RESEARCHREPORT
VISITING RESEARCHER PROGRAMME, FY-2018

TITLE OF RESEARCH
Community Based Disaster Risk Reduction Practices for
Flood Risk Management with special focus on Early
Warning, Infrastructure resilience and Livelihood
improvement along with other scalable DRR interventions
for Flood plains- Case Study of Japan.

MRIDUSMITA BORAH
ADRC VISITING RESEARCHER, INDIA

1

Disclaimer

This report was compiled by an ADRC visiting researcher (VR) from ADRC
member countries.

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

2

ACKNOWLEDGEMENT
Disaster Risk management is not a stand-alone process, rather it’s a collaborative effort. Disaster Risk
Reduction is the most challenging task in the disaster management process. Prevention andPreparedness has to be imbibed as a culture in the society, if disaster risk management has to be
successful. However, in most cases it’s an uphill task for disaster managers who try to build a culture ofsafety in the society despite adversity and challenges. The task is more tedious when the target group islarge. Japan is known for its disaster management practices and most of the global DRR frameworks
have been adopted in this country. Therefore, it is quite exciting for me to be a part of the Visiting
Researcher Programme of ADRC, Japan for the FY-2018. I sincerely thank the Ministry of Home Affairs,
Govt. of India, Govt. of Japan, Govt. of Assam and the Asian Disaster Reduction Centre, Japan for
accepting my research topic and giving me the opportunity for doing the research.
I would like to convey my deep sense of gratitude towards the Cabinet Office, Japan, Hyogo Prefecture
Government office, Hyogo Police, IRP, Educational institutions (Kobe University, KUIS), the private
entities and the other DRR organizations of Japan that helped me in fruitful conduct of my research.
During my stay in Japan, I had an opportunity to experience disaster in real time in Japan like the
TYPHOON JEBI (Typhoon21), Hokkaido earthquake and TYPHOON TRAMI (Typhoon 24). It provided alearning experience for me as I was a part of the community of Nada ward and could discern how
warnings are disseminated in real time, how disaster is managed and the way people cope with thedisaster as well as resilience of infrastructures (communication, electricity etc.) are striking examples forme.
Last but not the least, I am grateful to the ADRC staff who arranged a number of site visits and facilitatedmy learning. Special thanks to Mr. Masanori Hamada, Director, ADRC, Mr. Koji Suzuki, Executive
Director, ADRC, Nakamura San and Arakida San, Senior Researcher and Mentors, Shiomi San, Researcher
and In-charge, VR Program and Mr. Kawahara. Without their efforts it won’t have been possible for me
to complete the program and compile this report. I am also thankful to my VR colleagues Ms. Mazni
Binti Azis, Malaysia and Ms. Shaufa Aminath, Maldives, Ph.D Scholar Anastasia Kvasha (Russia), InternAmelie Hoffarth (Germany) and Ms. Ree & Mr. Okazaki of DK House, Kobe for their cooperation during
the stay.
I hope this research work will be useful for me in my career as disaster manager and also to theGovernment of Assam, Government of India and Government of Japan.

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TABLE OF CONTENTS

ChapterContent

Page

Disclaimer

1

Acknowledgement

2

Table of Contents

3-4

1.

Introduction

1.1

Background of the Research

5-6

1.2

Objective of the Research

6

1.3

Significance of the Research

6-7

1.4

Reason for opting Japan as the research area

7

2.

Methodology

2.1

Data Collection

8

2.2

Data Analysis

8

2.3

Study Area8

2.4

Limitation of the Study

8

3.

Communities Based DRR in Japan

3.1

Types of communities

9-10

3.2

Vulnerability of communities to disasters

10-11

3.3

DRR Legislations

11-12

3.4

Local Governance systems for DRR

12-16

3.5

Preparation of Hazard Maps

17

3.6

Community Disaster Prevention plans

17-19

3.7

Execution & testing of plans by Communities

19-21

3.8

Community’s response to Disaster

21-22

4.

Community’s’ access to Early warning Informationin Japan

4

4.1

Early Warning Organizations

23-24

4.2

Early warning Systems

24-25

4.3

Early warning dissemination mechanism

25-29

4.4

Response to Early warning information

30-32

5.
5.1

Infrastructures in Japan -resilient to hydro-met
hazards
Hydro-Met Hazard types and related phenomena

33

5.2

Infrastructure planning

33-34

5.3

Convergence forums of private & public entities

34

5.4

Infrastructure types

35-41

5.5

42

6.

Approach of communities towards resilient
infrastructures
Livelihood support for Community

6.1

Livelihood opportunities

43-44

6.2

Pre-disaster Livelihood

44

6.3

Business Continuity Planning at Community level

44-45

6.4

Post-disaster Livelihood support

45

7.

Discussion on CBDRM in Assam, NE India

46-47

8.

Conclusion & Suggestions

48-49

LIST OF FIGURES & TABLES

50-51

References

52

Photographs

53-54

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CHAPTER-1
INTRODUCTION

1.1 Background of the Research
Every year India is affected by a significant number of disasters. Due to its topographic diversity,
different parts of India experience different kind of disasters. However, vulnerability to flood is uniqueto certain regions of India, depending on the monsoon patterns, topography as well as to some extent
the un-sustainable development pattern.
This research is proposed to be applied in a geologically significant part of India i.e. North-Eastern India.
North East India is severely prone to flood, erosion, earthquake, landslide and thunderstorms. However,Assam- one of the states of NE India is located in the continental shelf region and is perennially affectedby riverine flooding. Risk of earthquake & landslide induced flooding is also quite high in this region.
Most of its neighbor states or border countries have hills which contribute to huge amount of rainfall
run-off to the shelf area of Assam. Large volume of silt laden water from the mountains enter into theshelf every year during monsoon, leaving thick silt deposits in the upstream and devastating the entire
plain areas with flooding. People lose their livelihood due to varied factors that arise as a consequenceof flood disaster. The main rivers that cause flood havoc in Assam are Brahmaputra and the Barak inaddition to a large network of interconnected tributaries.
According to the satellite data mapped between 1998 to 2007 (Flood Hazard Atlas for Assam State, July,
2011 by NRSC) 6% area of the State falls in very high flood hazard zone, 10% in high flood hazard, 16% inmoderate flood hazard, 22% in low flood hazard and 46% in very low flood hazard zone. However, thefrequency & intensity as well as geographical coverage of floods in the State has shown increasing trend
over the period of time and so is the extent of damage. As per Cumulative Flood Report of 2017, no. of
deaths due to flood increased to 160, which is quite high compared to previous years. With the changing
climatic conditions, the death toll has significantly increased thus lessening the coping ability of the local
communities.
Taking into account, flood experience of the past, Assam State Disaster Management Authority (ASDMA)
took up a pilot project for building up flood resilience in the lowest administrative units (villages). The

6project villages were prioritized based on already available scientific reports and studies of ASDMA. The
project was formulated initially for a time period of 3 years. ASDMA succeeded to carry out only few
non-structural interventions in the project villages in the first phase of the project during the 1st & 2nd
Year of the proposed timeline. Few of the interventions were Village mapping exercises, preparation offlood evacuation kits, training of Task forces and Pre Monsoon camps for scheme awareness, IEC
circulation etc. However, ASDMA plans to have a second phase of the project which will mostly focus on
improving the existing Early warning system, create alternative Livelihood opportunities and building
resilient infrastructures including introduction of some climate resilient agricultural practices in the
proposed areas.

1.2 Objective of the Research
The objective of the research is to make a detailed study of the following systems that exist in Japan andtransfer the knowledge into the project areas:
1. Understanding the Disaster Risk Reduction Legislations and mode of governance in the lowest
administrative units of Japan
2. Mode of Planning with focus on method of preparation of Hazard /vulnerability map by local
government in Japan and preparation of localized Disaster Management plans (development ofcontingency plans, community action plan for DRR, local development plan etc.)
3. Institutional Mechanism at village level / forums for convergence among sectors and stakeholders.
(Business Continuity Planning etc.)
4. Early Warning Systems to improve dissemination of communication to the last mile in probableflood condition.
5. Resilient Infrastructure patterns for all hazard sustainability with special reference to flood hazard.
6. Livelihood opportunities for communities in pre-during and post flood condition.

1.3 Significance of the Research
The proposed research is expected to address the areas for DRR intervention in the project areas ofAssam and explore possible collaborations with external agencies on the project. The research will
provide a knowledge base to address the following issues-

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1. Understanding local governance systems along with mode of DRR integration into development
plans.
2. Improvement of the existing Community Early Warning Systems to improve dissemination of hazard
information to the last mile.
3. Livelihood improvement of the communities for pre-during and post flood condition.
4. Identify resilient infrastructure patterns for hazard sustainability.

