267

Strategy to Promote Residents’ Behaviors
for Appropriate Disaster Waste Management
Tomoko MORI* and Ryo TAJIMA
Centre for Material Cycles and Waste Management Research, National Institute for Environmental Studies
16-2 Onogawa, Tsukuba-shi, Ibaraki, 305-8506, Japan*E-mail: moritomo517@gmail.com

Abstract
This paper aims to clarify appropriate disaster waste management behaviors by citizens based on anunderstanding of frequently experienced problems in past disaster waste management cases. We also discuss
methods and strategies to promote citizens’ behaviors based on examples in disaster risk reduction fields.
From our results, we have identified three problems that have often occurred in past disaster waste treatment:
generation of large amounts of mixed disaster waste, creation of unauthorized temporary storage sites, andinsufficient support for clean-up. In municipalities where large open spaces for temporary storage sites fordisaster waste are difficult to find, residents also have to establish and operate the community’s storage sites
in cooperation with other residents. To promote these behaviors among citizens, there are three key factors:
preparedness by municipalities for disaster waste management, citizens’ understanding and motivation, andthe existence of community networks. Based on examples of public involvement in the disaster risk reduction
field, participatory training and planning involving citizens is effective at promoting their understanding andproper behaviors for disaster waste management. We propose three strategies to implement participatory
methods and promote appropriate disaster waste management behavior by citizens. Firstly, seizing existing
opportunities such as disaster drills would be a promising approach to communicating with residents andimplementing participatory methods. Secondly, it would be important to identify citizen groups active indisaster risk reduction or waste management activities and collaborate with them. Thirdly, leveraging
experience with disasters would be an effective way to promote disaster waste management because citizens’
awareness of disaster waste issues is enhanced after disasters.
Key words :	collaborative behaviors, mutual help, participatory training and planning, public involvement

1. Introduction
Natural disasters have occurred frequently in Japanin recent years, and each time, a large amount of disaster
waste, such as damaged household goods and demolishedhouses, has been generated. If we fail to implement
disaster waste management (DWM), sanitary conditionsin the damaged area become very poor and restoration isdelayed. The national government of Japan has promoted
policies for DWM especially since the Great East Japan
Earthquake in 2011. Municipalities that have
responsibility for DWM have also promoted measures for
effective DWM such as preparedness planning andcapacity building (Tajima et al., 2019).
In the field of Japanese disaster risk reduction, it issaid that three aspects of preparedness are important: selfhelp, mutual-help and public help. “Self-help” refers toactions by individuals and families, “mutual help” tocollaborative actions among citizens, and “public help” tocountermeasures by government (Wada, 2018;
Global Environmental Research
24/2020: 267-274
printed in Japan

Yamashita, 2010). So far Japanese policies for DWM
have focused on public help. It is very difficult, however,
to manage disaster wastes properly and promptly because
devastated municipalities have to allocate their very
limited resources to various disaster response activities in
the confusing situation after a disaster. Therefore, selfhelp and mutual help become important.
What kinds of self-help and mutual help are expected
for appropriate DWM? And how can we promote them?
This paper clarifies citizens’ behaviors as self-help andmutual help for DWM based on experiences with DWM
in past disasters. We also discuss methods and strategies
to promote self-help and mutual help for DWM byreviewing examples of public involvement in activities
for disaster risk reduction.

2. Frequent Problems in DWMWhen a disaster strikes, DWM starts with thedisposal of damaged household goods by the affected©2020 AIRES

268

T. MORI and R. TAJIMA

Impacts

Frequent problems
Genera�on of
mixed disaster
waste

Insuﬃcient
support forclean-up

Crea�on ofunauthorized TSS• Heavily commingled atsource (e.g. tsunamis,
collec�on without
separa�on)• Dropped oﬀ at TSS
without segrega�on• Insuﬃcient number of
TSS• Heavy traﬃc• Lack of vehicles• Available fortransporta�on• Informa�on on TSS
not conveyed• Poor sanitary condi�ons• Delay in city’s recovery• Increased costs• Increased environmental
burden• Insuﬃcient volunteer
staﬀ• Residents who need
generous support(e.g. the elderly,
handicapped persons )Background of problems
Fig. 1 Frequent problems in DWM and their impacts and backgrounds.

