innovation in BOSAI–TECH are participated in by diverse
stakeholders from industry, government, academia, and the citizens of Sendai, andare all initiatives that will help mainstream disaster risk reduction.
BOSAI-TECH, an initiation that shares and rolls out disaster risk reduction
technology both in Japan and overseas, is a contribution to global Target F:“enhance international cooperation.” The running of the Sendai Symposium forDisaster Risk Reduction and the Future and the promotion of women's leadership
are important initiatives that address all of Targets A to G.

32

3.2.6 International cooperation and global partnerships
The Sendai Framework for Disaster Risk Reduction calls for countries andinternational organizations to play a central role in providing ongoing support todeveloping countries and other countries vulnerable to disaster damage. At more
local levels such as that of local government, it is necessary to utilize different
networks to enhance access to knowledge and the sharing of information.

Key initiatives undertaken by Sendai are as follows.
（１）‌Widespread information sharing through international conferences and hosting visits
Since the 国際協力とグローバル・パートナーシップ
Great East Japan Earthquake, Sendai has played a role as adisaster-stricken area to make a contribution to disaster risk reduction
仙台防災枠組では、各国や国際機関が中心となり、災害による被害を受けやすい開発
around the world. The city shares information on the current state of
途上国などへ継続的に支援を行うことが必要とされている。自治体などの地域レベルでreconstruction and on experiences of and lessons learned in the earthquake.
も、様々なネットワークを活かし、知識へのアクセスや情報共有を強化することが求め
In particular,
with the hosting of the Third UN World Conference on Disaster
られている。
Risk Reduction and the adoption of the Sendai Framework for Disaster Risk
仙台市の主な取組みは以下のとおりである。
Reduction,
Sendai has actively participated in international conferences
hosted by organizations such as the United Nations Office for Disaster Risk
Reductiondisseminating information on initiatives taken by the city.
（１） (UNDRR),
国際会議や視察の受け入れなどを通じた情報発信
Examples include the Global Platform for Disaster Risk Reduction and the
東日本大震災以降、被災地として世界の防災・減災に貢献するため、復興の現状と震災
Asia Ministerial Conference on Disaster Risk Reduction. Additionally, the cityから得た経験・教訓の発信を行ってきた。特に、「第 3 回国連防災世界会議」の開催と仙has been communicating widely both in Japan and overseas using pamphlets,
台防災枠組の採択を契機として、
newsletters,
and the Internet, 「国連防災グローバルプラットフォーム会合」や、
on the topics of reconstruction efforts 「アジandア太平洋防災閣僚級会合」などの国連防災機関（UNDRR）等が主催する国際会議に積極的
lessons learned from the earthquake.
に参加し、本市の取組みを発信している。また、パンフレット、ニューズレター、WEB
In addition
to giving presentations at conferences both in Japan andを
overseas,
thecityenthusiastically hosts visits from companies, people involved
活用し、震災の教訓や復興の取組みを国内外へ広く伝えている。
in disasterrisk reduction in Japan and overseas, and other organizations such
また、海外・国内の会議での発表のほか、独立行政法人国際協力機構（JICA）が主催す
as the Training Center for Gender & Disaster Risk Reduction, sponsored byるジェンダー防災研修など、国内外の防災関係者・企業などの視察を積極的に受け入れて
the Japan International Cooperation Agency (JICA). Since 2020, such visitsいる。令和 2 年（2020 年）からは新型コロナウイルス感染症の影響により受け入れ数がhave declined in number due to the impact of Covid-19, although informationis still減少しているが、オンラインも活用し発信を続けている。
being disseminated via the Internet.
Diagram:Numberpersons
acceptedfor overseas
training
Diagram:Figuresoffor
the hostingof inspection
tours, visits,
training
programs, etc.
841

900

NumberNumber ofofpersonspeople

800

781

781

700
600
500

431

400
300
200
100
0

79

62

19
2014

2015

2016

2017

2018

2019

2020

27
2021

Figuresfor participants
iinfortraining
programs,
etc.
of persons
acceptedoverseas
visits, training■ Number(Source of data:
SendaiofCity
Bureau)（Source
data:Community
Sendai CityDevelopment
City PlanningPolicy
Policy Bureau）
33

３

Assessment findings

NOTE: ‌Recognition as a Disaster Risk Reduction Role Model City by theUnited Nations Organization for Disaster Risk Reduction (UNDRR)

From 2011–2020,   the United Nations Organization for Disaster Risk Reduction(UNDRR) ran a campaign for global risk reduction called Making Cities Resilient.
Under the campaign, Sendai was ranked as a Role Model City for advanced
disaster risk reduction, coming 35th in the world (the first such case in Japan was
Hyogo Prefecture).
Approximately 1,400 cities participated in the campaign. Of them, those thathave implemented initiatives that serve as models for disaster risk reduction
in other countries around the world were officially recognized by the UNDRR.
Sendai's efforts toward disaster risk reduction, which commenced prior to theearthquake, and its work on disaster mitigation at the community level, carriedout in cooperation with citizens in reconstruction projects, and human capacity
building that supports the taking of action for mitigation, were all highly evaluated.
The above campaign ended in 2020. Meanwhile, Sendai has become the firstJapanese municipality to participate in the follow-up initiative: Making Cities
Resilient 2030.
Sendai also takes part in Sendai Framework Voluntary Commitments, a UNDRR
portal website where organizations from all countries can voluntarily inform others
about actions they have taken toward implementing the Sendai Framework. Efforts
presented on the portal feature training programs to develop women’s leadership(see p.29: Promotion of local disaster risk reduction from a gender equality
perspective (women and disaster risk reduction community development)).

（２）‌Cooperation in hosting the World Bosai Forum / IDRC in Sendai
The World Bosai Forum is an international conference that has been held
regularly in Sendai since 2017 under an agreement between IRIDeS and theInternational Disaster and Risk Conference (IDRC Davos) held in Switzerland.
While IDRC Davos focuses on experts in the field, the World Bosai Forum isdistinctive for having programs in which a wide range of citizens are welcome
to participate.
A member of the executive committee, Sendai City offers its support inholding the conference. Presenting the Sendai Symposium for Disaster Risk
Reduction and the Future (see p. 28) concurrently, the city is attempting tocreate synergies in providing Sendai citizens opportunities for exchange withinternational experts, as it also encourages them to come into contact withthe world's most advanced disaster risk reduction knowhow.

A panel at the World Bosai Forum

34

IRIDeS evaluation of international cooperation
Sendai’s proactive stance in hosting companies and people in charge of disastermanagement both in Japan and overseas, including announcing its hopes to hostthe Third UN World Conference on Disaster Risk Reduction in 2015, represents animportant effort to share its experiences and lessons from the Great East Japan
Earthquake with the world.
In terms of their promotion of international cooperation and strengthening of
global partnerships, these initiatives are contributions to global Target F: “enhanceinternational cooperation.”35

３

Assessment findings

3.3 Analysis findings for data related to the seven global targets
3.3.1 Global target assessment indicators
Required data and assessment indicators for the seven global targets havebeen organized in accordance with UNDRR guide on assessment indicators (*).

