A SUCCESSFUL
CASE OFDISASTERMANAGEMENT
IN JAPAN
Presented by: Ross Sovann
Disaster Management and Policy Advisor to the
National Committee for Disaster Management,
Royal Government of Cambodia
Visiting Researcher of ADRC, January-June 2005

Outline of the Presentation
1. Overview of Disaster Management in
Cambodia;
2. Overview of Disaster Management in Japan;
3. Leaning Outputs;
4. Recommendation and Action Plan
5. Observation on ADRC and VR Program1

Overview
Overview ofof disasterdisastermanagement
management inin
Cambodia
Cambodia•Food and Drought areprimary natural
disasters• Hamper livelihoodand living condition•Rationally, they arecontinue to occur andincrease in frequency
and intensity

Response is only ad hoc with foodand commodity assistances
Required More comprehensive
Disaster Emergency
Management:
Areas require assistance:
1. Legal systems and Policy on
Disaster Management;
2. Comprehensive Disaster
Management Strategy;
3. Disaster Preparedness andResponse;
4. Disaster Management
Information System; and5. Public Awareness and Early
Warning.

2Overview
Overview ofof disasterdisastermanagement
management inin JapanJapan• Typhoons(July – October)• Heavy Monsoon Rain
(May – July)• Floods• Landslides• Earthquakes• Tsunamis• Volcanic Eruptions• Snow Avalanches

Japan
Japan has
has widewide variety
variety ofofnaturalnatural disasters
disasters3

Overview
Overview ofofdisasterdisaster management
management
inin JapanJapan
Because of
improvement of disastercounter measures:•Number of disaster
reduced;•Damaged minimized;•Number of death tolls
declined

Key areas of Learning andResearch Outputs
1. Disaster Management Systems;
2. Disaster Management Plan and Budget;
3. Disaster Management Strategies; and4. Disaster Countermeasures;41. DISASTER MANAGEMENTSYSTEMS IN JAPAN
1.1.

Legal System of Disaster Management

The Disaster Countermeasures Basic Act: thefoundation for disaster management in Japan.
The main contents of the act are:
1. Definition of jurisdictions and responsibilities fordisaster management,
2. Disaster management system,
3. Disaster management plan,
4. Disaster preparedness,
5. Disaster emergency response,
6. Disaster recovery,
7. Financial measure, and
8. State of emergency.

Special Characteristic of the
Basic Act
Central Disaster Prevention Council chaired by the Prime Minister:
National Coordinating Body with all relevant Ministers &Japanese Red Cross, Public Broadcasting, Semi-Public Sectors
Annual Government Official Report on Disaster Countermeasures:
The Cabinet must officially report the disastercountermeasures to the National Diet
Formulation of “National Basic Disaster Management Plan for
Disaster Prevention”:
The Disaster Management Operation Plan (Sectoral)
The Local Disaster Management Plan
Investment for Disaster Prevention
Flood Control & Land Conservation Works Forest Conservation
Meteorological Observation
Mt. Fuji Rader Site, Meteo-Sats
Emergency Telecommunication Systems
Emphasis on Strong Link of Information Flow among Various
Sectors
Stronger Coordination among various government sectors &Red Cross Involvement of Semi-Public Sectors

5

1. DISASTER MANAGEMENTSYSTEMS IN JAPAN1.2. Organizational Systems of Disaster Management
National
Government(Prime Minister iselected by the
National Diet)

47 Prefecturale
Governments

3,018
Municipalities(Governor is elected by theresidents)

12 major
Major Cities(Mayor is elected by theresidents)

Organization of theGovernment of Japan
CabinetOfficeFinancial Agency

CabinetDefense Agency
CabinetSecretariat

Ministry of Public Management, Home
Affairs, Posts and Telecommunications

National Public
Safety Commission

Ministry of Justice
Ministry of Foreign Affairs

Minister of State for Disaster
Management

Ministry of Finance

Minister of State for Okinawa andNorthern Territories Affairs, Ministry ofState for Science and Technology

Ministry of Education, Culture,
Sports, Science and Technology

Minister of State for Financial
Affairs

Ministry of Health. Labourand Welfare

Minister of State for Administrative
Reform and Regulatory Policy

Ministry of Agriculture,
Forestry and Fisheries

Minister of State for Gender
Equality

Ministry of Economy, Tradeand Industry
Ministry of Land,
Infrastructure and Transport