1.4 Reason for opting Japan as the research area
1. Disasters occur frequently in Japan due to its geographical location. Japan is situated in the “Pacific
Ring of Fire” which is geologically very active and significant. This area is prone to multiple hazards likefrequent volcanic eruptions and seismic activities. Japan is also vulnerable to several meteorologicalhazards like typhoons, storm surge etc. The frequency of natural disasters that occur in Japan due toits geographical position and geological history is one of the reason
2. The disaster management system in Japan was adopted long time back compared to Indian Disaster
Management system and was adopted as a need to counteract disaster vulnerabilities.
The fact that- “need for a disaster management system in Japan was felt after the severity of damages
caused by Ise-wan Typhoon of 1959. The Disaster Countermeasure Basic Act was enacted in 1961,
which formulates a strategic disaster management system. The laws have been revised andstrengthened after the lessons learnt from the Great Hanshin Awaji Earthquake of 1995. The Disaster
Management System of Japan addresses all the phases of the Disaster management cycle prevention,
mitigation and preparedness and emergency response as well as recovery and response.” Is anotherreason for considering Japan for case study.
3. Japan is known for its disaster counter measures all over the world.
4. Infrastructures in Japan are built back as per resilience standards.
5. Due to similarity in the kinds of natural disasters faced by both India and Japan, learning from Japan
experience would widen the scope of understanding of DRR and also help in better planning of future
initiatives.

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CHAPTER-2
METHODOLOGY
2.1 Data Collection
Data Collection process involves both primary and secondary data collection process. However
secondary data has been collected from books, reports, brochures, online portals etc. Whereas, primarydata collection is more qualitative than quantitative. Qualitative data collection methods include
discussions, interviews, open-ended questions, observation, case studies etc. The data for the researchis collected from research reports mentioned under the references. Few data and reports were collectedfrom books and journals available at ADRC, Japan during the program and few others have beencollected from the internet. And mostly primary data is collected from site visits to relevant areas ofstudy and also from attending lectures of different experts in the relevant field, interaction with expertsetc.

2.2 Data Analysis
Data analysis is mostly based on literature survey, summary of lectures from the experts, field visits,
interaction with experts etc. Data has been analyzed qualitatively and mostly is opinion based. No

quantitative method of analysis is applied during the research since the time was limited.

2.3 Study Area
Study areas in Japan, relevant to the research topic were selected by ADRC. Special visits to
those areas were conducted.

2.4 Limitation of the Study
Each of the sites in the study area had so much of DRR information, but to collect all theinformation in this limited period of 3 months is not possible. Therefore, the research can beconsidered as a preliminary report of a reconnaissance survey of the study area.

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CHAPTER-3
COMMUNITY BASED DRR IN JAPAN
3.1 Community Types:
Community is a social institution, that is, a stable structure and agreed set of procedures andconventions that provides social order and meaning. Communities can be established depending on
varied factors like by geography or choice; they may be based on activities or beliefs etc. A community is
believed to foster a sense of belonging, connection, communication and interaction. Virtual
communities also exist where people share common interests but do not meet or interact frequently.
Kegley (1997) writes about engaging with ‘genuine community’ as a means of improving individual wellbeing by strengthening knowledge, intentionality and enlightenment.
If we consider from the perspective of Disaster management, there are basically two broad categories ofcommunities that play an important role in DRR and disaster response are Rural and Urban
communities. Apart from these two broad categories there may be other groups or communities thatplay specialized roles in disaster reduction, education or response. But any member/individual of suchspecialized group is also a member of either of the two broad categories. An individual can be memberof multiple communities depending on his interests, engagement or social activity.
An “Urban Community” is mostly referred to as a “society” whereas the Rural conglomeration is a“community”. However, the social cohesiveness is more in rural than urban communities. Members of
rural communities are childlike, close and have frequent interactions. Residents are familiar with eachother and have common way of life or beliefs. In contrast, Urban communities have socially mature
relations, interactions are more distant and not very frequent. They comprise mostly of citizens who are
relatively unknown to each other and whose lifestyle and beliefs are different and change constantly.
In Japan, there are both “rural” and “urban” types of communities. However smaller groups orcommunities under these two broader groups exist which contribute and work for DRR. These
communities are known as “Disaster safe Welfare Community groups” which work for DRR and manage
disasters in their own localities. However, there are no significant age criteria to be a member of thiscommunity. Any person can be a member depending on his social activeness and interest in DRR.
Children are junior task force volunteers in these community groups and extend support during
disasters.

10However, one of the important component of DRR education in schools of Japan is that, the students
are taught to greet each other, to know each other and to help one another. One fundamental principle
proposed in Japanese DRR is to promote “Self Help” and “Mutual Help” This lesson has emerged as anexperience of the Great Hanshin Awaji earthquake (GHAE). After the GHAE occurred there were
instances where neighbors did not know each other which is a common scenario in Urban societies. So if
a family in the neighborhood were trapped, or dead, nobody knew exactly how many people under thedebris. Nobody helped each other. Therefore, we can say that disaster management is a culture, to be
adopted through daily life practices. If DRR has to be a fruitful initiative, the concept of “Self Help” and“Mutual Help” should be practiced by communities (or societies) in daily life. This can be fostered only
through regular meetings or gatherings, discussions or by being a member of the community groups.

3.2 Vulnerability of communities to disasters
Communities are vulnerable to disasters due to lack of knowledge and most importantly due to lack ofunderstanding of the risk areas in which they live. Both Rural as well as urban communities arevulnerable to different risk patterns. Rural communities are more ignorant of risks compared to urban
communities. The government in this regard has a major role to play by making the communities awareof the risk prone areas and providing them with sufficient information on the measures to be taken forresiding in risk prone areas. Vulnerability of the community to hazards may be due to various factorsLack of understanding of risk, poverty, lack of accessibility to resilient infrastructures, lack of faith ingovernment policies and inability of the government to sensitize the community on disaster risk.
However, if we take the case of Japan, the local government (For Example: Hyogo Prefecture) has
already mapped the risk prone areas and created hazard maps which are widely circulated to the people
residing in municipalities in the form of hazard bulletins. Therefore, sufficient efforts have been made on
the part of the government to sensitize urban communities about the vulnerable areas. Moreover, theFire bureau of the city government has museums to educate the community on risk and measures to betaken for disasters like preparation of emergency kits, do’s and don’ts for different hazards, disastereducation for children through organizing disaster awareness camps etc. Besides these the city
government also has a website in which all disaster management information including hazards maps,
vulnerable areas marked in different colors in accordance with risk category as well as disaster booklets
on preparedness measures are available in local language (Japanese). In Japan, rural communities are
more vulnerable to typhoon risk as compared to the urban population due to lack of resilient housing.

11

Traditional style Japanese houses in rural areas suffer damages due to Typhoons as well as earthquakes.
Flood hazard in urban areas are mostly managed by the municipality and city government. People aremostly vulnerable to flooding as well as sediment disasters (Landslides) caused by typhoons andtsunamis and in few cases due to overtopping of the riverbanks.

3.3 DRR Legislations
DRR laws were established in Japan during Early Meiji period i.e. 1871 onwards and subsequently after
lessons learnt from 1923 Kanto earthquake. In 1923 the Special law on Urban Planning was developed
after the Kanto Earthquake. 1947 Disaster Relief law was established after 1946 Nankai earthquake inwhich 1330 people lost their lives. 1961 Basic law on Disaster Countermeasures was adopted after the1959 Ise-wan Typhoon (5098 lives lost), 1998 Law on Support for Life reconstruction was framed after
1995 Hanshin Awaji Earthquake (6434 lives lost) and 2013 law on Recovery from Mega Disasters was
adopted after the 2011 East Japan Earthquake (15894 lives lost). Each law has been adopted as a lesson
learnt from certain major disaster and subsequently amended with time and newer lessons learnt.
There are separate laws for each phase of Disaster management like- Disaster Prevention, Emergency
response, disaster Relief and Rehabilitation. Some significant laws on Disaster prevention are-1896/1964
law on Rivers, 1897 Law on Forestry, 1950 Law on Building standards etc. Emergency Response laws like1948 Fire Fighting law, 1949 Flood Prevention law, 1954 Police law etc. Disaster Relief Laws like 1949
Law on disaster Relief, 1972 Law on Condolences, 1998 Law on Reconstruction of Living of Disastervictims etc. Rehabilitation laws like 1951 Law on National defrayment for Rehabilitation of Disaster
stricken Public facilities, 1962 Law on Special Financial Aid for Heavy Disasters etc.
Under several acts like Sediment Disaster Countermeasures Act, the Flood Control act etc., the Ministryof Land Infrastructure Transport and Tourism is the nodal agency to define Land Use regulations in the
country. The ministry prepares hazard maps and provides disaster management information. Hazard
maps are distributed to the communities in printed form. As of March 2014, cabinet office report, 1272
municipalities have published flood hazard maps. 95% municipalities have prepared and 5% yet toprepare. The Ministry designates Yellow, Red and Orange zones in the maps. People residing in yellow
zones are encouraged to prepare for flooding & sediment hazards. However Red zones are banned areasand people are not permitted to live in those zones. Article 29 of the constitution protects “Freedom of
Ownership” and so government cannot take strict actions or force but only can provide subsidies. If
residents dwell in such areas despite restrictions, no compensation is paid to the dwellers in the eventof disaster loses. And the Ministry encourages early evacuation of such areas. The Ministry acquires

12/purchases land from residents living in red zones and buys a subsidized land elsewhere in yellow zone
for the resident using the money received from the resident. However orange zones are designated forland development by government for making it suitable for living through land re-adjustment, widening
roads, raise heights etc. People affected by disasters are generally rehabilitated into such areas afterland development. But there are long waiting periods for citizens and till completion they have to residein temporary shelters.
The local (municipal) government is responsible for translating disaster laws into certain easy tocomprehend forms of communications that can be easily understood by communities. Awarenessmaterials are printed and distributed in the form of advisories/ booklets for understanding ofcommunities with pictorial descriptions.
Article 5 of the Basic Disaster Countermeasure act, envisages municipal governments to protect lives,limbs and properties of the residents, making disaster preparedness plans for the residents and its
implementation according to the laws, promotion of Shobo-Dan, Suibo-Dan and other autonomous
Disaster Preparedness institutions (Jisyu-bosai-soshiki), Establish mutual assistance between
municipalities and co-operation with volunteers by national & local governments.