Targets aimed at reductions (Targets A to D) were quantitatively assessed

based on data related to disaster damage and other factors. Meanwhile, as theindicators outlined in the UNDRR guide are used to monitor initiatives taken at
the national level, for targets aimed at increases (Targets E to G), we decided to
study trends in changes in the implementation of initiatives taken by Sendai City
that are related to the indicators.

（*）
Sendai Framework for Disaster Risk Reduction guide on assessment indicators

Technical Guidance for Monitoring and Reporting on Progress in Achieving the
Global Targets of the Sendai Framework for Disaster Risk Reduction: Collection ofTechnical Notes on Data and Methodology (UNISDR, 2017)
Diagram: Assessable global targets and assessment indicators
Global Target
Substantially reduce global disaster mortality by
A

Index
A-1

2030, aiming to lower the average per 100,000 global (combined)mortality rate in the decade 2020‒2030 compared to

A-2

Disaster mortality per 100,000

the period 2005‒2015

A-3

Missing people by disaster per 100,000

B-1

B(combined)

globally by 2030, aiming to lower the average global

B-2

Number of people who were injured by or fell sick due to a disaster per 100,000

figure per 100,000 in the decade 2020‒2030

B-3

Number of people whose residence was damaged

compared to the period 2005‒2015

B-4

Number of people whose residence was completely destroyed

B-5

Number of people whose foundation for life was either damaged or lost(combined)
C-2
Reduce direct disaster economic loss in relation to
global gross domestic product (GDP) by 2030

C-3
C-4
C-5
C-6
D-1
(combined)
D-2

Substantially reduce disaster damage to criticalD

Number of people directly affected by disasters per 100,000

Substantially reduce the number of affected people

C-1

C

Disaster mortality and missing people per 100,000

infrastructure and disruption of basic services,among them health and educational facilities,
including through developing their resilience by 2030

D-3
D-4
D-5
(combined)

Direct economic loss caused by disasters compared to GDP
Direct agricultural loss caused by disasters
Direct economic loss of other production facilities that were either damaged orcompletely destroyed by disasters
Direct economic loss of housing sector due to disasters
Direct economic loss from critical infrastructure either being damaged or completely
destroyed by disasters
Direct economic loss from cultural heritage either being damaged or completely
destroyed by disasters
Damage to critical infrastructure caused by disasters
Number of health facilities either completely destroyed or damaged by disasters
Number of educational facilities either completely destroyed or damaged bydisasters
Number of other critical infrastructure departments and facilities either completely
destroyed or damaged by disasters
Number of disruptions to basic services caused by disasters

D-6

Number of disruptions to educational services caused by disasters

D-7

Number of disruptions to health services caused by disasters

D-8

Number of disruptions to other basic services caused by disasters

Substantially increase the number of countries with
E national and local disaster risk reduction strategies

E-1~2

by 2020Substantially enhance international cooperation todeveloping countries through adequate andF sustainable support to complement their national

F-1~8

actions for implementation of the present

Sendai City's Relevant Initiatives
and Current Status

Framework by 2030
Substantially increase the availability of and access
G to multi-hazard early warning systems and disasterG-1~6

risk information and assessments to people by 2030

36

3.3.2 Disasters assessed in this report
This report is based on the assessment of disasters that occurred between

2005 and 2021. Major disasters outlined below.

Small-scale disasters other than those listed below were also part of theassessment.

（１）Earthquakes

The 2011 Great East Japan Earthquake is one of the most serious

earthquakes to have struck Sendai. At around 2:46 p.m. on March 11th, 2011,

an earthquake occurred with an epicenter off the coast of Sanriku (38°06.2'N,142°
51.6’E). The maximum magnitude recorded in Japan was 9.0, while themaximum seismic intensity (on the Japanese scale) in the city limits was 6+,

recorded in Miyagino Ward. The earthquake triggered a tsunami who height
reached an estimated 7.1 meters at Sendai Port. The largest aftershock wasrecorded on April 7th with a magnitude of 7.2 and a seismic intensity of 6+
in Miyagino Ward.

Other major disasters that have occurred in Sendai are as follows.
Diagram: Main earthquakes occurring within the assessment period

Date

Earthquake

Overview of earthquake

June 14th,
2008

Iwate-Miyagi Nairiku
earthquake

Magnitude: 7.2
Maximum seismic intensity in city: 5+

February 27th,
2010

Earthquake with epicenter off
the coast of central Chile

Magnitude: 8.6
Tsunami warning issued for Miyagi
Prefecture (major tsunami)

March 11th,
2011

Great East Japan Earthquake

Magnitude: 9.0
Maximum seismic intensity in city: 6+
Tsunami warning issued for Miyagi
Prefecture (major tsunami)

August 30th,
2012

Earthquake with epicenter off
the coast of Miyagi Prefecture

Magnitude: 5.6
Maximum seismic intensity in city: 5+

November 22nd,
2016

Earthquake with epicenter
off the coast of Fukushima
Prefecture

Magnitude: 7.4
Maximum seismic intensity in city: 4
Tsunami warning issued for Miyagi
Prefecture

February 13th,2021

Earthquake with epicenter
off the coast of Fukushima
Prefecture

Magnitude: 7.3
Maximum seismic intensity in city: 5+

March 20th,2021

Earthquake with epicenter off
the coast of Miyagi Prefecture

Tsunami warning issued for Miyagi
Prefecture
Magnitude: 6.9
Maximum seismic intensity in city: 5+

May 1st,2021

Earthquake with epicenter off
the coast of Miyagi Prefecture

Maximum seismic intensity in city : 5Magnitude: 6.8

Source of data: Sendai City website listing of past major disasters experienced in Sendai, Sendai
Regional Disaster Prevention Plan (General Edition)37

３

Assessment findings（２）Storm and flood damage

In recent years, Sendai has been experiencing increasingly severe weather

conditions, including brief torrential rainstorms. Disaster patterns are alsochanging, with an increase in urban flooding and landslides occurring in builtup areas. Major disasters that have occurred in Sendai are as follows.

Table: Major storm and flood damage occurring within the assessment period

DateType ofdamageCause of disaster

September
20th–21st,2011

flood andstorm
damageTyphoon Roke(2011 Typhoon
No. 15 in Japan)

Total rainfall: 318.0mm (20th–21st)Max. rainfall/hr: 51.0mm
Max. instantaneous wind speed: 23.2m/s

June
19th–20th,2012

flood andstorm
damageTyphoon Guchol(2012 Typhoon
No. 4 in Japan)

Total rainfall: 134.5mm (19th–20th)Max. rainfall/hr: 31.0mm
Max. instantaneous wind speed: 22.3m/s

September
30th, 2012

flood andstorm
damageTyphoon Jelawat(2012 Typhoon
No. 17 in Japan)

Total rainfall: 26.5mm (30th–1st)Max. rainfall/hr: 11.5mm
Max. instantaneous wind speed: 26.3m/s

September10th–11th,
2015

flood
damageTropical Storm Etau
(2015 Typhoon
No. 18 in Japan)

Total rainfall: 271.5mm (10th–11th)
Max. rainfall/hr: 50.0mm

flood andstorm
damageTyphoon Hagibis
East Japan Typhoon(Reiwa 1 East
Japan Typhoon or
Typhoon No. 19 inJapan)

Total rainfall: 383.5mm (11th–13th)
Max. rainfall/hr: 63.5 mm
Max. instantaneous wind speed: 30.4m/s

October
12th–13th,
2019

Weather records for Sendai area

Source of data: Sendai City website listing of past major disasters experienced in Sendai,
Sendai Regional Disaster Prevention Plan (General Edition)

38

3.3.3 Collection and analysis of disaster damage data
After discussions between Sendai City and IRIDeS, city government agreed torelease data and documents on disaster damage that was related to assessment
indicators.

