Mainstreaming Disaster Risk Reduction into
National Development Planning – Housing Sector

Ali Bakhtiari
National Disaster Management Organization of IranADRC Visiting Researcher FY2013B

January – April, 2014

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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 the ADRC. The
boundaries and names shown and the designations used on the maps in the report also do not
imply official endorsement or acceptance by the ADRC.

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Acknowledgement
Firstly, I would like to acknowledge the support of the Government of Islamic Republic of
Iran and Asian Disaster Reduction Center (ADRC) for providing me with the opportunity toattend this Visiting Researchers Program.
My special thanks to Mr, Mohammad Hosseini Director General for International relations of
National Disaster management Organization of Iran for nominating me to attend
VRFY2013B program.
I am particularly grateful to my wife for her support and her feedback in writing this report.
Finally, I take this opportunity to express profound gratitude to the ADRC staff members andmy visiting researcher colleagues for extending their professional support during the
program.

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Content
Introduction ................................................................................................................................ 6
Mainstreaming DRR in Development Planning ........................................................................ 7
Opportunities ............................................................................................................................. 9
Factors contributing to vulnerability of building stock ........................................................... 10
Mainstreaming DRR in Housing Sector .................................................................................. 11
Approaches in Mainstreaming DRR in Housing Sector .......................................................... 13
Natural Hazards and Disaster Risk Management, Strategy and Implementation mechanisms
in Iran ....................................................................................................................................... 16
The Iranian Emergency Response System............................................................................... 21
Regional (Provincial) and Local (District) Structures ............................................................. 22
Mainstreaming DRR in development planning In Iran. .......................................................... 22
Mainstreaming Disaster Risk Reduction into Housing sector in Japan ................................... 26
Case studies.............................................................................................................................. 32
Finding and Suggestions .......................................................................................................... 35
References ................................................................................................................................ 37

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Abbreviations & Acronyms
ADRC

Asian Disaster Risk reduction

ADPC

Asian Disaster preparedness Centre

BMTPC

Building Materials & Technology Promotion Council

BSL

Building Standard Law in Japan

DRR

Disaster risk reduction

DP

Disaster preparedness

DPC

Disaster preparedness committee

DRM

Disaster risk management

EIA

Environmental Impact Assessment

HFA

Hyogo Framework for Action

IEC

Information, education and communication

IEE

Initial Environmental Examination

JASS

Japan Architectural Standard Specification

DRRI

Disaster Risk Reduction Initiatives

MDG

Millennium Development Goals

MLITT

Ministry of Land, Infrastructure, Transport and Tourism

NDMO

National Disaster Management Organization

PPAs

programs, projects, and activities

SPAS

Strategic Planning and Supervision

UNDP

United Nation Development Program

UNISDR

United Nation for International Strategy for Disaster Reduction

WCDR

World Conference on Disaster Reduction

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Introduction
In the recent years, high economic growth in some countries with unplanned development hascreated new risks and precipitated existing vulnerabilities. It sometimes increase marginality
in large cities which makes a large number of people highly vulnerable to natural and humaninduced disasters. At the time of disasters, because of scarce resources, the governments haveto divert their focus from development to relief and rehabilitation, which further creates set
back to the development.

It is necessary to retrofit all the existing development activities for reducing the threats ofimpending disasters. Additional costs involved shall always be far less than the benefits
accruing from such investments.

At the World Conference on Disaster Reduction (WCDR) which was held at Hyogo, Japan in
January 2005, 168 countries had committed to integrate risk reduction into development
policies and plans at all levels of Government including poverty reduction strategies, andmulti-sectoral policies and plans in line with Hyogo Framework for Action (2005-2015).

Disasters and development are co-related in terms of negative and positive impacts.
Depending on the level of development happening, disasters can set back the developments
and the achievements of long-term development efforts may disappear in an instant. The
preventive measures against disasters are always highly cost efficient. At the same time, it
can also be taken as a unique opportunity to reduce vulnerabilities. However, natural disasters
stand as one of the main challenges to achieve Millennium Development Goals (MDGs).

So, development activity and Disaster Risk Reduction (DRR) representing two sides of thesame coin needs to be dealt with in unison. While natural disasters cannot be prevented fromhappening, the vicious cycle of disasters and its effects in the development activity can bealtered. This can be done through mainstreaming disaster risk reduction in the development
process as shown in Figure 1.