3.4 Local Governance systems for DRR
The Governance system of Japan follows a bottom up approach and the system has vertical divisions aswell as strong local and municipal government connections. The Government system in Japan has threevertical layers and a 4th layer was added to the structure after the 1995 Great Hanshin Awaji earthquake

Basic Act on Disaster Control Measures

as shown belowNational
Level

National Government (Basic Disaster
Management Plan

Special DP HQ (Head-PM)
Emergency DP HQ-(Head
Department Minister)

Local

Local (Prefecture) Government (Local Disaster
Management plans)

Prefecture Disaster
Prevention HQ (HeadPrefectural Governor)

Municipalities (Cities, Towns and villages) (Local
Disaster Management Plans)

Municipal DP HQ (HeadMunicipal Mayor)

Disaster Safe Welfare Community Group(Community-Elementary School District)(Community Disaster Management Plans)Community Group (HeadCommunity President
Leader)Level

Community
Level

Figure 1: Flowchart showing Disaster Management structure in Japan
Source: Pg. 52, Point No. 14

13

The entire system operates in a bottom up manner. Whenever an inquiry is sent by National
Government regarding any matter, local government takes one week to send the matter tomunicipalities. The municipalities take one week for investigation, aggregation of data and sending toprefectural government. The Prefectural government aggregates data from municipalities and replies to
the National government.

However, the Mayor of city as well as village, have equal powers like Prefecture Governor for making
disaster management decisions at the local level. The Mayor has a major role in emergency response.
The Mayor under his discretion can establish Municipal Disaster Prevention Center, take preventive
measures, issue evacuation order, designate risk areas, utilize human resources and private properties
for public use and request for self-defense force. The Mayor has the following responsibilities like
Collection and dissemination of information, report of damages, warning citizens to prepare for
evacuation, command on dispatch, Order for vertical evacuation, emergency response including
provision for disaster relief, issuance of certification of disaster victims (Risai certificate), utilization of
GIS and information sharing.
Article 5 of the Basic Disaster Countermeasure act, envisages municipal governments to protect lives,limbs and properties of the residents, making disaster preparedness plans for the residents and its
implementation according to the laws, promotion of Shobo-dan, Suibo-dan and other autonomous
Disaster Preparedness institutions (Jisyu-bosai-soshiki), Establish mutual assistance between
municipalities and co-operation with volunteers by national & local governments.
The 4th layer of Governance is quite significant for Community based Disaster Risk Management(CBDRM) as it plays a vital role in encouraging citizen representation in governance. Disaster
Management can be successful only if the citizens equally participate in the process. And Disaster
Welfare Community Group constitution is an example of citizen centric governance. The Disaster Safe
Welfare Community Group (Jisyu-bosai-soshiki) is supported by two more technical voluntary units
namely Shobo-dan and Suibo-dan. The Structure is as shown below-

14

CITY FIRE BUREAU(Manpower,
Technical as wellas Financial
Support)SHOBO DAN
(Volunteer Fire
Corps)

Chief of Shobo
dan Nominatedby Mayor

CITY
GOVERNMENT(Financial
Support)Technical
supportFunction (Under
Fire Bureau)

DISASTER SAFEWELFARECOMMUNITY
GROUP(Jisyu-bosai soshiki(Led by
Citizens,
supported by
City Fire
BureauWATER BUREAU(TechnicalSupport)Technical
supportSUIBO DAN
(FloodPrevention
Associations)
Formed Under
Municipal
ordinance
Function (Under
Water Bureau)

Figure 2: Flowchart showing Community Based Disaster Management structure in Japan
Source: Pg. 52, Point No. 12
In Kobe City, 1400 personnel (Full Time) from Kobe City Fire Bureau and 4000 Volunteer Fire Corps (parttime) support 191 Disaster Safe Welfare Community Group. 13000 Citizen leaders have attended ToT
and 800 Drills are conducted per year. (source: Lecture notes on “Issues of disaster risk reduction” by
Prof. Yuka Kaneko, Kobe University)
The Shobo Dan functions under the Law on Fire-fighting. The Shobo-Dan (Local Fire Brigade) areengaged either on full time/part time basis and perform under Shobo dan chief. The Mayor nominates
the Shobo Dan Chief and Shobo Dan Chief selects the other members with approval of Mayor. The
Shobo Dan members has responsibility of local fire fighting, conduct rescue operation and also help inflood prevention/protection activities along with Suibo Dan. In other times Shobo Dan also conducts
preparedness/ awareness activities like Education for families, Elderly people, Training of First Aid,
Increase awareness of local residents. The Shobo-Dan have remuneration as well compensation for theactivities they perform.
The Suibo Dan are formed under the 1949 Law on Flood Prevention and 1908 law on Flood Prevention
Associations. The Suibo Dan are local Community Flood Prevention Associations formed under the15

Municipal ordinance. These are autonomous bodies that conduct Flood protection works as well as
prevention works. These associations function under the Water bureau.

Figure 3: Models showing activities on Flood Protection/ Prevention by Suibo-Dan (Flood Fighters)
using sand bags, bamboo and local materials (photo source: Tsunami & Storm Surge Disaster Prevention center, Osaka)
The Disaster Safe Welfare Community Group is a voluntary disaster prevention organization that carriesout disaster prevention training etc. The functional area of each Disaster Welfare Community Group isaround an Elementary school. The Disaster Welfare Community Group conducts its meetings in theelementary school. The structure and functions of Disaster Welfare Community Group is as shown
below-

16

Information Team: Collection of information
about disaster, preparation of refugee list etc.
Fire Extinguishing Team: Initial fire extinguishingactivities, security on fire (patrol) etc.
Headquarters
President/ Vice
President

Rescue team: Rescue and first Aid of injured
people, transfer to first aid station etc.
Escape Guiding Team: Transmission ofevacuation instruction, personnel roll call/escapeguiding etc.
Life Support team: Meals
preparation/distribution, watersupply/distribution of emergency supplies etc.

Figure 4: Diagram showing structure of “Disaster Safe Welfare Community Group” in Japan
Source: Pg. 52, Point No. 12
The Disaster Safe Welfare Community Group is supported by the City government for implementing its
activities. The following are the support measures are provided by City Government to Disaster Safe
Welfare Community Group a) Provision of disaster prevention materials and equipment at the time of formationb) Subsidizing of activity expensesc) Support of development of citizen’s disaster prevention leader.
d) Support by fire-fighting officer service system by districte) Support by volunteer fire corpsf) Other support measures like training fire-men, fire fighting vehicles and subsidy etc.
The Disaster Safe Welfare Community Group has following functions for DRR: Taking up activities for
welfare of community with financial support from City Government, conduct trainings, meetings,
prepare hazard maps, develop Community Disaster management plan, conduct drills with the help ofFire Service personnel in-charge etc. 2-3 Fire Service personnel are in-charge of each Disaster Safe
Welfare Community Group.

17

3.5 Preparation of Hazard Maps:
The hazard map is prepared by local residents (community) under the guidance of municipalities tochalk out the expected damage areas by foreseeing the damage to be caused by flood, sediment orother natural disasters. The map shows information such as areas at risk of damage from disaster, theextent of damage and evacuation routes/sites. Sometimes even if places are not designated as risk areaon the hazard map, they may suffer damage due to disaster or in some cases may suffer damage at alarger scale than the area designated in hazard map. The hazard map is prepared in three steps. Firstly,
they divide into block-wise groups, prepare a draft map in the map building workshop, mark the houses,
evacuation routes, sites etc. make a presentation by community blocks. Secondly, they conduct a “townwatching” on the subsequent day with the draft map for identifying the hazards/risks and correcting andcollecting more data on the 1st draft map. Brainstorming sessions are conducted for revision of first drafton the basis of information obtained from “Town watching”. The details are presented in the second
workshop. And Thirdly, the city officials print the 2nd draft and conduct a third workshop. The
community attends the third workshop for any final correction in the printed map. The contents of the
final map are presented by city official with a request to use the hazard map in the community drill.