Data was collected from the relevant government departments, then aggregatedusing an assessment formula in accordance with the UNDRR guide for assessment

indicators.

Diagram: Data related to assessment indicators
Type ofdamageName of data/document

Government
department

Related assessment
indicators

Deaths, etc.

Ledger of disaster-related condolencemoney payments

Health andWelfareBureauA-2、A-3

Negative
Injuries, etc.

Emergency transportation data

Fire Bureau

B-2

Building

List of issued certificates of disaster

Finance
BureauB-3、B-4、B-5、
C-3、C-4、C-5

Agriculture

Damage survey reports; reports ondamage to crops, etc.; damage reports

Economic
Affairs Bureau

B-5、C-2

Medicalfacilities

Fukushima earthquake damage report

Health andWelfareBureauC-5、D-2、D-7

Educational
facilities

Response forms on damage to educational
facilities, school closures, etc.

Education
BureauC-5、D-3、D-6

Culturalproperties

List of subsidized projects for disasterrelated restoration of cultural properties

Education
BureauC-6

Sewagefacilities

List of post-disaster assessment of sewage
facilities

Construction
BureauC-5、D-4、D-8

Diagram: Documents related to assessment indicators (collections of records, etc.)
Type ofdamageRelated assessment
indicators

Medicalfacility

Records of the Great East Japan
Earthquake (*)-

Gas facility

Great East Japan Earthquake: Records ofRestoration

Gas Bureau

Waterworks
facility

Great East Japan Earthquake: Records of
the Restoration of Sendai City Waterworks

Waterworks
BureauMajor disasters Experienced by Sendai in
the Past (data on Sendai City website)

CrisisManagement
BureauC-5、D-4、D-8

Great East Japan Earthquake Sendai City:  
Collection of Earthquake Records

Community
Development
Policy Bureau

B-5、C-2、D-4、D-8

Great East Japan Earthquake Sendai City:
Collection of Records after Five Years ofReconstruction

Community
Development
Policy Bureau

B-5、C-2、D-4、D-8

Generaldamage(*) Issued by the Sendai City Medical Association

39

Government
department

Name of data/document

C-5、D-2、D-7

C-5、D-4、D-8

３

Assessment findings

3.3.4 Assessment findings from the monitoring of indicators（１）Assessment findings for Targets A to D

Each indicator was compared and assessed according to average values

for the assessment period (2005–2014/2015–2021). It was found thattargets were achieved for almost all assessment indicators. In addition,
the assessment revealed a target achievement of greater than 90% for the
majority of assessment indicators.

The assessment period of the Framework was taken into account, and themonitoring and assessment were conducted working solely with disasters
that actually occurred during the parameters of the period. When factors

such as the frequency of disasters and the interval of time between theoccurrence of earthquakes are taken into consideration, it should be notedthat there are limitations to direct assessment in the first and second halvesof the time period.

Diagram: Monitoring and assessment results for Targets A to D [All disasters]
Global Target
Assessment Index

Assessment Result (All Disasters)
Annual Average (2005–2014) Annual Average (2015–2021)

Progress○: Achieved／ Not achieved△:

A Substantially reduce global disaster mortality by 2030, aiming to lower the average per 100,000 global mortality rate in the decade 2020–
2030 compared to the period 2005–2015
A-1

Disaster mortality and missing people per 100,000

5.22 /100,000

0.03 /100,000

○

-99%

A-2

Disaster mortality per 100,000

4.99 /100,000

0.03 /100,000

○

-99%

A-3

Missing people by disaster per 100,000

0.24 /100,000

0.00 /100,000

○

-100%

(combined

B Substantially reduce the number of affected people globally by 2030, aiming to lower the average global figure per 100,000 in thedecade 2020–2030 compared to the period 2005–2015
B-1

Number of people directly affected by disasters per(combined 100,000
B-2
B-3
B-4
B-5

Number of people who were injured by or fell sickdue to a disaster per 100,000
Number of people whose residence was damaged
Number of people whose residence was completely
destroyed
Number of people whose foundation for life waseither damaged or lost

7,899 /100,000
22 /100,000

508 /100,000

-94%

○

-97%

2,946

○

-94%

6,340

2

○

-100%

28,060

2,599

○

-91%

48,061

1 /100,000○

C Reduce direct disaster economic loss in relation to global gross domestic product (GDP) by 2030
C-1

Direct economic loss caused by disasters compared(combined to GDP
C-2

Direct agricultural loss caused by disasters

2.98 %

0.05 %○-98%

7,369 million yen

439 million yen

○

-94%

11,342 million yen

11 million yen

○

-100%

99,109 million yen

10 million yen

○

-100%

12,007 million yen

1,966 million yen

○

-84%

17 million yen

0 million yen

○

-100%

Direct economic loss of other production facilities
C-3

that were either damaged or completely destroyed
by disasters

C-4

Direct economic loss of housing sector due todisasters
Direct economic loss from critical infrastructure

C-5

either being damaged or completely destroyed bydisasters
Direct economic loss from cultural heritage either

C-6

being damaged or completely destroyed bydisasters

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
D-1

Damage to critical infrastructure caused by(combined disasters
D-2
D-3

Number of health facilities either completely
destroyed or damaged by disasters
Number of educational facilities either completely
destroyed or damaged by disasters

137 cases/100,000

5 cases/100,000

○

-96%

39 cases

15 cases○-62%

27 cases

20 cases○-26%

1,364 cases

19 cases○-99%

5,742 cases/100,000

12 cases/100,000

○

-100%

29 cases△／45%

Number of other critical infrastructure departments
D-4
D-5

and facilities either completely destroyed ordamaged by disasters
Number of disruptions to basic services caused by(combined disasters
D-6
D-7
D-8

Number of disruptions to educational services
caused by disasters
Number of disruptions to health services caused bydisasters
Number of disruptions to other basic services
caused by disasters

20 cases
19 cases

4 cases○-77%

60,078 cases

99 cases○-100%*D-6 “Number of disruptions in educational services due to disasters” represents thetotal number of schools that were closed, but does not take into consideration thelength of time of the closures. (Includes temporary closures due to heavy rain.)40１）Earthquakes and tsunamis

Damage from earthquakes and tsunamis has been on a downward trend

since the Great East Japan Earthquake. All assessment indicators targets
were achieved.