people. These disaster wastes are typically transported by
the affected people to temporary storage sites (TSS) or
collected by the local government. Subsequently,
damaged houses and buildings are repaired ordemolished, generating additional disaster wastes. This
paper focuses on the phases of disposal (clearing) fromdamaged houses and transportation to the TSS since thesephases are closely related to citizens’ behaviors.
The problems that have typically occurred in theclearing and transportation phases of past disasters areshown in Fig.1, along with their impacts, and theirbackgrounds. One of the most frequent problems is thegeneration of large amounts of mixed disaster wastes at
the TSS. If the disaster waste is separated properly, moreof it can be recycled or reused.
Perishable wastes should be separated andincinerated first. Once mixed disaster wastes are
generated, the separation process takes more time, andwaste treatment facilities will not accept them without
separation. Increased processing results in higher costs
and time requirements . The burden on the environment
also increases since recycling rates decrease and theamount of waste going to landfills increases. Different
types of disaster wastes get mixed when they are heavily
commingled at source (e.g., in cases of tsunami disasters
or when damaged household goods are collected with noconsideration for separation), or when they are dropped
off at the TSS without segregation.
A second frequent problem is the creation ofunauthorized TSS, i.e., TSS set up by local residents but
unknown to the municipality. In many cases at this kindof storage site, cleared wastes are mixed improperly,
generating foul odors and vermin which may harm
human health. It also costs money to collect and treat
mixed waste. This has become an issue due to various
factors including but not limited to: insufficient numbersof TSS established by the municipality, heavy traffic in
the stricken area that hinders the ability to transportdisaster waste to a TSS located at a distance, lack ofvehicles (e.g., small trucks) available for transportationand failure to inform the people affected by the disaster
about the location of the TSS.
A third frequent problem is insufficient support forcleaning up. Disaster volunteer activities have become
popular in recent years and many volunteers enter disasterareas to help affected people clean up their houses after
disasters. However, it is difficult to get enough support
from volunteers if the disaster causes widespread damage
and there are requests for help from many places, which
was the case after the heavy rain disaster in western Japan
in 2018. In addition, elderly and handicapped residents
and those who have young children need generous
support since it is difficult for them to clean up their
damaged houses and transport large amounts of disaster
wastes.

3. Citizens’ DWM Behaviors
What kind of citizens’ behaviors can mitigate theimpacts of the frequent problems mentioned in Chapter 2.
We discuss citizens’ DWM behaviors both before andafter disasters.
3.1 Following Separation and Clearing Rules
Separation of disaster wastes at source and at TSS
can only be achieved by appropriate waste disposal
behavior by citizens. For this, information on separationand clearing rules should be provided to them.
Collaborative action to share correct information about
rules using bulletin boards or SNS in the community isimportant, too. However, getting to know the rules andfollowing them are not as easy after disasters occur,
because of the confusion in the disaster area with people
who have been harmed physically or mentally by thedisaster. Therefore, it is important to check rules
predetermined by one’s municipality before disasters
occur. It is also important to discuss information sharing
schemes in the community before disaster strikes.

Strategy to Promote Residents’ Behaviors for Appropriate Disaster Waste Management
3.2 Storage at Community TSS
In some municipalities that have high-density
population areas, it is difficult to find large open spaces
for disaster wastes TSS. In such areas, the use of small
open spaces such as local playgrounds as TSS may be asolution, provided that they are properly managed incollaboration with neighbors. Because it is quite difficult
to decide on community TSS locations and management
rules once disasters have happened, ideally discussions
on where to establish community TSS and how tomanage them in the community should be held before
disasters occur.
3.3 Clean-up by Mutual Help
Cleaning up houses damaged by disasters is very
tough work. The amount of waste is large and the weightof some household goods such as soaked carpets andtatami (traditional Japanese straw floor mats) is very
heavy. Thus, the residents of disaster areas can help eachother and collaborate with volunteers to clear andtransport disaster wastes. Community meetings before
disasters to discuss collaboration among residents andsupport systems for vulnerable neighbors could enhancemutual help after disasters. Such community meetings
would be effective not only for DWM but also
comprehensive disaster preparedness of the community
overall because collaboration among residents is neededin various ways after disasters, such as for evacuation andmanagement of the community’s shelters.