3.6 Community Disaster Prevention Planning:
There are different layers of planning in Japan Disaster Management System. The following types ofplans are prepared by respective agencies as mentioned in the table and reviewed as per following
timeline as indicated belowTypes of plans

Planning Body

Timeline forreview
Yearly review

Basic Plan of Disaster Prevention

Central Disaster Prevention Body

Disaster Preventive Operation plan

Designated Administrative Org.
Designated Public org.

Yearly review

Prefectural Disaster Prevention Plan

Prefecture Disaster Prevention Body

Yearly review

Municipal Disaster Prevention plan

Municipal disaster Prevention Body

Yearly review

Community Disaster Prevention plan

Proposal by Local Residents (Disaster
Welfare Community Group)
Intra Prefecture Disaster Prevention Co-ordination Committee of Prefecture
Plan
Disaster Prevention Bodies

Yearly review

18Inter Prefecture Disaster Prevention Co-ordination Committee of Municipal
Plan
Disaster Prevention Bodies

Yearly review

Table 1: Disaster Management Planning System in Japan(Source: Pg. 52, Point No. 12)
Community Disaster Prevention plan is the smallest unit of planning and several community disasterprevention plans are integrated to make the Municipal Disaster Prevention Plan/ Local Disaster
Prevention plan. The Disaster Safe Welfare Community Group of a locality is responsible for making theCommunity Disaster Prevention plan. The Disaster Safe Welfare Community Group was established after
the Great Hanshin Awaji Earthquake (GHAE) of 1995. Disaster Welfare Community Group are
established based on municipal elementary school districts by the residents. Disaster Safe Welfare
Community Group are based on elementary school districts because there is an “welfare community”
organization established for welfare purposes in each elementary school district and a disaster risk
reduction organization was integrated into the existing organization. Also elementary schools operate as“evacuation site” during emergencies for the communities. Disaster Safe Welfare Community Group isestablished in Elementary schools so that they can easily operate their evacuation site in the case of
emergency. One Elementary school is established against a population of 10,000 people. There are also
voluntary community groups in areas which do not have an elementary school.
The Disaster Safe Welfare Community Group also works during peacetimes on several areas like firefighting, rescue & aid etc. formed within the organization. Once a disaster occurs, Disaster Welfare
Community Group Headquarters will be set up by the specialized teams to direct each of the district
blocks.
The Disaster Safe Welfare Community Group is a section smaller than the Municipality and hence thesmallest administrative section. So each small administrative section is expected to prepare the“Community Disaster Management plan” The Community Disaster Management plan specifies action to
be taken at the site, or at the community level, during a disaster. Hazard Map is one of the componentof the “Community Disaster Management plan” used for planning disaster prevention. “Local disastermanagement plans are characterized by their style of specifying actions and plans to be taken in adisaster in the form of checklists. A checklist in the community Disaster Management plan is describedas “a chapter clearly specifying the locations within the block in which the local Disaster Welfare
Community Group members as well as other community members should gather” and a chapter listingout “items essential in disaster response in a checklist”. This style enables every Disaster Welfare19

Community Group to immediately participate in organizational management with this list in his/her
hand when a disaster strikes. Prior instructions for action are developed as per the community disastermanagement plan so that Disaster Safe Welfare Community Group members (disaster response teams)
in each Block know what to do at the disaster site including “information collection and communication”
and confirmation of safety of residents. In case of large scale disaster, the groups reach out to theneighbor blocks for mutual help in response. The following points are taken into consideration while
preparing the Community Disaster Prevention plansa) Location of Disaster Welfare Community Group Headquarters where the members will gather
during a disasterb) Location of different places/locations where local residents will gather for each block to perform
individual responses to disasters (Example: places where machinery, materials, water tanks orother resources are available)c) Check for disaster risks and hazard locations in the community through walking around theareasd) Examine the checklists for response items necessary for community
The Community Disaster Management
Plan prepared by community is in loose
leaf of papers in a file folder so that the
specific parts of the plan can be
detached for reading during emergencies
or easily updated after disasters by
replacing the old sheets for new ones.
The Disaster Welfare Community Groupprepares the plan in a very simple way soFigure 5: Community Disaster Management Plan of Kobe City

that every person can easily understand the plan. They prepare the plan in Flow charts and diagrams aswell as bullet points. The Disaster Welfare Community Group policy focuses on “Self Help” and “MutualHelp” by residents.

3.7 Execution & testing of plans through Drills:

20

The Disaster Welfare Community Group conducts regular mock-drills to test the preparedness of its
residents. The Disaster Welfare Community Group organizes the drills with the help of Fire services andlocal government support. The city government provides the funding to conduct drills based on “Activity
Plans” submitted by each Disaster Welfare Community Group. The Business communities, Youthassociations, Volunteer Fire corps, Resident’s association, Elderly association, Women’s association,
Parent-Teachers association, child committee members and other groups support the drills as well as
welfare activities in addition to support received from Fire Service personnel. The emergency
preparedness drills conducted by the Disaster Welfare Community Group has the following significance1. It helps to enable safe evacuation of local residents during emergencies 2. It helps to smoothly
operate evacuation sites during emergency situations 3. It brings cohesiveness amongst the local
residents. Evacuation drills also help to identify suitable transportation routes for different kinds ofvehicles, the distance as well as the time required and number of helpers required can be easily gauged.
The Disaster Welfare Community Group conducts drills as per the “Drill plan”. They involve thegovernment officials and conduct the drills. They conduct different kinds of drills depending on the
scenario like “Drill for information gathering and information transmission”, “Fire Drill”, “Evacuation
drill”, “Rescue Drill”, “Drills for provision of meal and water”, “disaster imagination games”, “First Aid
training” etc. They decide the scenario of drill, decide date & venue, participants, alternative plan, coordination with Govt. etc. The Disaster Welfare Community Group receives equipment support from thecity government. The City Government provide the Disaster Welfare Community Group with list ofequipment and they choose the equipment which they require. The equipment and materials are stored
in storehouses, local parks etc. Drills help in evaluation of preparedness level of the communities andprovide a scope for further improvement of conditions to handle a disaster efficiently.

21

(A)

(C)

(B)

(D)

Figure 6 : (A)Bokomi Members engaged in setting up Community Kitchen (B) Community Emergency
Drinking water facility (C) Display of Emergency Food Packets during Drills (D) Fire Fighting Drills by
Shobo Dan and Fire Bureau officials (Photo source: HAT Kobe Drill, October,2018)

3.8 Community’s response to Disaster:In a real scenario of disaster, the Disaster Welfare Community Group actually follows the CBDP plan andact as per the details practiced during mock drills. In case of Flood, the Suibo Dan act as a primary bodyfor flood mitigation activities. The Suibo-Dan are mainly responsible for reinforcing river banks andassisting peoples’ evacuation during floods. The Suibo-Dan are also responsible for patrolling river banks
at normal and disaster times, piling of stock of materials, issuing early warning by using temple bells orconch shell horns, and mobilizing volunteers for reinforcing banks during floods. The Suibo-Dan as per

22

law are also responsible for installation of river level gauges for monitoring floods. However, in recent
times due to Flood proof constructions and structures, the activity of Suibo Dan has decreased but theother group Slobodan is quite active. But in few parts of Japan like Osaka, the Suibo-Dan are still
responsible for closing of flood gates during heavy rainfall/tsunami warnings. The response activities
carried out by the Disaster Welfare Community Group during disaster is explained in the diagram below:(Disclaimer: this image is partially modified version of the image available in the “Bokomi Guidebook” of Kobe city for easy
understanding of role of DSWC in DRR)

Figure 7: Flowchart showing Disaster Response by “Disaster Safe Welfare Community Group” in Japan

23

CHAPTER-4
COMMUNITYS’ ACCESS TO EARLY WARNINGINFORMATION IN JAPAN

4.1 Early Warning Organizations:Japan Metrological Agency (JMA) is the nodal agency for providing early warning information to
the citizens. The Japan Metrological Agency observes metrological phenomena that cause
storm and flood disasters using the Automated Meteorological Data Acquisition System(AMeDAS), which automatically measures rainfall, air temperature and wind direction/ speed,
weatherradar,

andgeostationary

meteorological satellites. These are used toannounce forecasts and warnings to prepare
against disasters (weather warnings andadvisories for individual municipalities began
in May, 2010).
The rainfall and water levels in rivers areobservedbytheMinistry

of

Land,

Infrastructure, Transport and Tourism (MLITT)
and Prefectural Governments utilizing visualobservation methods, mechanical observationequipment, and a wireless telemeter systemthat transmits automatically observed datafrom remote locations.

Figure 8: Automated Meteorological Data
Acquisition System (AMeDAS) (photo source:
JMA,Kobe)

Sometimes due to heavy rainfall triggered by Tsunamis or Earthquakes, sediments give away,
blocking river channels causing artificial lakes in upstream or causing disruption of roadcommunication and sometimes loss of human lives. Warnings regarding sediment disasters arealso issued by the JMA through various alert systems.