Diagram: Monitoring and assessment results for targets A to D: Earthquakes and tsunamis
Global Target
Assessment Index

Assessment Result (All Disasters)
Annual Average (2005–2014) Annual Average (2015–2021)

Progress○: Achieved／ Not achieved△:

A Substantially reduce global disaster mortality by 2030, aiming to lower the average per 100,000 global mortality rate in the decade 2020–
2030 compared to the period 2005–2015
A-1(combined
A-2
A-3

Disaster mortality and missing people per 100,000

5.22 /100,000

0.00 /100,000

○

-100%

Disaster mortality per 100,000
Missing people by disaster per 100,000

4.99 /100,000
0.24 /100,000

0.00 /100,000
0.00 /100,000

○
○

-100%
-100%

7,895 /100,000

309 /100,000

○

-96%

○

-97%

B Substantially reduce the number of affected people globally by 2030, aiming to lower the average global figure per 100,000 in thedecade 2020–2030 compared to the period 2005–2015
B-1
Number of people directly affected by disasters per(combined 100,000
Number of people who were injured by or fell sickB-2
due to a disaster per 100,000
B-3
B-4
B-5

Number of people whose residence was damaged
Number of people whose residence was completely
destroyed
Number of people whose foundation for life waseither damaged or lost

22 /100,000

1 /100,000

48,061

2,381

○

-95%

6,340

0

○

-100%

28,019

1,000

○

-96%

C Reduce direct disaster economic loss in relation to global gross domestic product (GDP) by 2030
C-1
Direct economic loss caused by disasters compared2.98 %(combined to GDP
7,347 million yen
C-2
Direct agricultural loss caused by disasters

○

-99%

60 million yen

○

-99%

11,342 million yen

3 million yen

○

-100%

99,109 million yen

0 million yen

○

-100%

12,005 million yen

1,652 million yen

○

-86%

17 million yen

0 million yen

○

-100%

0.03 %

Direct economic loss of other production facilities
C-3

that were either damaged or completely destroyed
by disasters

C-4

Direct economic loss of housing sector due todisasters
Direct economic loss from critical infrastructure

C-5

either being damaged or completely destroyed bydisasters
Direct economic loss from cultural heritage either

C-6

being damaged or completely destroyed bydisasters

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
D-1

Damage to critical infrastructure caused by(combined disasters
D-2
D-3

Number of health facilities either completely
destroyed or damaged by disasters
Number of educational facilities either completely
destroyed or damaged by disasters

137 cases/100,000

4 cases/100,000

○

-97%

39 cases

15 cases○-62%

27 cases

19 cases○-31%

1,363 cases

6 cases○-100%

5,742 cases/100,000

1 cases/100,000

○

-100%

20 cases

0 cases○-98%

19 cases

4 cases○-77%

60,078 cases

12 cases○-100%

Number of other critical infrastructure departments
D-4
D-5

and facilities either completely destroyed ordamaged by disasters
Number of disruptions to basic services caused by(combined disasters
D-6
D-7
D-8

41

Number of disruptions to educational services
caused by disasters
Number of disruptions to health services caused bydisasters
Number of disruptions to other basic services
caused by disasters

３

Assessment findings２）Storm and flood damage

Although storm and flood damage is small in scale compared to thatcaused by earthquakes and tsunamis, this investigation revealed anincrease in damage in recent years. Looking specifically at individual

indicators, while there was no significant difference in human damage(deaths, injuries, etc.) between the first half and the second halves of
the assessment period, property damage (damage to homes/businesses,etc.), damage related to agriculture and fisheries, and damage to social

infrastructure (economic losses, disruptions to services, etc.) were shown
to be on the rise, especially in recent years.

Diagram: Monitoring and assessment results for targets A to D (Storm and flood damage)
Global Target
Assessment Index

Assessment Result (All Disasters)
Annual Average (2005–2014) Annual Average (2015–2021)

Progress○: Achieved／ Not achieved△:

A Substantially reduce global disaster mortality by 2030, aiming to lower the average per 100,000 global mortality rate in the decade 2020–
2030 compared to the period 2005–2015
A-1

Disaster mortality and missing people per 100,000

0.00 /100,000

0.03 /100,000／△

Increased

A-2

Disaster mortality per 100,000

0.00 /100,000

0.03 /100,000／△

Increased

A-3

Missing people by disaster per 100,000

0.00 /100,000

0.00 /100,000○ー(combined

B Substantially reduce the number of affected people globally by 2030, aiming to lower the average global figure per 100,000 in thedecade 2020–2030 compared to the period 2005–2015
B-1
Number of people directly affected by disasters per(combined 100,000
Number of people who were injured by or fell sickB-2
due to a disaster per 100,000
B-3
B-4
B-5

Number of people whose residence was damaged
Number of people whose residence was completely
destroyed
Number of people whose foundation for life waseither damaged or lost

4 /100,000

200 /100,000

／
△

4988%

0 /100,000

0 /100,000

○

ー

0

565

／
△

Increased

0

2

／
△

Increased

41

1,599

／
△

3772%

C Reduce direct disaster economic loss in relation to global gross domestic product (GDP) by 2030
C-1
Direct economic loss caused by disasters compared0.00 %(combined to GDP
22 million yen
C-2
Direct agricultural loss caused by disasters

0.01 %／△

2712%

379 million yen

／
△

1651%

0 million yen

9 million yen／△

Increased

0 million yen

10 million yen／△

Increased

1 million yen

314 million yen／△

21751%

0 million yen

0 million yen○ーDirect economic loss of other production facilities
C-3

that were either damaged or completely destroyed
by disasters

C-4

Direct economic loss of housing sector due todisasters
Direct economic loss from critical infrastructure

C-5

either being damaged or completely destroyed bydisasters
Direct economic loss from cultural heritage either

C-6

being damaged or completely destroyed bydisasters

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
D-1

Damage to critical infrastructure caused by(combined disasters
D-2
D-3

Number of health facilities either completely
destroyed or damaged by disasters
Number of educational facilities either completely
destroyed or damaged by disasters

0 cases/100,000

1 cases/100,000

／
△

7267%

0 cases

0 cases○ー

0 cases

1 cases／△

Increased

0 cases

13 cases

／
△

6614%

0 cases/100,000

11 cases/100,000／△

Increased

0 cases

28 cases／△

Increased

0 cases

0 cases○ー

0 cases

87 cases／△

Increased

Number of other critical infrastructure departments
D-4
D-5

and facilities either completely destroyed ordamaged by disasters
Number of disruptions to basic services caused by(combined disasters
D-6
D-7
D-8

Number of disruptions to educational services
caused by disasters
Number of disruptions to health services caused bydisasters
Number of disruptions to other basic services
caused by disasters

42

（２）Assessment findings for Targets E to G

Among the various initiatives described in 3.2. Progress and results in

implementing initiatives related to the four priorities for action, annual figures

were examined for initiatives that are highly relevant to the assessment
indicators. All such initiatives are on an upward trend and can be considered
to have achieved the relevant targets.

Details of the assessment are as follows.
Diagram: Assessment findings for initiatives related to Targets E to G
Global Target
Relevant initiatives by Sendai City and their situation
E

／ Not
△:

achieved

Substantially increase the number of countries with national and local disaster risk reduction strategies by 2020

Number of evacuation centers with localized operation manuals completed
F

Progress○: Achieved○

Substantially enhance international cooperation to developing countries through adequate and sustainable support tocomplement their national actions for implementation of the present Framework by 2030
Figures for participants in training programs, etc.