Director-Generalfor Disaster
Management

Deputy Director-Generalfor Disaster Management

Director for Disaster
Management
Director for Disaster
Preparedness
Director for Disaster
Response Operations
Officer for Emergency
Telecommunications
Director for Post-Disaster
Recovery and Reconstruction

The Prime Minister is the Head of
the Cabinet and is the Chairman of
the Central Disaster Management
Council

Director for Earthquake andVolcanic Disaster
Management

Ministry of Environment

6

A. The Central Disaster Management
Council of Japan
Prime Minister, Minister of State for Disaster Management
Inquiry

ReportOffer Opinion

Central Disaster Management Council
Chairman: Prime Minister
Members: Minister of State for Disaster Management and all Cabinet Ministers (17 persons)Chief of Designated Public Corporations (4 persons)
Governor of the Bank of Japan
President of Japan Red Cross Society
President of Japan Broadcasting Corporation
President of Nippon Telegraph and Telephone Corporation
People of experience or academic standing

Organization for TechnicalResearch

Secretary Organization
Chairman: Parliamentary Secretary of the Cabinet Office
Advisor: Deputy Chief Cabinet Secretary for Crisis
Management,
Vice-Chairman: Director-General for Disaster Management
Deputy Manager of Fire and Disaster Management Agency
Secretary: Chief of bureau of each ministry and agency

The Central Disaster Management
Council of JapanAt the time of large-scale disaster, the Government
establish a Headquarters for Major Disaster
Management (headed by the Minister of State forDisaster Management)
or Headquarter for Urgent Disaster Management(headed by the Prime Minister) to lead the emergency
response measures.

7B. The Local Disaster Management
Council of Japan
GovernorVice Governor

Policy Planning &Administration Department

Disaster Management
BureauPolicy Planning &Coordination
Chief of Emergency
Management
Special Advisor to the Governor
for Civil Participation,
Cooperation and for Gender

Lifestyle & Social
Service Department
Industry & Environment
Department
Agriculture, Forestry &Fishery Department
Public works &Development Department

Treasurer

Treasury Department

Superintendent of PublicEnterprise

Public Enterprise
Agencies

Superintendent ofPrefectural Hospitals

Prefectural Hospital
Agencies

Board of
Education
Public Safety
Commission

Police Headquarters

Public Works Bureau

All Local Government has their
Mayors (Administrative Heads) electedby citizens and the legislative bodyelected by citizen

C. sectoral organizational System

PASCO Private Company plays role in GISData related to disaster management

Emergency Room in Kobe disaster Hospital

Under the Disaster Countermeasures Basic Act, public institutions aswell as legal bodies involved in public business designated by thePrime Minister (such as the Bank of Japan, and corporations runningpublic operations such as electricity and transport) are designated toparticipate in the Central Disaster Management Council .
They are obligate to work in disaster management by working out withformulate plan and responsibility of resources for the implementations.

81.3. Disaster Management Information
Communication System and Network
In order to carry out disaster preparation measures,
emergency disaster measures and restoration measuressmoothly, collecting, processing, analyzing andtransmitting information of the disaster quickly andaccurately is a prerequisite.

Cabinet Office’s disaster response network
Central Disaster Management Radio Communication Network
Fire, Disaster Management Radio Communication Network
Prefectural Government Disaster Management Radio Communication Network

Designated Administrative
OrgansPrime Minister’s Official
Residence
Cabinet Office
Ministry of Land,
Infrastructure andTransport
Fire and Disaster
Management Agency

Municipal Disaster Management Radio Communication Network
Other communication Networks(Communication network for
Flood Control, Road
Construction
Construction Work Office(Emergency Communication network)

Prefectures

Communication
Network for Police

National Police Agency
Defense Agency

Maritime Safeguard
AgencyCommunication
Network for Defense
Communication
Network for Maritime
SafetyCommunication
Network for
Meteorology(Multicasting)
Municipalities
Fire Division
Headquarters, Fire Stations

Prefecture Police
Headquarters

Police Stations

Main Self Defense Force
Corps

Hospitals

Maritime Safety Officers(Maritime Safety Station)

Schools

Meteorological Agency

Meteorological Offices(Weather Stations andObservation)

Other DesignatedAdministrative Organs

Broadcasting Firms

Japan Red Cross Society
and Other DesignatedPublic Corporation

Other Disaster
Management Related
Agencies and Authorities

Resident(Broadcasting)Local Voluntary Disaster
Management Organizations

Other Disaster Management
Related Agencies andAuthorities

9Disaster Management Plan and Budeget
Disaster Management Plan
National level
Basic Disaster Management Plan

