Creating a Disaster Prevention System
Using New Public Management Methodology
Masato MIYATA, Seigo NASU
Kochi University of Technology
ABSTRACT: Each local government in Kochi prefecture has founded a regional self-defense organization toprovide emergency service in time of disasters such as earthquakes.
However, the creation of these disaster prevention systems for the regional organizations is inadequate due tolack of methodology. The main cause of this problem is that the local governments haven’t planned detailed
measures for assisting the self-defense organizations, and also they have not selected a methodology forcarrying out the project.
Therefore, in this research, we propose that a university acts as a third party between regional self-defense
organizations and local governments, and subsequently, that the university create a disaster prevention
system incorporating new public management methodology.
KEYWORDS: management of disaster prevention, new public management
1. INTRODUCTION

tsunamidisasterprevention

andotherusual

earthquake related disasters.
Now, the region of the Pacific Ocean side of
Kochi Prefecture and the Shikoku region are

In the case of predictable damage, for example

concerned about possibility of a large-scale Nankai

typhoon damage, citizens obey directions from theearthquake. The probability of a Nankai earthquake

government, The government makes substantial

in the next 10 years is 10-20% (estimation forprovision and gathers information. However, in thestarting point January 1, 2006). In September 2003,

case of unpredictable damage, such as fire disaster orin the Tokachi area of Hokkai Prefecture, theearthquake, citizens tend to evacuate independently.

Tokachi Oki earthquake occurred. The earthquake

There is a need for similarly evacuation drill andprobability then was 10-20% (estimation for starting

substantial government provision for evacuation drill

point January 1, 2003), but an earthquake did occur.

well in advance.

In fact, Nankai earthquake will occur that earthquake
took lives and caused great damage anytime.

This research is intended to, create a disasterprevention

systemforregional

self-defense

In addition, the Yasu area in eastern Kochi

organizations for protection against disasters such as

Prefecture was predicted to experience substantial

earthquakes. The primary development techniques

damage from tsunami over 10 meters high. As aare development of an optimum investment method

result, the Yasu area should take measures forand readjustment and enrichment measures.

Assignment

2. ASSIGNMENT OF UNIVERSITY/NPOS,LOCAL GOVERNMENT AND CITIZENSofLocal

Government

andCitizens
When an earthquake occurs, it is impossible for

Assignment of University/NPOS

the government to perform rescue and assist citizens
immediately. Therefore, the government should
develop government structures for the collection ofinformation, the provision of information, andFigure 1. Joint of Government and Citizen

decision-making function for rescue and recovery. In
the decision-making function, there is a need forCommunication is the most important thing

simulation of possibilities such as occasions whenfor government and citizens in planning forthe mayor or staff are absent, the question of who

disaster prevention. However, the government

will substitute for them and what interim structures

cannot be sure of substantial consensus by

can be taken. On the other hand, citizens shouldcitizens. In addition, there are no methods forform

deciding measures priority and no substantial

government assist for protection against disaster. In

list of measures. Citizens face considerable

addition,

obstacles, for example, they have no method ofevacuation drills with the understanding that whensubmitting their opinions about measures andearthquakes occur, we cannot help all our neighbors,

measurespriority

Universities

ortoregional
thisself-defense
organizationorganizations
shouldwithsimulatethegovernment.

but only ourselves or maybe a few others. During

Non-Profit

Organizations

evacuation drill, people should think of possible(NPOs) should function as a bridge between

situations, for example, how to function at night,

government and citizens, to establish solutions

how to deal with collapsed buildings and houses,

for deciding a measures system, and soliciting

how to aid persons who require nursing care, how toopinions from citizens and reflecting citizen

cope with main evacuation road to lockage by fireevaluation to the government.

disaster or damage to property.
3. ESTABLISHMENT OF MEASURES BY

Target of disaster prevention

NEW PUBLIC MANAGEMENT

Research: Needs
Planning measures

Implementation Content of Regional

Strategy of effective implement

Implement by government

Calculating of effect

After 1 year, 5 years

Citizen to Government

Self-defense Organization
The subject of this research is regional
self-defense organization for the Nishi-machi area ofReadjustment implementation

Yasu town (This town consolidated around 5 towns

measuresas Konan City in March 1, 2006.) This area isprojected to experience flood damage from Tsunami

Figure 2. Plan-Do-See

up to 10 meters high.