The lack of consideration of DRR into development process leads to bearing extra costs inreconstruction which perpetuates the conditions for unsustainable development and shifts the
scarce resources originally programmed for development into relief and response.
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Figure 1.Process of DRR Mainstreaming, (Twigg, 2004)

Mainstreaming DRR in Development Planning
The aim of planning is to make sure that people are better than they were before. In
mainstreaming DRR in planning, one can guide development and allocate resources toward
the protection of life and assets, restoration of productive systems and livelihoods, regaining
market access, and rebuilding social and human capital and physical and psychological health.
Development plans therefore take on a critical role in disaster risk management (UNDP, et al,2008).

The development planning process is comprehensive, multispectral and integrative.
“Mainstreaming DRR into development means to consider and address risks emanating fromnatural hazards in medium-term strategic frameworks and institutional structures, in country
and sectoral strategies and policies and in the design of individual projects in hazard-prone
countries” (Benson, et.al, 2007).

It also considers and addresses risks emanating from natural hazards in medium-term
strategic frameworks, institutional structures, country and sectoral strategies, and policies in
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the design of individual projects in hazard-prone countries (Benson, et.al, 2007).

As shown in the Figure 2, the process covers plan preparation, investment programming,
project evaluation and development, budgeting, implementation, and monitoring andevaluation.

It starts with identifying development strategies based on an analysis of the region orprovince. These are translated into programs, projects, and activities (PPAs) that serve as themain inputs into the investment programming processes. Based on a predetermined set ofcriteria, these PPAs are further screened and ranked to produce the multiyear investment
programs and the annual investment program.

The investment programs, aside from ranking the priority PPAs, indicate the year(s) in which
each PPA will be implemented and at what cost. Should available funds be insufficient toimplement a PPA, measures to generate additional revenues to finance the PPA can be
identified. Funds are then allocated and the implementation proceeds for the target year.
Programs and projects are evaluated to determine their costs and benefits, feasibility andprospective contributions to society, among others. When implemented, PPAs are monitored
and evaluated and the results will be inputs to the next cycle of planning. With DRR
assessment conducted within subnational planning, planners may:
1.

Take a comprehensive view of the physical, economic, social, environmental andinstitutional interrelationships and understand what constitutes the susceptibility of aregion or province to risks from natural hazards;

2.

Integrate DRR management decisions in the spatial framework, i.e., risk mitigation, risk
prevention, risk transfer and risk retention; and3.

Carry out the DRR-enhanced PPAs in their investment programs that are:

Designed with consideration for potential disaster risks and to resist hazard impact;Designed not to increase vulnerability to disaster in all sectors: social, physical,
economic and environment; andDesigned to contribute to developmental aims and to reduce future disaster risks.

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Figure2: Source: NEDA -ADB, 2007 in UNDP, et al, 2008

Opportunities
The opportunities of mainstreaming DRR in development planning have following
advantages:
1.

It prepares land use plan, so can guide private sectors, government to undertake large
scale projects, on the proper location of their projects and the implementation of thenecessary mitigation works.

2.

Planning output can offer policy options and generalized programs and projects which
the next level stakeholders, can work on the subsequent more detailed planning work.

3.

Mainstreaming DRR addresses disaster issues as a cross-cutting dimension ofdevelopment and goes beyond hazard impact mitigation to a more comprehensive
analysis of its implications to development.

4.

It helps in decision making of allocation and prioritization of available resources indevelopment planning at local level.

5.

It attracts and keeps track of all the stakeholders in one basket thus reducing duplicationin projects.

6.

It helps to better respond to disaster.

7.

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significantly reduce the labour and cost of rescue, relief, resettlement and reconstruction.
8.

It helps to fulfil the national and international goals and objective like MGDs to reducepoverty, promote environmental sustainability and etc.

9.

Community based disaster risk management plan will sensitize public on disaster risk
reduction and will help to reduce poverty.

10. It promotes Risk sensitive land use planning, Land pooling & land development;
Implementation of building code; Capacity building of municipal officers, engineers,
contractors, masons; Strong and sound field monitoring system; Awareness raising forindividuals in DRR through social mobilization.
11. Involve college, schools and other academics; Involve govt. agencies, NGOs, private
sectors with effective coordination mechanism; Endorsing PPP concept; Vulnerability
mapping will be done by the municipality and retrofitting of old buildings anddemolishing old building. (Loy Rego, Arghya Sinha Roy, 2007)
At this Research, I focus on mainstreaming DRR in housing sector.