24

The Municipalities in the Prefectures also prepare and disseminate hazard maps for general
information of the public on type of hazards.
4.2

Early warning Systems:

The Japan Meteorological Agency (JMA) announces the information for severe weather
preparedness such as weather warnings / advisories and bulletins to prevent or mitigate
disasters caused by heavy rains and storms. To support the activities of disaster management
related organizations and judgement of residents for ensuring their safety, JMA announces the“bulletins” a few days before such severe phenomena triggering disasters are expected tohappen, then announces advisories, warnings and emergency warnings in each stage of thedanger intensification.

Type

Category

Warning Class

Emergency Warning

Heavy rain (sediment disasters, inundation),
windstorms, snowstorms, heavy snow, highwave, storm surges

Issued if there is significant
likelihood that a serious disaster willoccur

Warning

Heavy rain (landslide, inundation), flood,windstorm, snowstorm, heavy snow, highwave, storm surge

Issued if there is chance of a serious
disasterAdvisory

Heavy rain, flood, gale and snow, heavy
snow, high wave, storm surge, thunderstorm,snow melting, dense fog, dry air, avalanches,
low temperature, frost, ice accretion, snow
accretion
 Real time risk map Weather bulletins on Heavy rains Typhoon Information
 Hazardous wind watch Bulletinson
exceptionallyheavy
downpours
 Probability of warnings
 Warning bulletin on long term hightemperature

Issued if there is potential for thedevelopment of serious adverse
conditions

Weather Bulletin

 Announced every 10 mins toshow where the risk of disasters isrising to supplement warnings
 Announced as required several
days before a warning to attract
attention and amid ongoingwarnings as necessary to explain
the progress and prediction of thephenomena and the points to beconsideredfordisastermanagement
 Announced as required to show
weather conditions not subject towarnings but likely to havesignificant impacts on society

Table 2: Category of Information for severe weather preparedness
Source: Cabinet Office, Govt. of Japan brochure on “Flood and Sediment Disasters”

25

Both real time risk maps and heavy rain warnings are issued collectively for information. Whena heavy rain warning or sediment disaster alert information are announced, it is important for
the residents to ensure their safety by checking when and where the risk is expected toincrease by the real time risk map and being fully aware of the danger approaching thecommunity.
Once a warning level phenomenon occurs, there is danger to loss of lives. A warning is generally
announced 3-6 hours ahead of theprobable time of occurrence of theserious disaster. Before 6 hours of
expected occurrence an advisory is issued
before announcement of warning. For
instance, if a severe disaster is expected
to occur on the dawn of the following
day, an advisory is issued with anindication of “High possibilityofbecoming a warning by dawn”. Bulletinson

exceptionally

heavy

rains

is

announced only after a heavy rain

Figure 9: MLIT River Monitoring System using Water
Gauge((source:http://whrmkamoto.com/assets/files/Early%

20Warning%20System%202013%20(PPT).pdf))

warning is issued, in order to inform that the rainfall is at levels rarely observed and may cause
sediment disasters, inundation and flood in small and medium rivers. The observation points
and municipalities where heavy rain was observed are specified clearly in this announcement. It
is possible to check where the disaster risk is actually rising by referring to “the real time risk
map (sediment disaster, inundation or flood).”
4.3

Early warning dissemination mechanism:

JMA issues “Warnings” and “Advisories” to municipalities when meteorological phenomenon(Surface water index, Soil water index, wind velocity, wave height, tide height) is expected toreach criteria in the municipalities. The criteria are set in co-ordination with DM organizationsof prefectures in light of relation between disaster occurrence and meteorological elements.

26

The criteria vary among municipalities and are reviewed accordingly in consideration ofchanges in disaster occurrences and DM progress.
A flood forecast is jointly announced by the MLIT (or Prefecture) and Japan Meteorological
Agency when there is a risk of river flooding due to heavy rain. The forecast contains criticalinformation needed for appropriate flood fighting activities to protect areas from damages
caused by flooding and for self-protection measures conducted by local residents. Among thelarge rivers designated by MLIT (or Prefecture) and JMA for flood forecasting, the designatedrivers, a forecast is announced for one(s) that has a risk of severe damage caused by flooding.
The JMA s local office sends forecast to specific areas. The announcement is specificallytargeting small/medium River that is not included in the designated rivers for flood forecasting.

Figure 10: Flowchart depicting Flood forecast dissemination from government to residents(source:http://whrmkamoto.com/assets/files/Early%20Warning%20System%202013%20(PPT).pdf)

A flood fighting alarm is issued by MLIT or Prefectures is sent to related organizations in orderto provide flood fighting corps with instructions such as stand-by, preparation and operation.

27

Figure 11: Flowchart for showing activities after issue of “Flood Fighting Alarm”(source:http://whrmkamoto.com/assets/files/Early%20Warning%20System%202013%20(PPT).pdf)

Administrative organizations for Flood Fighting are the Municipalities, Fire Department, DM
organizations etc. JMA Warning, Advisory, Meteorological info are provided via Prefecture and
NTT and available via J-ALERT and media (TV, Radio etc.) as well. DM Info Provision System and
JMA website provide necessary information.

Figure 12: Flowchart showing activities from “Flood Forecast” to“Flood Fighting” (Photo source:(source:http://whrmkamoto.com/assets/files/Early%20Warning%20System%2
02013%20(PPT).pdf)

28

As per Article 16, Clause 1 of Flood Fighting Act, Minister of the Ministry of Land, Infrastructure
and Transport issues a flood fighting alarm for rivers, lakes or coasts that were specified andrecognized as risks which may cause serious damage to the national economy due to a flood orhigh tides, and Prefectural Governor issues a flood fighting alarm for rivers, lakes or coasts thatare not included in the above rivers, lakes or coasts but were specified and recognized as risks,
which may cause significant damage due to a flood or high tides. In Clause 2, While issuing aflood fighting alarm in accordance with the previous clause 1, Minister of Land, Infrastructure
and Transport immediately informs related Prefectural Governor(s) of the contents of thealarm. As per Clause 3, while issuing a flood fighting alarm in accordance with Clause 1 orreceiving an alarm in accordance with the previous clause, Prefectural Governor immediately
informs related administrative organizations for flood fighting or other flood relatedorganizations of Flood the alarm received/issued in accordance with the prefecture’s floodfighting plan.
Since FY 2017, another feature of “Real-Time Flood Risk Map” was added to the Early warning
dissemination system. The Real time flood Risk Map includes information on the small andmedium rivers that are not target of Flood Forecast (Rivers for which water level information isannounced and others), that indicates the flood risk level of approximately 1km section each of
the river by five levels in different colors on the map. As forecasts up to 3 hours ahead are
updated every 10 minutes, it is possible to check which river is exposed to increased flood risk
at a glance when a flood warning/ advisory is announced.
When the highest risk level “extremely dangerous” (dark purple) is indicated out of the 5 risk
levels, it may become difficult to evacuate because the roads may already be covered in flood
water. Also, given the exceptionally rapid rise in the water level of small and medium rivers, it isimportant to check the latest situations of the river with a water gauge and surveillance cameraand promptly decide to commence evacuation when the “very dangerous” level (light purple)
implying a further rise of water level appears.

Figure 13: Japan Meteorological Agency (JMA) early warning dissemination mechanism

Source: JMA lecture ppt

29

30

4.4 Response to Early warning information:
When there is a flood watch water level, Flood advisory is issued. Once the flood fighting alarmis declared, flood fighting corps (Suibo-Dan) are mobilized. Local residents are advised to pay

(B)

(A)

(C)
Source A, B. C: River information system, Flood Forecasting and Early Warning, Images are from: Kanto Regional Development Bureau, Ministry of Land ,Infrastructure, Transport and Tourism (MLIT) And Foundation of River and Basin Integrated Communication(FRICS)

Figure 14: “Flood Fighting Alarm” announcement by MLIT/Prefecture31attention to river information provided by TV, radio and MLIT’s “River Disaster Prevention
Information”
inthemobileavailable

website

and

site.

Once

information on Floodwarning is issued, floodfighting corps conduct
preventativeinactivities

accordancewithdisaster situation. Local
residents are advised to
pay attention to theriver information andevacuation order issued
by respective top local
officers.

The

Disaster

Welfare Community Group

Figure 15: Warnings and corresponding action of municipality residents(source:http://whrmkamoto.com/assets/files/Early%20Warning%20System%202013%20(PPT).pdf)es/

Leader helps in Evacuation of residents once the alarm is issued.
Flood fighting activities are conducted in-order to protect human lives and assets and to

Figure 16: Sheet Covering Method

Figure 17: Improved Sand Bag Piling Method(source:http://whrmkamoto.com/assets/files/Early%20Warning%20System%202013%20(PPT).pdf)es/

32

Figure 18 : Hooping Methodminimize damages when a flood occurs, flood fighting groups and fire-fighters use a variety oftechnologies and conduct flood-fighting activities mainly near to the river for which flood
warning has been issued. Once the flood alarm is raised, flood fighters are in stand-by mode.
However, on issue of “Flood Caution Level” the flood fighters prepare equipment and materials
required for operation. The following activities as shown in diagrams below are carried out by
flood fighters during flood emergency declaration:
Evacuation order/ Evacuation recommendation is issued to
the residents when there is a danger to life of residents orinundation is expected. This evacuation activity goes onparallel with the Flood Fighting activities. The Elderly and
People with Special Ability are recommended to evacuate
first to the nearby “Evacuation Centre” in the locality
followed by residents of other age groups. Usually the school
Gymnasium, Community halls etc. are designated evacuationsites and there are sign boards outside each center for easy
identification of safe shelters. However, the residents havethe liberty to decide evacuation on their own will.