Central Disaster Management Council

Disaster Management
Operation Plan

Designated Administrative Organs
Designated Public Corporations

Local level (Prefecture and Municipal level)
Disaster Management Local Plan

Prefecture Disaster Management Council
Municipal Disaster Management Council

Disaster Budget
The budgetary appropriation for disaster management isclassified into four categories:- Disaster Management Research and Development;- Disaster Preparedness;- National Land Conservation, and- Disaster Recovery and Reconstruction(100 million yen)
Fiscal Year (FY)

2003

2004

2005

Research and Development (Disaster Risk and Coping
Strategies)

424

327

303

Disaster Preparedness

7,909

9,336

7,527

National Land Conservation

15,867 15,241 14,967

Disaster Recovery and Reconstruction

2,517

Total

26,717 27,320 25,252
Note: FY2005:

2,416

2,455

3.07% of Total National Budget (821,829)

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3. Disaster Management Strategies-Regional Planning-Social Infrastructure Works-Agriculture & Forestry-Health & Sanitation-Environment

Civil Protection &ReliefNational
Coordinating Bodies

Scientific &Engineering
Research

Local Gov ’ts, Communities, Mass Media, NGOs

PeopleDisaster Management Strategies• Disaster Risk Research and Coping Strategy
Development• Disaster Emergency Management
1. Disaster Preparedness
2. Disaster Emergency Response
3. Disaster Recovery and Rehabilitation• Disaster Risk Management and Reduction11

1. Disaster Risk Research and Coping Strategy
Development① Investigation of
occurrence mechanism ofAbnormal Natural
Phenomena

Investigation of occurrence mechanism, anddevelopment of technology for forecasting theoccurrence of large- scale earthquakes, largescale volcano eruptions, abnormal localized
torrential rain, abnormal water shortage etc.

② Disaster Quick Response Systems for minimizing damage by quick
System (disaster
response when a disaster or an accident occurs.
management IT, emergency
medicine and life saving
systems etc.)③ Countermeasures to
Reduce Damage due to
Massive Disaster in Highly
Populated Urban Areas

Systems for supporting technologies to reduce
damage (including measures for fire fighting),smooth and quick recovery and reconstruction
countermeasures, self-help and mutual help inhighly populated urban zones in case of theoccurrence of abnormal natural phenomena.

Disaster Risk Research cont’d…
④ Systems for Protecting
Pivotal Functions andCultural Assets

Systems for disaster-proofing headquarter
functions related to social and economic
activities and protecting public property such as
cultural assets, scientific technologies andresearch installations etc.

⑤ Ultra-advanced Disaster
Management Support
SystemSystems to support the next stage of disastermanagement such as high-level observation andcommunication systems utilizing space and loworbit satellites, mobile equipment, transportation
devices with high mobility, robots capable ofrescue activities in disaster.

⑥ Advanced Road Traffic Systems to support the transportation of people
System (Intelligent
and physical distribution at the time of disaster asTransportation System, ITS) well as during the period of reconstruction, andalso systems that reduce traffic accidents.

12Disaster Risk Research cont’d…

⑦ Traffic Safety
Countermeasures for Land,
Sea and Air

Countermeasures that contribute to safety inresponse to changes and/or increases in ground,sea and aviation traffic demand and/or
characteristics.

⑧ Countermeasures for a
Deterioration of
Infrastructure

Countermeasures for infrastructure facilities toprevent accidents and disasters caused bydeterioration and to increase its durability.

⑨ Safety Measures for
Hazardous Materials,
Crimes etc.

Countermeasures for solving problems due to thenegative impact at the time of Industrialization,
ensuring safety against hazardous materials or
systems due to the development of newtechnologies and preventing crimes in public areas.