4. Key Factors for Promoting Citizens’ DWM
Behaviors
4.1 Preparedness by Municipalities for DWMWhen disaster strikes, some municipalities cannot
decide on and announce rules for separation and clearing
immediately because they lack advance preparation. As
of 2019, about the half of Japan’s municipalities had not
developed a DWM preparedness plan (Ministry of theEnvironment, 2020). The residents living in such areas
will not be able to get information on rules immediately.
Therefore, preparedness for DWM by municipalities is
one of the most important key factors in promoting
citizens’ DWM behaviors. Ideally, separation and clearing
rules should be announced to the residents before
disasters because it is difficult to distribute information toresidents during times of disaster. Some municipalities
have communicated with their residents by brochures or
public relations magazines (Sakai City, 2017; Kawasaki
City, 2019).
4.2 Gaining Citizens’ Understanding and Motivation
for DWM
Obtaining citizens’ understanding and motivation for
DWM is important in promoting citizens’ DWM
behaviors because people do not always take action even269

if they know the rules. Hirose (2015) advocated a twophase model for pro-environmental behaviors based on
the theory of planned behaviors by Ajzen (1991) andproposed that risk perception of the problem,
responsibility for dealing with the problem, and perceived
effectiveness of the desired behavior influence people’s
intention to contribute toward solving the problem. There
are many existing studies using Hirose’s theory. Asato
and Kimiya (2008) found that a sense of responsibility
for dealing with problems has a strong positive influence
on behavioral intentions toward cooperation withseparation and collection of municipal wastes. Matsui etal. (2004) revealed that the perceived effectiveness of abehavior is one of the most important determinants ofrecyclable waste separation behavior. These studies
indicate that having citizens understand the risks
associated with poor DWM, i.e., health risks andhindrance of reconstruction, is an effective way topromote appropriate DWM behavior by the citizens. Thismay be further enhanced by recognizing that these risks
can be reduced by following rules of separation, storage
and transportation.
Educational materials on disaster wastes are apossible tool for promoting citizens’ understanding. Somemunicipalities provide their residents with brochures fordisaster preparedness (Tokyo Metropolitan Government,2015). Information about proper clearing andtransportation of disaster waste is needed because existing
brochures on disaster preparedness do not mention
disaster wastes in many cases. It may be effective toinclude information about disaster wastes in the existingeducational materials on disaster risk reduction because
people tend to have considerable interest in information
regarding disaster response in general. More study isneeded to clarify effective ways to provide information
about disaster wastes.
To promote citizens’ motivation not only for selfhelp such as checking pertinent rules before disasters but
also for mutual help such as discussion at community
meetings, the citizens have to know what mutual help for
DWM is and how to perform it. Mori and Tasaki (2019)
pointed out that a sense of responsibility for collaborative
behaviors and perceived effectiveness of collaborative
behaviors have strong positive influences on behavioral
intentions toward collaborative behaviors. Therefore, it isimportant to provide them examples of mutual help
before and after disasters and foster the cognition thatmutual help is a meaningful action for citizens and an
effective means of appropriate DWM. Ideally citizens’
recognition of their stake in mutual help for DWM should
be fostered through dialogue or disaster drills in thecommunity.
4.3 Community Networks
Community networks are important to haveespecially for promoting mutual help among residents.

270

T. MORI and R. TAJIMA

Mutual trust among community members fosteredthrough regular communication is the basis for helping
each other in difficult times. It may also promote effective
sharing of information on separation and clearing rules
among residents after disasters. Common risk perceptions
toward disasters in communities are also importantbecause the residents will have higher motivation for
DWM if many of them share a sense of crisis about
disasters.
Matsumoto et al. (2012) revealed that making proenvironmental behaviors, such as waste reduction
behaviors at schools, visible to other citizens, strongly
influences social norms, i.e., cognition of other people’s
behaviors and expectations for proper behaviors fromfamily, friends and neighbors. Social norms affectpeople’s behavior strongly in communities in which theresidents know each other. Therefore, social norms will
have a positive influence on promoting residents’appropriate clearing of disaster wastes in communities
that have rich networking.