Figure 3. Flood damage map at Nishi-machi area
Figure 4. Measure MatrixInRegional

self-defenseorganizationofNishi-machi area, to understand what citizens have

A: the area in figure 4, measures of this area

inability, inadequacy, ignorance, we surveyed thewere low cost and easily implemented. In fact, thesecitizens by questionnaire. These answers resulted inmeasures were planned, checked or implemented. B:

approximately 100 measures by extracted andarea of figure 4, measures of this area were required

converted.

for accountability of time or cost. Therefore, thesemeasures needed additional priority setting andTable 1. Answer from questionnaire
Is there enough emergency food and goods?

execution. Measures for Nishi-machi area werecategorized as in figure 5.

Who will close the flood gate?
Numbers of times of evacuation drill?

Categorize to Evaluation Index

How long does it takes for distress reports to besent?

As can be seen in figure 5,

areas were

low cost and needed short or middle term measures,
so these were checked, planned, or implemented
Measure Matrix

immediately.
On the other hand,areas required substantial

Approximately 100 measures in the needs

time and could not be implemented immediately. In

classification to achieve prevention disaster system.

addition, under the budget constraint conditions, it
was important to meet accountability requirementswith high priority. Consequently, these measuresneed to be divided according to priority. These
measures were divided in 3 groups, “Minimize initialdamage”,”Minimize post-earthquake damage” and“Accelerate reestablishment”. In addition, there wasa need to consider effect, cost, means of decreasing
risk after 1 year and how to minimize total risk after
5 years and 30 years.

Long

Expansion, alteration, installation ofevacuation sites
Expansion, alteration of escape routes
Implementation of anti-seismic reinforcement

Figure 5. Measure Matrix for Nishi-machi area

Manifestation of government support

Study of Earthquake and tsunami D
Resolve a gap of consciousness
Understanding of centrality of evacuation drill
Have a new understanding about earthquake
Understanding map for evacuation
Understanding port of distress each family
Understanding time to evacuation
Preunderstanding where is countermeasures headquarters Understanding each other (neighbors)

Execution of various manuals C
For fire company
For teachers (for school)
More intimate manual for prevention disasterFor tunnel collapse
For housewife or househusband
Contact address in emergencies

B

Improvement of evacuation drill A
Not set destination
Deliberatio of variation of evacuation drill
Evacuation drill for tsunami
Evacuation drill without derivation
Deliberatio of the number of evacuation drill
Compellation for participant
Installation of animation

Preliminary discussion with voluntary body
Check well water quality for emergency
Alteration, deliberation of display ofevacuation routes
Implementation of evaluation of seismic
capacity
Check bridge condition

Installation and proliferation ofstreet lamps

Deliberation of evacuation method
Derivation method for children
Installation of indirect route
Decide: role assignment each other
Installation of evacuation roadHigh

Check time limit and acceleration purchase offire extinguisher
Alteration of place of buzzer
Purchase: power generators
Adding to holdings: equipment for refugee
Create a stockpile of medical products
camps
Fastening to walls furniture

Cost

Daily check of escape routefor evacuees and port of distressComprehend: family member's location
Check water pipeline

Deliberation of rescue method
Implementation on lecture for rescue and aidInstallation person responsible of disasterprevention equipments
Provision and calculation of lifeline

Low

Improvement of evacuation drill A
Deliberation of evacuation method B
Check safety and capacity of port of distress
Check safety and capacity escape route for
evacuees
Comprehend: where the senior citizen areliving

Execution of various manuals C
Study of Earthquake and tsunami D
Middle Preliminary discussion with fire company
Comprehend: where the vulnerable people arelivingShortTermAfter that, take a choice of after 5 years and30 years.
Table 3. Choice in 5 years, 30 yearsz

Inability in short-termzConsideration of accelerate infrastructuresz

Investment for long-term
From these priorities, we can decide the best

Figure 6. Evaluation Axis of damage and timemeasures for citizens needs. After we decide “A”
area, there is a need to decide measure priorities for“B” area. This area has 2 elements; high cost andlong term to finish. Figure 8 is the 2nd measurematrix including these 2 elements. This matrix wasrearranged from white color area of figure 5. Thegray areas in this matrix overlap measures for othereffect.