2. Disaster Emergency Management
A. Disaster Preparedness
Improvement of Disaster Prevention Facilities:•Observation equipment such as meteorological satellites,
weather observation radar and seismometers;•Materials and machinery required for emergency responsesuch as firefighting equipment, water tanks and power
generators;•Systems for liaising and communicating emergency

information such as telecommunications or broadcasting
facilities;•Transportation vehicles such as helicopters, ships andautomobiles;•Facilities for evacuation and headquarters for disastercountermeasures;13

A. Disaster Preparedness

B. Disaster Emergency Response• Immediately collect and analyze information on thestate and scale of the damage;• exchange the information with related persons andorganizations;• Establish the system for executing disasteremergency response;• Establishing a headquarters for emergency response
Emergency Coordination Meetings (As a nation, thedirector general of each ministry and agency
gather at the Prime Minister's official residence
immediately after a disaster occurs);• Provided search and rescue, evacuation, food andcommodities assistances;14

B. Disaster Emergency Response

B. Disaster Emergency Response
Disaster Relief isto provide
support bothspirit andmaterials to theaffected people
However,
Provision ofDisaster Relief it
does not mean
the Disaster has
been totally
relief!
(Satoru Nishikawa,Director of
Preparedness,
Cabinet Office ofJapan)

15

Steps in Disaster Response of Cabinet Office,
Government of Japan (The Niigata Earthquake)
Response to Situations and Demands at theAffected Sites•Emergency calls to the officials in charge ofdisaster response who rushed to the Crisis
Management Centre within Prime Minister’s
Office.

Quake

30 minImmediate press
briefing after disaster•Setting-up an emergency coordination teamconsisting of senior government officials,
headed by the Minister of State for Disaster
Management.
•Immediate information analysis

Emergency Response

3
hours

24
hours

•Dispatch of an emergency survey team tothe affected areas•Mobilization of Search and Rescue Teams¾ Police , Firefighting, Self-Defense Forces•Full-scale search & rescue activities•Nationwide emergency assistance¾ Emergency medical evacuation¾ Food & Water¾ Blankets & Clothes¾ Prevention of secondary disasters suchas landslides¾ Temporary repairs of infrastructure &lifeline16

B. Disaster Emergency Response
Organization of Disaster Emergency Response of the Cabinet OfficeCabinet Secretariat

Cabinet Office(resident of Prime Minister)

Large-scale Earthquake

Information Reception•24-hr system•Simultaneous communication to ministries, agencies and emergency
organizations, Emergency concentration

Collection and Centralization of Damage Information
Comprehensive damage information...
•Automated damage estimate (within 30 minutes)•Visual information from aircraft•First-stage information from public organization•Dispatch of Information Collection Team

Cabinet Information Collection Center

Prime Minister
Communicate Information to Prime Minister’s Official
Residence and Related Organization•Prime Minister’s Official Residence•Cabinet Information Collection Center•Related ministries and agencies

Determine the level of damage

Emergency Assembly Team Conference

Liaison Conference of Ministries and Agencies
Concerned with Disaster Management

Establish Disaster Countermeasure Headquarter
Decide policies to be implemented

Approval

Cabinet Meeting

Establish Headquarter
Headquarter Administration
Priority arrangement of countermeasures for individual ministries and agencies
comprehensive coordination etc.
Dispatch of governmental investigation team, establishment and administration of on-site
disaster management headquarters etc

C. Disaster Recovery and Rehabilitation
Disaster Recovery Project: The recovery of damaged
public engineering facilities, educational facilities,
welfare facilities and agricultural, forestry and fisheryfacilities is either conducted directly by the Governmentor put into practice by the local government withsubsidies from the Government.
Disaster Relief Loans: Persons engaged in agriculture,
forestry or fishery, small enterprises and low-income
people who incurred damage are eligible for a varietyof low interest loans with rather generous conditions ascompared to normal ones.

17

C. Disaster Recovery and Rehabilitation
Disaster Compensation and Insurance: Damaged
enterprises or persons engaged in agriculture, forestry or
fishery business could obtain compensation foreconomic losses. In addition, the Government provides
earthquake insurance.
Tax Reduction or Exemption: For the affected persons,measures are taken for the reduction, exemption andpostponed collection of income and residential taxes.
Tax Allocation to Local Governments and Local Bonds:
For the affected local governments, measures such asdelivery of special tax allocations and permission to issue
local bonds are taken.

C. Disaster Recovery and Rehabilitation
Designation of Extreme-Severity Disaster: When a disaster
causes extremely severe damage, it is designated a“extreme-severity disaster.” Various special measures areto be taken for disaster recovery projects.
Assisting the Reconstruction Plan: Assistance is provided
for the local government reconstruction plans that should
be quickly and accurately formulated and executed.
Assistance for the Recovery of Victims Livelihood:
Assistance is provided for victims to restore their selfsupporting livelihood. Disaster condolence money,
disaster impediment sympathy money, money for supportof reconstructing livelihoods of disaster victims and loans
such as disaster support funds and livelihood welfare
funds are available.