5. Methods for Developing Capacity in the
Disaster Risk Reduction Field and their
Applications in DWM
To promote citizens’ DWM behaviors, it is importantto foster their understanding of DWM and develop
community networks. How can we put that into practice?
We refer to examples of public involvement in the fieldof disaster risk reduction and discuss their application to
DWM.
5.1 Disaster Drills with Stakeholders
Disaster drills constitute pre-training in which
disaster situations are simulated to promote proper
behaviors in times of disaster. Disaster drills such as
evacuation drills and emergency communication
exercises are very popular in Japan. The residents cansimulate their situation in a disaster and experiencecollaborative actions such as emergency food cooking
and shelter operation through disaster drills. Some studies
have pointed out that experiencing collaborative actions
can enhance a sense of capability in collaborative action
and promote greater collaborative efforts (Chawla &Cushing, 2007; Mori & Tasaki, 2019). Therefore,
experiencing collaborative actions through disaster drills
may be an effective way to promote mutual help after
disasters.
Disaster drills for DWM are not yet common, butthere are a few examples. One is a field exercise thatinvolves setting up and managing a TSS using a real site
and actual waste, conducted by Kakegawa City,
Kikukawa City and the sanitation facility associations ofboth cities (National Institute for Environmental Studies,2017). The residents who participate in this TSS exercise,gain an appreciation of how big an effort separating andtransporting large amounts of disaster wastes can be andthe importance of cooperation among residents. Morestudy is needed to find effective methods of
implementing disaster drills for DWM.
5.2 Imagination Games and Map Exercises
Disaster Imagination Games (DIG) are a popular
type of simulation training in Japan. Participants break up
into small groups and make notes of the high-risk placeson their town’s map, then discuss with each other how to
avoid or reduce the risks (Cabinet Office, Japan). The
Meguro Method is another imagination tool for disaster
simulation developed by Dr. Kimiro Meguro (Meguro.
2001). People imagine and write down their specificsituation and behaviors in a disaster along a time axis.
This method is useful for gaining an understanding ofindividual risk. It also has the effect of increasing thecommunity’s or organization’s readiness for disasters if
participants share their results and discuss them with eachother (Abe & Meguro, 2005). Participatory disaster map
making is another popular method. This method includes
not only discussion at a table but also walking around thetown to find disaster risks and consider measures. Toyoda
and Kanegae (2012) studied the effect of participatory
disaster map making and found it to be effective atenhancing participants’ disaster awareness and promoting
action for disaster preparedness.
Studies and practices on these methods in thedisaster risk reduction field indicate that to imagine
individual concrete disaster situations and behaviors, on
top of general knowledge about disaster situations, is an
important way to enhance citizens’ disaster awareness.
Therefore, imagination drills simulating clearing andtransporting of disaster wastes may be effective. For
example, participants examine the possible disaster
wastes in their house on the assumption that they haveflood damage with inundation above the floor level.
Then, they imagine and discuss how they would clear andtransport their disaster waste to the planned TSS.
However, information and support by disaster experts isessential because it is difficult for residents without
disaster experience to form a concrete image of a disastersituation.
5.3 Risk Communication in Workshops
There are some studies on workshop methods
involving stakeholders. Nomura et al. (2013) conducted aworkshop targeting municipal government staff andresidents who had experienced the Noto Peninsula
earthquake in 2007 and found that by promoting risk
communication they could help residents gain anunderstanding the importance of self-help and mutual
help. Ushiyama et al. (2009) developed a workshop
method focusing on risk searches in the community andrevealed that it was effective at promoting people’s
disaster risk reduction actions. These examples focusedStrategy to Promote Residents’ Behaviors for Appropriate Disaster Waste Management
on risk communication. Workshop methods are effective
not only at promoting communication among
stakeholders but also at enhancing people’s understanding
and actions. Therefore, workshops for residents that
include discussion of local DWM risks and production of
items such as maps and action lists in cooperation withother participants would also be effective in the field of
DWM. If the residents can grasp concrete DWM risks
and share this understanding with other community
members through workshops, residents’ DWM actions
can be promoted.
5.4 Preparedness Planning with Stakeholders
To enhance people’s sense of responsibility fordisaster wastes, participatory planning provides a goodreference. Tamura et al. (2004) developed a planning
method for disaster risk reduction using workshops withstakeholders and revealed that their planning method
could enhance the participants’ proactive attitude towarddisaster management issues and foster a sense ofownership. Not only in the disaster risk reduction field
but also in the city planning field, public involvement inplanning is known as an effective way of enhancing
residents’ sense of ownership in activities (Kinoshita etal., 2018).