○

G Substantially increase the availability of and access to multi-hazard early warning systems and disaster risk information andassessments to people by 2030
Sendai City Crisis Management Bureau Twitter account, number of followers

43

○

３

Assessment findings

１）Initiatives related to Target E (local disaster risk reduction strategies)

Sendai City's disaster risk reduction strategies include the Sendai Regional

Disaster Prevention Plan (see p. 13) and the Sendai City National Resilience

Regional Plan (see p. 13), in addition to the Sendai City Earthquake Disaster
Reconstruction Plan, which is designed to comprehensively address various
initiatives for recovery from the Great East Japan Earthquake.

These plans function as both local disaster risk reduction strategies(corresponding to assessment indicator E-1) in line with with Japan’snational strategy, and also as disaster risk reduction strategies(corresponding to assessment indicator E-2) in line with the Sendai

Framework for Disaster Risk Reduction. As such, initiatives related to Target

E can be considered to be in implementation.
り避難所ごとの運営のあり方を再検討し、各避難所の地域特性を踏まえた独自の「地域We focused on the number of evacuation shelters for which localized
版避難所運営マニュアル」を作成している。

operation manuals have been completed (see p.15) and the relationships

各地域においては、「地域版避難所運営マニュアル」に基づき、地域特性を考慮しつつ、
of evacuation shelters as an initiative that can be quantitatively assessed

女性や障がい者、外国人への対応も取り入れるなど、多様なニーズに配慮しながら、避難in terms of disaster risk reduction strategies, and examined annual figures,所の運営に取り組んでいる。
looking at fluctuations over time.

多様化する自然災害や避難所での感染症対策に対応するため、新たな雛形となる「大雨
The preparation of localized manuals has sped up since2014, reachingan achievement rate of 100% of evacuation centers in 2018. Since then,
時避難・開設編」や「新型コロナウイルス対策追加事項」の追加も行っており、各地域に
there has been a slight increase in the number of designated evacuation
おいて「地域版避難所運営マニュアル」への反映を行っている。
centers, however, the achievement rate has remained at a high level.

Diagram: Figures for evacuation centers with localized operations manuals completed
84%

94%

98%

100%

99%

99%

99%

200

80%
191

150
100
50
0

100%

38%

191
160

193 190193 193193 193194 193195 194195
182

40%

73

2014

60%

20%

2015

2016

2017

2018

2019

2020

2021

0%

completed manuals

Number of evacuation centers

250

Percentage of evacuation centers with

Diagram: Figures for evacuation centers with localized operation manuals completed (duplicated)

Number of evacuation centers with localized operation manuals completed
Number of evacuation centers
Percentage of evacuation centers with completed manuals（Source of data: Sendai City Community Affairs Bureau）(Source of data: Sendai City Citizen’s Bureau)（１） 仙台市地域防災リーダー（SBL）の養成「仙台市地域防災リーダー（SBL）」は、平常時には地域の特性を考慮した自主防災計画
づくりや効果的な訓練を企画・実践するなど、予防活動の中心的役割を担い、災害時には避難誘導や救助・救護活動を指揮するなど、地域の自主防災組織の核となる活動を行う人

44

国際協力とグローバル・パートナーシップ
仙台防災枠組では、各国や国際機関が中心となり、災害による被害を受けやすい開発
２）Initiatives related to Target F (international cooperation)
途上国などへ継続的に支援を行うことが必要とされている。
自治体などの地域レベルでSendai’s efforts to disseminate information by hosting international
も、様々なネットワークを活かし、知識へのアクセスや情報共有を強化することが求め
conferences and inspection tours (see p.33) are examples of the city’sられている。
work for international cooperation. Of these, we studied figures for the
仙台市の主な取組みは以下のとおりである。
number of international visitors accepted for inspection tours and trainings,
an initiative that can be quantitatively assessed.
Figures saw a striking increase after the Third UN World Conference on（１） 国際会議や視察の受け入れなどを通じた情報発信
Disaster Risk Reduction held in 2015, with participants in 2017 reaching a
東日本大震災以降、被災地として世界の防災・減災に貢献するため、復興の現状と震災
record hight of 841 persons.
から得た経験・教訓の発信を行ってきた。特に、「第 3 回国連防災世界会議」の開催と仙Training programs and the like have taken on wide-ranging themes,
台防災枠組の採択を契機として、「国連防災グローバルプラットフォーム会合」や、「アジ
including reconstruction, disaster risk reduction, women's leadership,
ア太平洋防災閣僚級会合」などの国連防災機関（UNDRR）等が主催する国際会議に積極的
and collaboration with citizens. Programs are presented not only byに参加し、本市の取組みを発信している。また、パンフレット、ニューズレター、WEBを
government officials, but by people from various walks of life, thus serving
to spread the concept of citizen-led community disaster risk reduction.
活用し、震災の教訓や復興の取組みを国内外へ広く伝えている。
Many of the trainees come from countries that, like Japan, are prone to
また、海外・国内の会議での発表のほか、独立行政法人国際協力機構（JICA）が主催す
natural disasters. Sendai’s experience with earthquakes and efforts towards
るジェンダー防災研修など、国内外の防災関係者・企業などの視察を積極的に受け入れて
disaster risk reduction are considered to be useful references.
いる。令和 2 年（2020 年）からは新型コロナウイルス感染症の影響により受け入れ数がSince 2020, however, figures have decreased because of immigration
減少しているが、オンラインも活用し発信を続けている。
restrictions due to the Covid-19 pandemic.
Diagram:persons
acceptedfor overseas
visits,training  (duplicated)
Diagram:Number
Figuresoffor
the hostingof inspection
tours,
training
programs, etc.

841

900

NumberNumber ofof persons
people

800

781

781

700
600
500

431

400
300
200
100
0

79

62

19
2014

2015

2016

2017

2018

2019

2020

27
2021

Figuresfor participants
iinfortraining
programs,etc.
■ Numberof persons
acceptedoverseas
visits, training（Sourceof data:
Sendai City
City Planning
Policy Bureau）(Source of data: Sendai
City
Community
Development
PolicyBureau)45

３

Assessment findings

３）Initiatives related to Target G (Early warning/disaster risk information)

Information (early warning/disaster risk information) related to disasterconditions and evacuation or safety is important to minimize damage.

Sendai's efforts related to early warning and disaster risk information

include disseminating disaster risk information (see p. 9). Working incollaboration with telecommunications carriers and the media, Sendai Cityis providing information in a form that is approachable for large numbers ofcitizens through emergency alert emails and TV or radio news: an initiative
related to Target G that is being implemented.

In addition, Sendai City itself disseminates information through means

including the Internet. One quantifiable initiative is is the follower count forsocial media, which has taken off in recent years. Looking at the Sendai City
Crisis Management Bureau Twitter account, we observed fluctuations inannual figures.

The content of the tweets includes information on natural disasters

such as tsunamis and floods, information on Covid-19 infections, and theannouncement of disaster preparedness drills, and similar events. The
account’s follower account has been increasing each year.