18

C. Disaster Recovery and Rehabilitation

3. Disaster Risk Management and Reduction
Risk Management and Reduction Programs
1. National Land Conservation Program• Soil conservation project to prevent
mountainous regions from collapsing
2. Disasterand discharge of mountain soils andResistant Projects
sediments;• River improvement;• Construction of dams for flood control; •Fireproofing buildings;• Soil erosion control project to prevent•Earthquake resistant building;sediment discharge and debris flow;•Evacuation routes, areas and• Landslide prevention project to prevent facilities for disaster preparationand decrease landslide disasters;
bases;• Steep slope countermeasures project•Green space for disasterto prevent earth falls etc.;
preservation,• Coastline conservation project;•Improving and reinforcement of• Sewage system project;
existing buildings, public facilities and• Agricultural land and facilities disaster
seismic retrofit of lifeline facilities;
management project;• Land subsidence countermeasuresproject

19

3. Disaster Risk Management and Reduction
Risk Management and Reduction Programs
3. Other Program• Increase disaster Management consciousness
and Dissemination of Disaster Management
Knowledge;• Disaster Management Drills;• Local Voluntary Disaster Management
Organizations and Volunteer Activities;• Environment and disaster Management
Education (Miko High School, Tohoka
University);

3. Disaster Risk Management and Reduction
Risk Management and Reduction Programs
3. Other Program

20

River-flood Management

Installation of underground river pipe

Before disaster

After disaster

Sediment Protection Counter Measure

Gate to protect river water touse during drought

21

Environment
Promotion
Project

Living in harmony withenvironment

ACTION PLAN
Long-term Institutional Development Process
Comprehensive Disaster Emergency
Management: preparedness, response andRehabilitation;
Institutionalization of CBDM working withpartner: UN, IOs an NGOs;
Mainstreaming disaster management into
different sectors;

22

ACTION PLAN
Institutional Development of NCDM
1. Development and enactment of Law on Disaster
Management
2. Development of the National Policy on Disaster
Management;
3. Formulation of Basic Disaster Management Plan;
4. Necessary reform or reorganize NCDM structure andfunctions
5. Disaster Management Capacity Building Programs
Improvement Short and Medium Team of Emergency
Management
1. Line Ministries’ Operation Plans
2. Provincial and District Disaster Contingency Plans
3. Community Based Disaster Preparedness Action Plan

Institutionalization of Community Based Disaster
Management (CBDM)• Support NGO and Local government agency incharged of disaster coordination;• Promote CBDM as a tool for Government’s
decentralization; therefore, local mechanism toimplement CBDRM at a village level must be set up
and function throughout the country;• Joint long-term process of CBDM with partner IOs
and NGOs;• Lessons learnt be shared and sold with/to all DM
concerned agencies/practitioners bothgovernmental and non-governmental;

23

• A joint policy/ strategy, principle for National CBDM
participatorily developed and adopted by theGovernment;• Replication of CBDM by the government is committed
and supported. CBDM strategy will be full
involvement of local government;• National policy for disaster management is in place
to facilitate the institutionalization of CBDM;• Real and applicable guidelines for mainstreaming
disaster management into government’s agenda andnational development be introduced and supported
to prove benefit and effectiveness;

Observation and Recommendations to ADRC
VisionA Hub of Regional Cooperation in Asia”
lead the Asian Region to further prosperity, safe,
peaceful, and comfortable lives
How

How

Goal

???

Objectives

???

When

When

Activities:
Information Gathering and Sharing, Capacity Building,and International Cooperative Projects.

24Observation and Recommendations to VR
Program
Important Program
Promote disaster Management Discipline
Process

Should be better arranged:
Pre-course Arrangement;
Need for mentor;
Time and Working Arrangement;
Benefit of the Program

Observation and Recommendations to VR
ProgramOverall, I appreciate very much to the ADRC and its
Visiting Researcher Program that provided me theopportunity to stay and learn many things from Japan. I
learned, not only the disaster management, but also
about the beautiful country, the nice culture and thegood people of this country. I am so grateful to theleaderships and all staff of the ADRC for their kindness,
support and good cooperation. My appreciation andgratitude are also extended to the Government of Japanand its people for their continued support andassistances to the people of Cambodia. Hope that the
memory of my stay would share in the strengthening offriendship and relationship of the two countries.

25

Arigato gozaimasu
Thank You26