Many municipalities face the risk that they will not
be able to provide sufficient public services because ofdepopulation and staff shortages. Therefore, it becomes
more important for the residents to realize that they haveimportant roles in waste management, not leaving
everything to their municipalities. Many DWM plans
have been made without the residents’ involvement. It
would be helpful for residents to get involved indevelopment of DWM plans and discuss effective ways
to clear disaster waste with their municipality.
Additionally, residents can hold discussions in theircommunity about preparing operation manuals forcreating and managing a community TSS or support
scheme for people needing special assistance in clearing
and transporting disaster wastes. Such activities would bean effective way to enhance residents’ sense of ownershipwith DWM. Collaboration with the municipality andsupport by experts would be indispensable for the successof this kind of activities.

6. Strategies to Promote Residents’ DWM
Behaviors
Figure 2 gives an overview of the discussion in theprevious chapters. It depicts targets and residents’
Municipali�es

Residents
Appropriately collected and separated disaster waste

TargetResidents’behaviorA�er
a disaster

Beforea disasterCollect wastes from
community TSSInform the communityof the TSS status
Store wastes atcommunity TSS

Target271

Strongercommunity
network

Follow the disaster waste
separa�on / discharge rules
Clean up withmutual help

Predetermined rules
for community level
DWM

Conﬁrm the disaster waste
separa�on / discharge rules

Set up public TSS

Amend and announce disaster
waste separa�on / dischargerules

Acknowledgement ofdisaster waste separa�on/ discharge rules

Acknowledgement of risks andresponsibili�es associated with DWMResidents’behaviorPar�cipatory training and planningConﬁrma�on of the disaster
waste separa�on / discharge
rules

Predetermined rules
for disaster waste
separa�on / discharge/ collec�on

TSS: Temporary Storage Site, DWM: Disaster Waste Management

Fig. 2 Targets and related behaviors of residents and municipalities.

272

T. MORI and R. TAJIMA

behaviors and related actions by municipalities before
and after disasters. Based on examples of public
involvement in the disaster risk reduction field,
participatory methods involving the residents such asworkshops, DIG and creation of map and plans arehelpful in developing networks among stakeholders andpromoting residents’ understanding and behaviors.
Therefore, implementation of participatory methods forthe residents is desirable from the standpoint ofpromoting residents’ DWM behaviors. Below, we discuss
three aspects of strategies to implement participatory
methods for the residents: seizing existing opportunities,
identifying and collaborating with the groups driving
community’s DWM, and leveraging experience fromdisasters.
6.1 Seizing Existing Opportunities
One promising way to implement participatory
DWM methods is to incorporate some exercises involving
disaster wastes in existing disaster drill opportunities. For
this, it is important to hold discussions with related
stakeholders at an early stage.
It is also possible to use existing events forpromoting public awareness to promote waste
management as well. For example, Yokohama City has
exhibited posters and created games involving disaster
wastes at open days at the city’s incineration plant. These
open days are held once a year, and many residents living
around the incineration plant visit (National Institute forEnvironmental Studies, 2020). This example is not aparticipatory method. It is an effective way, however, tohelp the residents recognize disaster waste problems andserves as a first step toward implementation of aparticipatory method. If a festival or event related toenvironmental problems is held regularly, it is possible touse it as an opportunity for raising awareness about
disaster waste problems.
6.2 Identifying and Collaborating with Citizen Groups
Active in Disaster Risk Reduction or
Environmental Activities
The citizens groups active in disaster risk reduction
or waste management activities play an important role in
implementing participatory methods and promoting
residents’ DWM behaviors. Possible groups that could
energize communities’ DWM include neighborhood
associations and local NPOs working on environmental
problems or disaster risk reduction. If there are suchgroups in the community, collaboration with themunicipality and these groups would be an effective way
to implement participatory DWM methods. Mori et al.
(2020) tried a workshop on DWM for the residents of
Kawasaki City in collaboration with a local NPO (Fig. 3).
The participants of this workshop were residents engaged
in local activities to resolve environmental problems orfor disaster risk reduction. The aims of this workshop