Diagram: Figures for the Sendai City Crisis Management Bureau Twitter account follower
Diagram: Followers of the Sendai City Crisis Management
Bureau's Twitter account  (duplicated)count

Followers
Followercount

80,00060,00045,14340,00051,80253,7372017

2018

57,37564,746

67,62025,61320,000
4,275
0

2014

2015

2016

2019

2020

2021

■
Sendai
City of
CrisisManagement
BureauTwitter account,numberof accountfollowers
Followers
the Sendai
City Crisis
Management
Bureau's
Twitter（Source of data: Sendai City Crisis Management Bureau）（Source of data : Sendai City Crisis Management Bureau）
Diagram: Figures for outdoor public address systems in operation
90
80

68

Number of units

70
60
50
40
30
20

47

47

49

49

70

76

79

79

79

79

79

76

76

50

28

46

3.4 Summary (Assessment at the midterm point of the Sendai Framework for Disaster Risk Reduction)
Among the Framework’s seven global targets, disaster damage for targets aimed

at reduction (Targets A to D) showed a downward trend from the first half (2005–2014) to the second half (2015–2021) of the assessment period. This assessment
has revealed that these targets have been achieved for all assessment indicators.

Observed according to type of disaster, damage caused by earthquakes andtsunamis has been on a downward trend since its peak in 2011 with the Great
East Japan Earthquake. Although no tsunami damage has been recorded since

the Great East Japan Earthquake, Sendai has been hit by multiple earthquakes ofa magnitude 7 class, however, the damage has been minimized. Initiatives related
to the four priorities for action are thought to play a vital role in achieving the
reduction targets (Targets A to D).

In terms of targets aimed at increase (Targets E to G), steady progress canbe observed when data is organized on a quantitative basis for the following

initiatives, which are related to the four priorities for action: the progress of Sendai

City's disaster risk reduction strategies, the development of evacuation center
management manuals, figures for numbers of people accepted for overseas
inspections and training, and changes in figures over time for early warnings andaccess to disaster risk information.

Based on the above, this assessment reveals that that global targets are in theprocess of being achieved at the midterm point of the Sendai Framework for
Disaster Risk Reduction.

Diagram:  State of progress in implementing global targets at the midterm point of Sendai
Framework for Disaster Risk Reduction○：Being achieved
Global targets

47／：Unachieved(reference)
Storm
Assessment
and water
damageA

Reduce the average per 100,000 mortality rate for disasters

○

／

B

Reduce the average per 100,000 of people affected bydistasters

○

／

C

Reduce direct disaster economic loss caused by disasters

○

／

D

Reduce disaster damage to critical infrastructure anddisruption of basic services, among them health andeducation facilities

○

／

E

Increase the number of countries with national and local
disaster risk reduction strategies

○

―

F

Substantially enhance international cooperation to developing
countries through adequate and sustainable support tocomplement their national actions for implementation of the
Framework○―

G

Substantially increase the availability of and access to multihazard early warning systems and disaster risk information
and assessments

○

―

３

Assessment findings

Further initiatives must be promoted in order to ensure the achievement of the

global targets related to the Framework’s goal. Themes to tackle in the future havebeen compiled as follows.

●When observed by type of disaster, an increase in storm and flood damage

can be noted in recent years. Particularly noticeable is the increase in property

damage (damage to houses and businesses, etc.) and damage related toagriculture, forestry and fisheries. One characteristic of storm and flood damage
to property is the tendency for localized damage, in contrast to the large-scale,

city-wide damage that occurs with earthquakes and tsunamis. This calls for theconcentrated and effective promotion of countermeasures.

●With regard to the hosting of overseas visitors on inspection tours and trainings,

there is a need to restore the number of visitors to pre-pandemic levels, andto promote initiatives that further increase these numbers, while keeping aneye on the trends in Covid-19 case numbers. Self-assessment is also possible

in other cities in Japan and overseas by applying the aggregation methods andformulas used for Framework’s global targets. Dissemination of information in

Japan and internationally, and encouraging similar initiatives is also desirable
as a contribution to the promotion of the Sendai Framework for Disaster Risk
Reduction.

●In terms of access to early warnings and disaster risk information, it isnecessary to deliver information to more citizens and improve the effectivenessof evacuations.

●To gain an understanding of the effects of disaster risk reduction measures,

together with the state of progress in implementing the Sendai Framework for
Disaster Risk Reduction, it is effective to investigate documents other than thosecontaining data of disaster damage, such as collections of records. In the future,

the ongoing collection of statistical data and the collection and maintenance ofrecords from times of disaster is desirable.

48

4 Implementation of midterm assessment by citizens(summary of outcomes from the Special Edition Course/workshop that waspart of the Sendai Framework for Disaster Risk Reduction Course)

In November 2022, Special Edition: Let's Put our Heads Together! Our Past
and Our Future, was offered as part of the Sendai Framework for Disaster Risk
Reduction Course (see p.12), which is run jointly by Sendai City and IRIDeS.
Participating Sendai residents reflected on their own activities in their capacity as
individual stakeholders.
In the course, Sendai City and IRIDeS reported on their progress in carrying out
the midterm assessment, while course participants reflected on the activities thathave taken place thus far, modelling the process after the four priorities for action,
while also discussing future initiatives.
During the discussions, many opinions were expressed regarding the creation of
mechanisms in the community to support those who require support and special
care, such as the elderly, people with disabilities, patients with intractable diseases,
and sexual minorities. Considering such a diversification of needs, it is important for
stakeholders such as governments, local communities, and companies to continue
to work together and work toward inclusive modes of disaster risk reduction.
The outline of the Special Edition course is as follows.

Course Outline
・ Date: Saturday, November 26th, 2022
・ Organizer: IRIDeS, Sendai City・ Venue: TKP Garden City Sendai (in Sendai)・ ‌Participants: About 30 people comprising those working on local disaster risk
reduction, corporate SDGs managers, high school students, etc.

Seminar and workshop

49

4

Implementation of midterm assessment by citizens

Diagram: Reflection on activities by participants and action they hope to take in the future (excerpt)

Priorities for action

Currently working on:

Hope to work on in the future:

１ Understanding
disaster risk・Preparation of pamphlets
on disaster risk reduction
and pamphlets to lessen
the isolation of the elderly
and foreigners in thecommunity

・Passing down information
about disasters to younger
generation, which has noexperience・Pursuing understandingof disaster risk reduction
among people withintractable diseases

２ Disaster risk
governance tomanage disaster risk

・Establishing independent
disaster risk reduction
organizations; running ofdrills and study groups

・Ensuring that all people,
including sexual minorities,
can feel safe in evacuation
centers

３ Investing in disasterrisk reduction forresilience・Support activities for
persons with disabilities indisasters run by persons
with disabilities

・The sustainable use,conservation, and restorationof forests

４ Enhancing disaster
preparedness for
effective response
and to “Build Back
Better”

・Checked stockpiles indisaster risk reduction
warehouse・Participated in local
disaster preparedness
drills and checked hazard
maps・Communicating theimportance of evacuation
drills and encourage more
people to participate in
them

50

5 Future outlook

5.1 Continuation of initiatives related to the priorities for action
Findings of the assessment revealed that diverse Sendai City initiatives related
to the priorities for action have contributed to the successful implementationof the Sendai Framework for Disaster Risk Reduction. These include community
development that is sustainable and resilient to disasters, human capacity buildingthat nurtures local disaster risk reduction leaders, and international contributions
through the dissemination of experiences and lessons learned.
While continuing these efforts, our intention is to restore pre-pandemic levels ofinternational visitors for inspections and training, which had to be restricted dueto the spread of Covid-19, while also working for the spread of a disaster-aware
culture—which is to say, the knowledge and skills required for overcoming disasters(see p.8: Handing down experiences and lesson learned)—widely throughout Japanand other countries of the world.