Figure 19: Evacuation Area
for residents

33

CHAPTER-5
INFRASTRUCTURES IN JAPAN-RESILIENT TO
HYDRO-MET HAZARDS

5.1 Hydro-Met Hazards and related phenomena:
Hydro-met hazards may result into disasters that may lead to huge amount of economic losses.
In recent times, Flooding is one of the most severe hazards that causes huge amount of
economic losses as well as life loss in different parts of the world. However, the nature ofoccurrence of flooding is different in different parts. Flooding may occur due to heavy rainfall
due to onset of monsoon or may be Tsunami induced. Heavy rainfall may also lead to sedimentdisasters in different parts depending on intensity of rainfall. Sometimes large intensity
earthquakes may also result into flooding. Sediment Disasters induced by earthquake may block
river channels and cause formation of artificial lakes in the upstream. And if the artificial lakebursts, it may result into flooding in downstream.
Risks of flooding may vary under different circumstances. Therefore, it is essential to keep inconsideration the various risks while planning infrastructure.

5.2 Infrastructure planning for sustainable recovery from disasters:
In Japan, there are stand by agreements between public sector and relevant private sector
organizations for mapping and need analysis as well as post disaster damage assessments.
Need Analysis is carried out by the Government through comprehensive survey andassessments. Therefore, planning of infrastructures are carried out in a detailed way by carryingout questionnaire surveys, conducting workshops and also aerial mapping and ground survey ofthe areas in which newer infrastructures are being planned. After the Great Hanshin Awaji
Earthquake of 1995, when infrastructures and amenities were severely damaged, it took a 10year span for complete recovery of the infrastructure, livelihood as well as life of citizens. Afterthe Great Hanshin Awaji Earthquake, the entire PDCA (Plan/Do/Check/Act) process for34reconstruction took a period of 10 years with two consecutive periods of comprehensive
assessment in the 5th & 10th year. Suggestions and opinions for recovery of criticalinfrastructures were initially collected from citizens. 1600 citizens helped the government to
identify critical areas for reconstruction. Housing reconstruction was identified by citizens as
the most critical element required to support recovery followed by Social ties, Community rebuilding, physical and mental health, preparedness, economic and financial situation, relation
to government. University students helped the government in conducting detailed survey andanalysis. The results of the social analysis were later used by the Government during
infrastructure planning in collaboration with private sector entities.

5.3 Convergence forums of private & public entities:
In DRR systems of Japan, there are convergence platforms of public and private entities which
provide support for disaster resilient constructions across Japan depending on their area of
operation. These private entities have successfully carried out resilient constructions in various
parts of Japan through application of appropriate technologies and is now trying to extend
support using the same technologies in other countries across the World for disaster mitigation
through the consortium called “Japan Bosai Platform”. Japan Bosai Platform is an associationof Japanese private companies with leading disaster mitigation solutions. The JBP has over 100
member companies and organizations enlisted as members. The JBP is founded with strong
support and collaboration with Japanese Government, academia and the private sector. The
public sector organizations are “Supporting members” of the JBP.
One of the instances of pre-emergency agreements with private companies is the detailed
Mapping of areas using Technology and surveys carried out by the Geospatial Information
Authority (GSI) under standby agreement with Association of Precise Survey and Applied
Technology (APA). 94 Member companies under the association carried out independent
surveys for rapid damage assessment of affected areas using remote sensing technology. Suchpre-agreements and involvement of private sector helps the government to take faster
decisions in case of emergencies and also to prepare well for emergency situations in advance.

35

5.4 Infrastructures for resilience to Hydro-met hazards:
Japan has many infrastructures which can be called as resilient infrastructures but if we discuss
about flood preventive measures, few of them are quite noteworthy. Hydro-met disasters canbe flood, sediment disasters, erosion, dam bursts due to excessive rainfall etc. So few solutions
observed in Japan, to such hazards are as detailed below. There may be more infrastructures
but the ones detailed below were observed and found to be significant during the study tour.
1. Flood gates: Flood gate models were observed during the visit to Tsunami & storm surge
disaster prevention station in Osaka. The Flood Gates are strong iron gates operated by the
Suibo-Dan on issue of flood/Tsunami warnings. The gates are closed using a lever and thesegates prevent the water from entering into the city. These gates are installed at the areas therivers meet the sea or at the edge of the city. The flood gates also prevent back flow of waterfrom Sea into the rivers. The actual flood gates were observed during the visit to Higashi-nadaward, Sewerage treatment plant.

Figure 21: Flood gate at Higashi-nada ward in Kobe

Figure 20: Flood gate models at
Tsunami Storm Surge Station in Osaka36

2. Sediment Disaster countermeasures:
Several techniques have been applied to different parts of Japan for sediment disasterprevention and slope protection. A few techniques help in prevention of slope failure and few
others help in early detection or warning for possible slope failures. Many mountains in Japanare prone to risk of landslides due to the fragile lithology as well as frequency of natural
hazards. In few areas slope protection measures have been applied post failure of slopes,
triggered by earthquake or heavy rains. Sediment disaster countermeasures in Japan include
Landslide prevention works (Drainage works, prevention works etc.), Steep slope collapse
prevention works (retaining wall construction, grating crib works etc.), Soil Erosion Control
Project (Sabo dams, Stream protection works etc.). Based on the designation of a sedimentdisaster prone area- preparing a sediment disaster hazard map, preparing and transmitting thesediment disaster warning information, preparing information systems etc. are mandatory bylaw. Controlling land-use and land development in sediment disaster designated areas is doneby Ministry of land Infrastructure Transport & Tourism department.

Figure 22 : (A) Model showing Sediment Disaster Prevention using Anchor work in Nigawa
Landslide Museum (B) Sediment disaster countermeasures in Tamba city

37

Figure 23: Model showing (A) Sediment Disaster Early warning system using “Inclinometer” in Nigawa
Landslide Museum (B) Sediment disaster prevention using “Drainage works”

3. Sabo dams:
Sabo dams built in the upstream areas of mountain streams accumulate sediment and suppress
production and flow of sediment. During our field visit to Tamba city, observed the Sabo works
in the mountains. Those built at the exits of valleys work as a direct barrier to debris flow which
has occurred. A Sabo dam with slits is particularly effective in capturing debris flow because it
has a larger capacity of sand pool under normal conditions. In case that there is a fear of flowdown of driftwood, a slit Sabo dam is built as a preventive measure (fig B).

(B)(A)
4. DamFloodmeasures:
Figure24:protection(A) Sabo works
for sediment erosion control in Tamba city (B) Slit Sabo Dam for
capturing Drift wood

38

Dams are constructed in the rivers to control the amount of water flow from the mountains.
Dams are structures that can help in flood mitigation if operated in a sustainable way. The
Kanayama Dam in Hokkaido is one of the examples of successful flood mitigation and a multipurpose dam. The dam facility is used to generate power in downstream, supply water toneighboring cities in downstream and also for the purpose of irrigation. The dam authorities
received award for flood management in the downstream in the year 2016. The mode ofoperation of the dam facility varies with the amount of water flow in dam. During heavy
rainfall, when the water rises in the dam, the dam authorities inform the private water supply
companies in the downstream that water will be released and they should supply the water toneighboring cities. The excess water is also used for irrigation purposes.

(A)

(B)

Figure 25: (A) Kanayama Dam in Minamifurano city, Hokkaido (B) Dam Power Generation station

5. River Intake facilities (Underground River Water Regulating Reservoir):Kanda River Underground Regulating Reservoir is a facility for flood mitigation. The River intake
facility uses the drop shaft method of dropping excess flood water into the underground tunnel
measuring 4.5 Km in length and having an inner cross sectional diameter of 12.5 m. The flood
water is stored in the tunnel during flooding period and released back into the river when theflood recedes. The underground Tunnel had reached its maximum storage capacity during oneof the flooding seasons and therefore the government plans to extend the length of the tunnel.

39

There are models of the water intake facility in the control station. The tunnel is located at 43m
below the ground. This facility is a good example of urban flood water management.

Figure 26: Model showing Kanda River Underground Regulating
Reservoir Tunnel

6. Flood Proof Embankments:
Construction of scientifically designed flood proof embankments can be a sustainable way tomitigate flood. Such scientific embankments were observed in Hokkaido. The Hokkaido
Development Bureau under the Ministry of land, Infrastructure, tourism and Transport is
responsible for constructing such embankments. Sorachi river restoration work in
Minamifurano, Hokkaido is a good example of construction of scientifically designed riverembankments for flood mitigation.