Fig. 3 Residents’ workshop for DWM in Kawasaki City.

were not only to promote understanding of DWM but
also to foster key persons for promoting the community’s
DWM and developing a network. It was effective
especially for developing a network of participantsbecause most of the participants started planning originalactivities together after the workshop.
Municipalities should take the initiative toimplement participatory methods and promote residents’
DWM behaviors if there are no groups active in disasterrisk reduction or waste management activities. It may bedifficult to implement participatory methods from theoutset. Thus it would be helpful to start communicatingwith residents using existing opportunities such as
disaster drills or public events. Such communication
activities would be useful for finding future collaborators
or partners to implement participatory methods.
6.3 Leveraging Experience of Disasters
Once a municipality suffers from a natural disaster,
local politicians, governmental staff and residents havegreat interest after that in DWM. Experiencing a disasteris tough and unfortunate, but it is important not to missthe opportunity when everyone’s awareness of disaster
waste problems is high. Kurashiki City was severely
damaged by heavy rain in 2018 and many problems
related to disaster wastes occurred. After this disaster, theKurashiki City municipality conducted interview surveys
on disaster waste treatment with the afflicted people tolearn about problems they had had with DWM. Based on
this survey, they made a handbook for residents about
disaster waste disposal (Kurashiki City, 2020). Moreover,they plan to make a DWM instruction manual for earlyphases of disasters in collaboration with stakeholders.
Their work is a good example of promoting DWM for
residents by leveraging their experience in the disaster.

7. Conclusions
This paper has attempted to clarify appropriate
DWM behavior by citizens based on an understanding of
frequently experienced problems in past DWM cases. We
have also discussed methods and strategies of promotingStrategy to Promote Residents’ Behaviors for Appropriate Disaster Waste Management
these behaviors based on examples in the disaster risk
reduction field.
From our results, we could identify three factors key
to promoting citizens’ DWM behaviors for before andafter disasters. Firstly, preparedness for DWM bymunicipalities is indispensable. Secondly, encouraging
citizens’ understanding and motivation for DWM is
crucial to promoting their DWM behaviors. Thirdly,
community networks must be developed to promotemutual help before and after disasters.
Based on examples of public involvement in thedisaster risk reduction field, it is thought that participatory
training and planning involving citizens is effective at
promoting their understanding and encouraging DWM
behaviors. We have discussed three strategies for
implementing participatory methods for citizens: seizing
existing opportunities, identifying and collaborating withcitizens groups active in disaster risk reduction or waste
management activities, and leveraging experience indisasters.
DWM implementation using the proposed methods
and strategies in real communities and evaluation of theireffectiveness should be topics of future research.
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T. MORI and R. TAJIMA

Tomoko MORI
Tomoko Mori is a Research Associate at theCentre for Material Cycles and Waste
Management Research, National Institute forEnvironmental Studies, Japan. She received her
Ph.D. in Environmentology from the Universityof Tokyo in 2018. Her research field is education
for sustainable development to promote civic
action for the environment. She also engages in research on capacity
building among government officers and public involvement in disaster
waste management.

Ryo TAJIMA
Ryo Tajima is a senior researcher at the Centre forMaterial Cycles and Waste Management
Research, National Institute for Environmental
Studies, Japan. His main research field is policy
and planning for waste management underdisaster and normal circumstances. He is involved
in local and national efforts on drafting guidelines
and plans and designing training programs for disaster waste management.
(Received 25 September 2020, Accepted 21 December 2020)