5.2 Responding to revisions to disaster risks such as local earthquakes
Over the duration of the assessment period, figures for damage have declined,
but this is partly due to comparisons that have been made with the Great East
Japan Earthquake, which was a major disaster. As there is no guarantee that adisaster of similar magnitude or one of a scale greater than has been experienced
in the past will not occur, we must consider how to respond to new disasters, inrecognition that disasters will continue to occur in the future.
In 2022, Miyagi Prefecture announced a tsunami inundation scenario based on
the occurrence of a tsunami of maximum intensity on a par with the tsunami that
accompanied the Great East Japan Earthquake, but under even more adverse
conditions. Furthermore, Miyagi Prefecture is considering new damage scenarios for
multiple earthquakes and tsunamis, including an earthquake directly below the citywith a epicenter on the Nagamachi-Rifu Fault, which is expected to result in serious
damage centering on Sendai.
Estimates show that it is possible to reduce damage caused by even the mostpowerful earthquake or tsunami by taking measures such as promoting seismic
resistance and encouraging early evacuation in the event of a tsunami. Based onsuch a review of disaster scenarios, Sendai City intends to promote further disasterrisk reduction measures.

5.3 Promotion of effective disaster risk reduction measures
In regard to increases in storm and flood damage, concerns that climate change
will produce increasingly severe and frequent disasters mean that further measuresagainst heavy rain events are required.
On the national level, relevant laws and regulations were revised in 2021.
In addition to flood control by personnel managing rivers and sewage
systems, measures are being taken to increase the effectiveness of basinwide comprehensive disaster risk reduction through the collaborative efforts of51

5

Future outlook

stakeholders such as the national government, local government, private sectors,
and residents. Sendai City is also working to improve both hard and soft measuresand intends to invest in more effective disaster risk reduction measures based on
the assessment findings. The city’s major initiatives are as follows.
（１）Flood control measures for the Sendai Station area
Increasing urbanization in the area around Sendai Station has resulted in ashortage of rainwater drainage facilities, producing an increased risk of flood
damage in heavy rainfall events.
The city is currently working on the maintenance of its stormwater mainlines. After the completion of scheduled maintenance in 2026, it will be able
to avoid flood damage caused by heavy rains of up to 52 mm per hour, avolume that is anticipated to fall at a frequency of once in ten years.

Flooding damage in front of Sendai Station Typhoon Hagibis East Japan Typhoon

Digging work with shield machine（２）The provision of a rain garden in the city center
As part of the utilization of green infrastructure (see p. 20), a rain garden
will be set up in Aobayama Park in the center of the city in 2023.
The rain garden is a planted space that functions to temporarily store
rainwater, allowing it to slowly seep into the ground in order to control theamount of runoff into rivers and waterways. It is also expected to be effectivein mitigating an urban heat island effect. This will also be the main venue
for the 40th National Urban Greenery Fair Sendai, a national-scale greening
event that is also scheduled for 2023. This rain garden will function as amodel case, with plans for further rollout and popularization in the city.
Diagram: The functioning of the rain garden

Soil, crushedstones, etc.

Rainwater

Storage and inﬁltration

52

（３）Disaster risk reduction measures for agricultural facilities
Agricultural reservoirs that meet certain conditions, such as those that weredamaged by the torrential rains that fell primarily in western Japan in 2018
and that could result in loss of human life if they were to burst, have been
reselected by prefectures as priority reservoirs for disaster risk reduction.
In Sendai, priority reservoirs for disaster risk reduction will have surveillancesystems with cameras and water level gauges installed. Meanwhile, largecapacity reservoirs (agricultural irrigation dams) will have their flood control
functions reniforced in the event that heavy rains are predicted, including theoption of drawdown to lower the water level.
In addition, the service life of facilities such as drainage channels is being
systematically extended in order to prevent damage to agricultural land andresidential areas.
Diagram: Image (cross section) of pre-event drawdown at an agricultural irrigation dam

Part of reservoir

Sediment

Discharged in advance(to ensure capacity forflood control measures)（４）‌Creating mechanisms to enhance the effectiveness of evacuation (evacuation
support for people requiring special care, etc.)
Since 2015, a succession of damage caused by storm and flood events
around Japan has focused attention on challenges related to damage tofacilities for senior citizens and the evacuation of elderly people. Relevantlaws and regulations were revised, and in 2017, it became obligatory forowners of facilities for people requiring special care (medical facilities,
social welfare facilities, etc.) that are located in dangerous areas to create
evacuation guarantee plans and perform drills.
Sendai City offers support for the preparation of evacuation guarantee
plans for relevant facilities, and also conveys information when evacuations
are called for.
The Sendai Evacuation Information Phone Service was launched in 2021.
Through the service, evacuation information is distributed to landline phones
in pre-registered households where mobile phones and smartphones are notused. In addition, each citizen is encouraged to create a personal evacuation
plan known as My Timeline, a plan for the purposes of organizing the actions
one should take to evacuate, together with their timing, tailored to one’s own
53

5

Future outlook

今後も「自助・共助・公助の協働による防災・減災（エエラー! ブックマークが定義されfamily structure and living environment.

ていません。
頁参照）」の積み重ねにより、地域と連携した訓練の実施など、地道な取組
Goingforward,Sendai City will continue to work steadily on initiatives suchas drills conducted in coordination with local communities through multiみを継続していく。
layered disaster risk reduction achieved through a synergy of self-help, mutual
assistance, and public assistance (see p. 22).

Diagram: Figures and percentages for the drafting of evacuation guarantee plans
Diagram: Figures and percentages for the drafting of evacuation guarantee plans

95.9%

800
731701

600
400
200
0

96.7%

100.0%

838810836836

40.0%

36.0%

20.0%

171
2017

80.0%
60.0%

600
549

475

100.0%

2018

2019

Number of relevant facilities

2020

2021

Drafting rate (%)

reports

Number of facilities/number of

91.5%

1000

0.0%

Number of reports drafted

Drafting rate
（Source of data: Sendai City Crisis Management Bureau）(Source of data: Sendai City Crisis Management Bureau)（５）‌Wider participation and themes to be incorporated in the Sendai
Symposium for Disaster Risk Reduction and the Future
The Sendai Symposium for Disaster Risk Reduction and the Future (see（１） 「仙台防災未来フォーラム」におけるテーマや参加の広がり
p. 28), is a forum in which a diverse range of stakeholders participate to
多様なステークホルダーが参画する「仙台防災未来フォーラム（エエラー! ブックマーク
learn and think about disaster risk reduction from various angles, not only
reconstruction
after theGreat East Japan Earthquake, but also climateが定義されていません。頁参照）」は、東日本大震災からの復興だけでなく、気候変動やchange and environmental problems.
環境問題など、さまざまなトピックから広く「防災」について学び・考える場となっていAs we move into the second half of the Sendai Framework for Disaster Risk
る。
Reduction (see p.49), the symposium will continue, but with a wider range ofthemes so as to involve more people, in line with opinions expressed in Sendai
仙台防災枠組の後半期に向けては、仙台防災枠組講座特別編（エエラー! ブックマークがFramework for Disaster Risk Reduction Course, Special Edition (see p.49).