(A)

(B)

Figure 27: (A) Road cum Embankment in Sorachi river, Hokkaido (B) Embankment on Left bank ofRiver with river channel improvement measures in river bed, Minamifurano, Hokkaido

40

7. Channel improvement & River Restoration works:
Channel improvement works carried out in Tamba city after heavy rains led to flash flooding in
the river causing massive damage to the road near the Sakiyama Elementary School. Hugeamount of sediments from the mountains flowed into the river, widening the river channel anddevastating the entire area.

(A)

(B)

(C)

(D

Figure 28: Channel Improvement measures in river of Tamba City (A) During Aug,2014 disasterthe River damages caused by flood (photo source: SEEDS, ASIA) (B) Same site of River after
restoration (pic-2018) (C) Restoration work (Example of Build Back Better initiative) throughchannel improvement, levee reconstruction etc.

41

Figure 29: Diagram showing (A) System of “Comprehensive Flood Control Measures” and (B) Pictorial
representation of Flood Control Measures(source: MLIT website http://www.mlit.go.jp)

42

5.5 Approach of communities towards resilient infrastructures:

The local residents in the community play a very important role in supporting the government
in maintenance of such infrastructures. Because any public infrastructure created by thegovernment cannot sustain if it is not accepted or maintained by citizens. The citizens involve incity planning of the infrastructures during disaster recovery and therefore take ownership ofsuch assets. The residents also understand the need for such sustainable public infrastructures,
since they face the wrath of severe disasters very frequently. Although the local residents don’t
engage financially in maintenance but they monitor such assets with the help of themunicipality and city government. The Municipality, the city government or the National
government has a role in financial maintenance of such public assets. In Japan,” thegovernment also has a robust monitoring system with over 4000-5000 monitoring cameras
installed at public places” (source: Hokkaido development Bureau). These closed circuit cameras
not only help in regular monitoring activities but also aid in disaster monitoring. Even manmade disasters like road accidents are monitored through closed circuit cameras.
The resilient infrastructures cannot sustain unless maintained jointly by citizens andgovernment. Assets will be subject to wear and tear, but having a robust back-up plan formaintenance and a strong support system for sustenance and a preparedness plan for
unforeseen circumstances that may arise due to failures are indeed the strength ofinfrastructures created by Japanese government. However, the system for generation of
economy for maintenance of such infrastructures was not very clearly understood during thestudy.

43

CHAPTER-6
LIVELIHOOD SUPPORT FOR COMMUNITY

6.1 Livelihood opportunities in peacetime:
The water resources in Japan have been utilized as
an opportunity by promoting tourism/recreational
facilities around the resources and sustainable useofavailable

infrastructures

water
in

sources.

Japan

The

provideresilientsustainable

livelihood opportunities for the community. For
instance, the Rain water storage parks, multipurpose retarding basins, usage of seweragetreated

water

for

artificial

water

falls/fountains/toilets; River improvement andbeautification,

creationofmuseumsbypreservation of disaster occurrence sites areopportunities

for

local

residents

amidstclimatic/geographic adversities posed by natural

Figure: 30 “Phosphorous bags” sold in
local markets generated by Higashinada
Sewerage Treatment plant as a
byproduct of treatment process

disasters. These infrastructures provide opportunities for people to earn from recreation sites,
tourism and small local businesses. Since in urban areas /municipalities people are mainly
dependent on salary/local businesses therefore such infrastructures provide ample
opportunities for a better and sustainable livelihood. The sewerage treatment plant in Japan,
generates “phosphorous” from sewer sludge treatment which is a very useful fertilizer for
agricultural produce. The “Phosphorous” bags are sold in the local markets to enhance
agriculture production. Raw materials like “Ash” generated from drying sludge in the treatment
process are also used for making “pavement blocks”. Thus sustainable use of each and every
raw material generated out of waste treatment, can be termed as an opportunity for livelihood

44

improvement. It also provides opportunities to the local industries to be self-sustainable as raw
materials are easily available in the local market.

6.2 Pre-disaster Livelihood:
People of Japan residing in remote cities/
villages depend mostly on agricultural produce
and abundantly produce local beans, rice,coffee, tea, vegetables and fruits. They set up
small shops or cafes that serve local food toresidents as well as visitors. They mostly havefewer infrastructures nearby and have to moveto nearby bigger cities or towns for selling theirlocal produce or other livelihood opportunities.
Most people from the villages specially theyounger generations work in nearby big cities
and earn their livelihood. However, the retired/elderly people prefer to work in the local

Figure 31: Nigawa landslide Museum park is
a recreation site for public during floweringseason. People plant flowers in memory of
their dear ones who lost their lives inmassive landslide during GHAE of 1995.

agriculture farms, small co-operative shops orcommunity institutions as a service towards thesociety.
However, in bigger cities of Japan, the societies are much urbanized and have lesser
opportunities for agriculture and farming due to space constraints and mostly depend on jobs
or local businesses for livelihood. These people are also equally vulnerable to disaster risks
because of lesser social ties and lack of mutual support.
6.3 Business Continuity Planning at Community level
Local Businesses in Japan usually have general equipment for disaster support and few businessestablishment conduct or participate in regular community drills. Evacuation routes are marked
in most of the business places. But business continuity in terms of financial planning/ disaster45

insurance is perhaps still evolving. However, BCP for the critical infrastructures is essential andas per the Cabinet Office “White paper-2016”, as lessons learnt from the Kanto-Tohoku
Torrential rains of September 2015, the Government of Japan plans to promote the“formulation of evacuation implementation plans and BCPs by hospitals etc.”
6.4 Post-disaster Livelihood support
In rural areas of Japan, during disasters, if there is a disruption in road communication, andpeople are not able to fetch food from shops /market places of nearby cities, these small
communities rely on the local produce and promote self-help and mutual-help to recover fromthe shock of disasters. The people support each other in case of livelihood disruption and help
each other to recover.
However, in urban areas the businesses /work-places are expected to have their “Business
continuity plans” for smooth running of businesses post disasters. In case of major disasters,
the government extends all support till few days of return of normal situation.

46

CHAPTER-7
CBDRR IN ASSAM, NE INDIA
Flood is the most frequent disaster that happens in Assam, almost perennially and people havestarted living with flood as a part of life. Community Based Disaster Risk Reduction (CBDRR) is
still an evolving concept in Assam. Many efforts have been made towards sustainablecommunity development involving DRR. However due to lack of robust infrastructures, proper
strategies and lack of planning, efforts fail tobuild resilience. In Assam, the disasterState Executive Committee
SEC

management system involves the following
administrative layers- State, District, Revenue
Circle, Villages. Village is the smallest unit ofState Disaster Management
Authority(ASDMA)

the DM institutional structure. Creation of aDisaster Management institutional structure
up to the District level is mandatory as per DM

District Disaster Management
Authority(DDMA)

Act (2005). However, there is no strict law
aboutcreationofVillageDM

institutions/structures. The Act mentions

Circle Disaster Management
Committee (CDMC)

about creation of “Local Authority” in general.
In

Assam,

CircleDisasterManagement

Committees (CDMC) were created in 2016

Village Land Management &Conservation Committee (VLMCC)

along with Village Land Management andFigure 32: DM Institutional structure in Assam

Conservation Committees (VLMCC)s. There are 154(approx.) CDMC and 16000 (approx.) VLMCC
in Assam. VLMCC are responsible for CBDRM. These committees help CDMC in disaster
response. However, the government is yet to fix responsibilities of these committees in
pre/post disaster time. These VLMCC committees assist the CDMC in village level disaster47

management. With the increasing population, management of disasters has become a tedioustask. And therefore more decentralized institutional mechanisms need to be created to support
disaster mitigation. It has become important to fix responsibilities and assign roles at the lowest
administrative divisions to act during disasters. In Assam, the responsibility of public
infrastructure creation lies with the various departments like, Water Resources, Public Works
Departments (Roads), Public Works Departments (Building & NH) etc. Therefore, the concept ofresilient infrastructure has to be adopted by the departments if DRR has to be integrated into
city planning. The enactment of stringent laws on adopting DRR measures for infrastructure
construction is need of the hour. Build Back Better initiatives should be conceptualized andaccordingly infrastructures have to be planned. Moreover, institutional strengthening ofcommunity based DRR organizations in Assam is essential for better planning and citizen
awareness.