Term
Effect of Measures
Short
Check time limit andacceleration purchaseof fire extinguisher

Figure 7. Effect and risk overtime

Alteration of place of buzzer

Priority After Categorization

MiddleMinimize
initial damage

Long
Daily check of escape routeforevacuees and port of distress
Installation andproliferationof street lamps

Alteration, deliberation ofdisplay of evacuation routes

Expansion, alteration,
installation of evacuation
sites

Fastening to walls furniture

Expansion, alterationof escape routes

The most important thing in disaster prevention

Implementation ofanti-seismic reinforcement

is human life. In fact “Minimize initial damage” isthe first priority, because initial damage, for example,
Tsunami and quake, have the most impact on human

Minimize
post-earthquake
damageAdding to holdings:
equipment for refugee camps

Preliminary discussion
with voluntary body

Fastening to walls furniture

Implementation of evaluationof seismic capacity

Expansion, alterationof escape routes

Check bridge condition

life. Include this concept, the second priority is

Check well water quality
for emergency“Minimize after earthquake damage” and the third
is “Accelerate reestablishment”. The most important

Expansion, alteration,installation of evacuation
sites

Create a stockpileof medical products

Purchase: power generators
Accelerate
reestablishment

Implementation ofanti-seismic reinforcement

Fastening to walls furniture

other measures are “measures to minimize damage
after 1 year”. These measures are listed in table 3.
Table 2. Choice in 1 yearz

1st priority: save life,
2nd priority: reduce damagez

Minimize risk in the immediate futurez

Squeeze to achievable measuresz

Minimize investment

Figure 8. 2nd Measure Matrix

Figure 9 is sagest priority on 2nd measure matrix.
Term
Effect of Measures
ShortMiddleLong

Check time limit andacceleration purchaseof fire extinguisher

Minimize
initial damage

Daily check of escape routeforevacuees and port of distress

Alteration of place of buzzer

Alteration, deliberation of
display of evacuation routes

13

Fastening to walls furniture

Installation andproliferationof street lamps

5Expansion, alteration,
installation of evacuation
sites
Expansion, alterationof escape routes
Implementation ofanti-seismic reinforcement
Expansion, alteration,
installation of evacuation
sites

Create a stockpileof medical products

Minimize
post-earthquake
damageAdding to holdings:
equipment for refugee camps

Preliminary discussion
with voluntary bodyExpansion, alterationof escape routes

2

Implementation of evaluationof seismic capacity

4

6

Fastening to walls furniture

Check bridge condition
Check well water quality
for emergency

Implementation ofanti-seismic reinforcement

Purchase: power generators
Accelerate
reestablishment

7

Fastening to walls furniture

89

Figure 9. Priority on the 2nd Measure Matrix
4. CONCLUSION
These methods for tsunami and earthquake disasterprevention helped the citizens of Nishi-machi area.
They got actual need measures and services that theycould not get from the government. On the other hand,
the government was got adequate accountability toanswer questions such as “why these measures andpriority”. In addition, the government could collectinformation from the citizens and invest with fullunderstanding of the needs of the citizens.

In future research, we should work to enforce theimplementation of the disaster prevention system, infact readjust method of approach and measurement ofeffect. On another front, the previous disasterprevention map was found to be inadequate. We should
improve this map by rechecking hazardous areas andinspecting buildings and houses.

REFERENCES
Website: The Headquarters for Earthquake Research

Promotion

URL: http://www.jishin.go.jp/