定義されていません。頁参照）における意見も踏まえて、より多くの人が関われるよう、テーマを広げながら取組みを継続していく。

Activities during the Sendai Symposium for Disaster Risk Reduction and the Future54

5.4 Future Efforts at the International Research Institute of Disaster Science, Tohoku University (IRIDeS)
Carried out in accordance with the UNDRR assessment manual, this project
represents the first example, conducted at the municipal level, of the monitoring of the
progress of implementation of Sendai Framework for Risk Reduction. The process of
disaster damage statistics collection that was employed in this study can serve as areference for other local governments to collect statistics in a similar fashion. In light ofthis study, major future initiatives to be implemented by IRIDeS are as follows.
（１）‌Assessment using damage estimates and indicators in the event of plannedscale and estimated maximum-scale flood damage
The infrequency of low-probability disasters makes highly accuratequantitative predictions of the scale of damage difficult. In other words, dataon actual damage in disasters that occur infrequently is extremely valuable. In
Sendai, quantitative records of the damage caused by the Great East Japan
Earthquake, a mega-earthquake with a low probability of occurrence, and theaccompanying tsunami were produced. This made possible the monitoringof the progress of implementation of the Sendai Framework for Disaster Risk
Reduction based on indicators. In other words, it can be said that we havebeen able to use indicators to quantitatively evaluate the scale of damage
caused by low-probability earthquakes and tsunamis.
On the other hand, regarding storm and flood damage, which has become
more severe in recent years, during the Framework assessment period, Sendai
has not encountered a disaster of the scale of a probability of once in 100 years
or once in 1,000 years. In order to promote evidence-based policy planning in the
future, it is important to have quantitative estimates of the anticipated damage
even with storm and flood damage, whose probability of occurrence is low, andto reflect this in policy planning that will contribute to damage mitigation.
The collection of basic data (hazard data, etc.) for the purposes of
estimating damage in the event of planned-scale and estimated maximumscale flood damage, and conducting quantitative assessments based ondamage estimates and indicators were beyond the scope of this study, but
are hoped to lead to the development of highly effective measures.
Diagram: An example of a hazard map showing assumed maximum scale flood damage

55

5

Future outlook（２）Realizing disaster risk reduction that leaves no one behind
The SDGs adopted at the UN Summit in September 2015 pledge to "leave
no one behind.” In the field of disaster risk reduction, the realization of thiskind of disaster risk reduction means that every last person must be saved,
without leaving behind the vulnerable and those requiring special care,including the elderly, people with disabilities, and foreigners, who are in weak
positions in the face of disasters. To this end, it is important for all parties
concerned, not only at the national level but also at the local government,
district, and individual level, to take ownership of disaster risk reduction.
At times when disaster strikes, it should be possible to mutually support
all people in the community, including the vulnerable and people requiring
special care, and to reduce the human loss to zero.
The relationship of disaster damage with attributes such as gender ratios,age, having a disability, or being a foreigner was beyond the scope of thisstudy, however a more detailed analysis focused on attributes is required.
We believe that an appropriate assessment of community vulnerability is aprerequisite to making a reality of disaster risk reduction that leaves no one
behind.
It is difficult to claim that vulnerability assessment focusing on social
attributes has been conducted at a sufficient level in our work with disasterdamage statistics data. Such initiatives should be developed as good practice,not only in Japan, but also in other countries and municipalities. Through theUnited Nations Development Programme (UNDP) and UNDRR, with which
IRIDeS enjoys close collaborative relationships, we will promote the active
dissemination of research results for the achievement of SDGs and the Sendai
Framework for Disaster Risk Reduction.

56

5.5 Toward the standardization of disaster statistics
Identification of the locations and departments in charge of data held by Sendai
City that is useful for disaster statistical analysis has made ongoing monitoring
possible. In addition, assessment methods such as formulas used to assess global
targets and aggregation methods can be put to use by other local governments,
and it is expected that such initiatives will spread on a local government basis.
The visualization of the results of disaster risk reduction measures that has
been carried out to date represents an important opportunity for Sendai City’s
self-reflection on its efforts, and serves to support the promotion of the Sendai
Framework for Disaster Risk Reduction. To gain a picture of long-term changes
in disaster risk—issues such as the frequency of disasters, the interval between
earthquakes, and the impact of climate change, for example—more local
governments need to work on continuous monitoring. Working in collaboration,
Sendai City and IRIDeS will cooperate with the Japanese government, the UNDRR,
and other related organizations to promote its application in other cities.
It should be noted that damage data held by a local government was not createdwith the monitoring of the Sendai Framework for Disaster Risk Reduction in mind.
Standards and other factors can differ. Also, the occurrence of a large-scale disastertends to impact on assessment findings too greatly when compared to large-scale
units such as “the country" or “the world,” so care must be taken in applying suchdata in other regions.
Monitoring the costs required for disaster risk reduction measures, in addition
to monitoring damage-related data, makes it possible to demonstrate the costeffectiveness of investment in disaster risk reduction. As some initiatives, such as
flood control projects at the national or prefectural level, are conducted intermunicipality, the calculation of figures per municipality will be an ongoing challenge.

57

６Conclusion

6 Conclusion

As both the host city of the Third UN World Conference on Disaster Risk

Reduction and also as a safe and secure disaster-resilient and environmentallyfriendly city, Sendai considers it its responsibility to further strengthen its disasterrisk reduction capabilities in the second half of the Sendai Framework for Disaster

Risk Reduction, based on the findings of the midterm assessment. The city will
strengthen ties it has cultivated with Sendai citizens, community organizations, anda range of stakeholders both inside and outside Japan, and promote initiatives thatwill enable it to overcome future disasters, as it also hands down experiences andlessons learned from the Great East Japan Earthquake.

Additionally to this, IRIDeS sees its responsibilities as including the building ofcomprehensive knowledge obtained through integrated arts–sciences research.

Scholarship that serves to builds social systems that allows people and society

to make wise responses to increasingly complex disaster cycles, overcome
hardships, and make use of lessons learned will be used to create academic value,systematized as "practical research on disaster risk reduction.”

Looking to the future, we hereby reiterate our determination to continue working

together to enhance local disaster risk reduction capabilities and to contribute todisaster risk reduction around the world.

58

Published by Disaster-resilient and Environmentally Friendly City
Promotion Oﬃce, Sendai City Community Development Policy Bureau
Address: 3-7-1 Kokubuncho, Aoba Ward, Sendai, Miyagi
Prefecture 980-8671

Email: mac001605@city.sendai.jp
2030 International Bosai Agenda Promotion Oﬃce, International
Research Institute of Disaster Science, Tohoku University

Address: S302, 468-1 Aoba, Aramaki, Aoba Ward, Sendai,
Miyagi Prefecture

Email: yono@irides.tohoku.ac.jp Dr. Yuichi Ono