48

CHAPTER-8
CONCLUSION & SUGGESTIONS

5.1 Conclusion:

A. Community Based Disaster Risk Management is still an evolving concept and needs tobe strengthened and institutionalized into a system. The Community groups exist but
there is still lack of clarity regarding total strength of members, mode of constitution
etc.
B. More focus should be laid on preparation of Community Disaster Prevention plans
C. The Community Groups mostly include Elderly citizens and sometimes High school
students as volunteers. Middle Age group of citizens should be encouraged to joincommunity groups and participate in Drills
D. The Technical support groups for Flood Fighting like Suibo-Dan should be encouraged
and more members should be volunteering in such flood fighting activities. It can be
regarded as a “Good practice” for community based flood mitigation
E. Disaster adversities can be turned into opportunities for livelihood generation throughscientific infrastructure creation
F. Water resources can be used sustainably for cities and towns through proper planningof infrastructures thereby reducing the probability of flood occurrence

5.2 Suggestions:
A. Infrastructures like “Sabo dam” are good examples for sediment erosion control andperhaps can be replicated in North East India with a proper scientific feasibility study of
the region. These kind of infrastructures perhaps has the potential to solve the problem

49

of excessive siltation in northern Assam districts like Dhemaji, Lakhimpur etc. and also
prevent river widening due to excessive siltation
B. Early warning dissemination mechanisms need to be more strengthened in Assam withintegration of alarm systems, water level gauges at different locations, Installation of
Public Announcement systems (like mics etc.), closed circuit camera installation tomonitor upper reaches of river etc.
C. The Dam monitoring and operation mechanism in Assam/North-East India perhaps canbe strengthened with proper estimation of water levels and release of excess water into
down streams. Establishing water supply companies or other related companies to
distribute excess water to the neighborhood cities or towns for drinking or irrigation
purpose perhaps can be a solution for flood mitigation
D. Strengthening the community groups with equipment support, training throughfrequent drills as well as fixing responsibilities can help in institutionalizing CBDRM at
community level
E. Livelihood opportunities can be created for the communities through sustainable use ofwater resources. Tourism or Urban Development (City Beautification) can be a sectors
for livelihood generation

50

LIST OF FIGURES & TABLESFIGURES
Figure No.
1
2
3

4
5
6

7
8
9
10

11
12

Description
Flowchart showing Disaster Management structure in Japan
Flowchart showing Community Based Disaster Management structure inJapan
Models showing activities on Flood Protection/ Prevention by Suibo-Dan(Flood Fighters) using sand bags, bamboo and local materials (photosource: Tsunami & Storm Surge Disaster Prevention center, Osaka)
Diagram showing structure of “Disaster Safe Welfare Community Group”
in JapanCommunity Disaster Management Plan of Kobe City(A)Bokomi Members engaged in setting up Community Kitchen (B)Community Emergency Drinking water facility (C) Display of Emergency
Food Packets during Drills (D) Fire Fighting Drills by Shobo Dan and Fire
Bureau officials (Photo source: HAT Kobe Drill, October,2018)
Flowchart showing Disaster Response by “Disaster Safe Welfare
Community Group” in Japan
Automated Meteorological Data Acquisition System (AMeDAS) (photosource: JMA, Kobe)
MLIT River Monitoring System using Water Gauge (photo source: MLIT
website)Flowchart depicting Flood forecast dissemination from government toresidents(source:www.mlit.go.jp)
Flowchart for showing activities after issue of “Flood Fighting Alarm”(source:www.mlit.go.jp)
Flowchart showing activities from “Flood Forecast” to “Flood Fighting”

Page No.
12
14
15

16
19
21

22
23
25
26

27
27

(Photo source:www.mlit.go.jp)

1314Japan Meteorological Agency (JMA) early warning dissemination
mechanism (source: JMA Kobe lecture ppt)
“Flood Fighting Alarm” announcement by MLIT/Prefecture

29
30(source:www.mlit.go.jp)

15

Warnings and corresponding action of municipalities/residents

31(source:www.mlit.go.jp)

16
17
18
19
20
21
22

Sheet Covering Method(Photo source:www.mlit.go.jp)
Improved Sand Bag Piling Method(Photo source:www.mlit.go.jp)
Hooping Method(Photo source:www.mlit.go.jp)
Evacuation Area for residents
Flood gate models at Tsunami Storm Surge Station in Osaka
Flood gate at Higashi-nada ward in Kobe(A) Model showing Sediment Disaster Prevention using Anchor work in
Nigawa Landslide Museum (B) Sediment disaster countermeasures in

31
31
32
32
35
35
36

51

23

24
25
26
27

28

29

30
31

32
33

Tamba city
Model showing (A) Sediment Disaster Early warning system using“Inclinometer” in Nigawa Landslide Museum (B) Sediment disasterprevention using “Drainage works”(A) Sabo works for sediment erosion control in Tamba city (B) Slit Sabo
Dam for capturing Drift wood(A) Kanayama Dam in Minamifurano city, Hokkaido (B) Dam Power
Generation station
Model showing Kanda River Underground Regulating Reservoir Tunnel(A) Road cum Embankment in Sorachi river, Hokkaido (B) Embankment
on Left bank of River with river channel improvement measures in riverbed, Minamifurano, Hokkaido
Channel Improvement measures in river of Tamba City (A) DuringAug,2014 disaster the River damages caused by flood (photo source:
SEEDS, ASIA) (B) Same site of River after restoration (pic-2018) (C)Restoration work (Example of Build Back Better initiative) throughchannel improvement, levee reconstruction etc.
Diagram showing (A) System of “Comprehensive Flood Control
Measures” and (B) Pictorial representation of Flood Control Measures(source: MLIT website http://www.mlit.go.jp)“Phosphorous bags” sold in local markets generated by Higashinada
Sewerage Treatment plant as a byproduct of treatment process
Nigawa landslide Museum park is a recreation site for public during
flowering season. People plant flowers in memory of their dear ones wholost their lives in massive landslide during GHAE of 1995.
DM Institutional structure in Assam(A.) Automated External Defibrillator (AED) installed at public places andoffices (B.) River Alarm systems for early warning (light & siren) (C.)
Designer Manhole covers of Sewerage Bureau, Kobe (D.) Evacuation
height information displayed in a signboard near the river bank in Chitoseriver, (Hokkaido) (E.) Life Buoy installed near the river for Fishermen at
Chitose river(Hokkaido)(F.) Local agricultural produce red beans of
Hokkaido local market (G.)Drift wood barriers afloat in dam site (H.)
Sediment control measures in Tamba city

37

37
38
39
39

40

41

43
44

46
53-54

TABLES
Table No.
1
2

Description
Disaster Management Planning System in Japan
Category of Information for severe weather preparedness

Page No.
17-18
24

52

REFERENCES
1. Douglas, Heather. (2010). Types of Community. 539-544. 10.1007/978-0-387-93996-4_542.
2. https://research-methodology.net/research-methods/data-collection/
3. http://dspace.nwu.ac.za/bitstream/handle/10394/12269/Vosloo_JJ_Chapter_6.pdf
4. http://whrm-kamoto.com/assets/files/Early%20Warning%20System%202013%20(PPT).pdf
5. Community Based Disaster Risk Reduction, Editor-Rajib Shaw, (Community Environment and Disaster
Risk Management Volume 10, Emerald Publications. Pg. 22-25
6. http://www.mlit.go.jp/river/basic_info/english/pdf/conf_04-0.pdf
7. http://www.mlit.go.jp/river/basic_info/english/pdf/conf_02-7.pdf
8. http://publications.apec.org/Publications/2013/09/Guidebook-on-SME-Business-Continuity-Planning
9. http://www.mlit.go.jp/river/basic_info/english/pdf/riversinjapan.pdf
10. http://www.mlit.go.jp/river/basic_info/english/pdf/conf_05.pdf
11. http://www.jma.go.jp
12. Lecture notes on “Issues of disaster risk reduction” 2018 Autumn Semester Intensive lecture of Int’lDisaster Management Program me at Kobe University by Prof Yuka Kaneko, law and Development
Program, GSICS, Professor, Research Center for Urban safety & Security, Kobe university
13. Lecture notes on “Disaster Relief and Early Recovery in Japan” 2018 Autumn Semester Intensive
lecture of Int’l Disaster Management Program me at Kobe University by Prof Yuka Kaneko, law andDevelopment Program, GSICS, Professor, Research Center for Urban safety & Security, Kobe university
14. Lecture notes on “Governance issue of Disaster” 2018 Autumn Semester Intensive lecture of Int’lDisaster Management Program me at Kobe University by guest lecturer Mr. Nobuhito Ohtsu, Ph.D.
(Senior Researcher) National research Institute for Fire Disaster, Ministry of Internal Affairs andCommunication, Government of Japan
15. Lecture notes on “Lessons Learned from the Great Hanshin Awaji Earthquake” and “Kobe City Disaster
Management System” by Prof. Yuichi Honjo, Research Professor, University of Hyogo

53

PHOTOGRAPHS(Few photographs captured during the research in Japan)

A.

B.

C.

D.

E.

F.

54

G.

H.

Figure 33: (A.) Automated External Defibrillator (AED) installed at public places andoffices (B.) River Alarm systems for early warning (light & siren) (C.) Designer
Manhole covers of Sewerage Bureau, Kobe (D.) Evacuation height information
displayed in a signboard near the river bank in Chitose river, (Hokkaido) (E.) Life
Buoy installed near the river for Fishermen at Chitose river(Hokkaido)(F.) Local
agricultural produce red beans of Hokkaido local market (G.)Drift wood barriers
afloat in dam site (H.) Sediment control measures in Tamba city