Why Housing?
Housing is considered as one among the three basic human needs next to food and clothing.
Importance of housing cannot be understated as it is a key factor determining a person’shealth, wellbeing, and prospects in life. There is an often-repeated saying, "earthquakes don’tkill people, and buildings do". At earthquake time the some buildings severely affects by one.

Factors contributing to vulnerability of building stock Poor land use planning /with poor understanding on hazards / without risk basedplanning Lack of knowledge and incorporation of appropriate disaster resistant features during
planning and construction process Lack of regulatory mechanism to enforce land use / building regulations
 Limited / no mechanism for accountability in case of violation of regulations
 Lack of skilled human resources in planning and execution
 Poor quality and sub-standard building materials
 Poor maintenance of structures
 Poor governance – corruption (ADPC, 2011)

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Mainstreaming DRR in Housing Sector
Irrespective of the nature of hazards, disaster losses associated with housing sector are due tounderlying risk factors and the subsequent sections discuss the rationale and entry points formainstreaming disaster risk reduction into the housing sector.
Mainstreaming DRR in housing would mean that all housing related interventions haveconsidered the effect of natural hazards (current as well as future risks magnified by climatechange) and of the impact of those interventions in turn, on vulnerability to natural hazards,
and accordingly have adopted risk reduction measures. This would require understanding thetypical vulnerabilities to hazards, analyze how these vulnerabilities interact with the existingprocesses of development of the sector and understanding of the actors involved in each of
the processes.

Figure 3 shows the possible entry points into housing components and enabling environment
frameworks for DRR interventions in the housing development process which can results invarying degree of impact. Mainstreaming efforts aiming at frameworks will benefit long-term
housing delivery process; small steps within a shorter timeframe can also be made for
immediate advancement by addressing the specific components on a case by case basis suchas during new housing / reconstruction programme and replicate or upscale the process.

In addition it should be noted that, mainstreaming is not done as an isolated effort, each entry
point interacts with the others framework / components which support the process. As
indicated above various actors are involved directly and indirectly in housing development
process. Many different agencies at national and local levels should collaborate for efficient
mainstreaming of DRR in housing. However any effort to mainstream DRR has to focus atlong term process for successful integration and outcome.

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Figure3 A typical process of housing development and possible entry points and enabling
Environment to mainstream DRR (ADPC, 2011)

At a strategic level mainstreaming entails addressing / incorporating DRR measures inpolicies, regulations while at operational level undertaking specific measures such as
evaluation of hazards, vulnerability and risks and addressing it through appropriate mitigation
measures. Incorporation of DRR measures and cost depends on the vulnerability factors fore.g., land use planning can either reduce or increase disaster risk by allocating appropriate
land for development, however there might be additional cost involved with the choice ofland development and during the structural design stage it depends on the particularperformance objective of the structure and the disaster resistant feature considered. In case of
housing it would be important to design the structure to a minimum service level ofoperational or of higher order to life safety performance level. (ADPC, 2011)

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Mainstreaming DRR into National Development Planning

Approaches in Mainstreaming DRR in Housing Sector
Figure 4 illustrate Approaches that could be adopted both in long as well as short term to
mainstream DRR in the housing sector.

As shows this include entry points into the housing components which support housingdevelopment process and also the frameworks which shape these components as an enabling
environment for mainstreaming DRR (ADPC, 2011)

Approaches Mainstream DRR in housing sector

Housing
Components
supporting
housing development as entry points• Land• Housing finance

Frameworks that shapes housingdevelopment
asanenabling
environment• Institutional Framework• Labour• Building Materials• Infrastructure• Policy Framework• Legal Framework• Regulatory Framework

Figure4. Approaches of mainstreaming DDR in housing sector (ADPC, 2011)

Institutional Framework
Government through its National Housing and associated agencies plays an important role asa provider and enabler for development of housing in a country. National housing agencies
are the core agencies where the mainstreaming of DRR can be initiated, sustained.

Further, housing as a multidimensional aspects necessitate close collaboration with various
factors involved in sectors ranging from social, physical, economics, financial, environmental
as well as livelihood aspects. It is important that all stakeholders are part of the process of
mainstreaming including financial institutions, national and local agencies involved in DRR
and housing, the municipalities, donors and the beneficiaries.
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Policy Framework: National Housing Policy
The Habitat Agenda identified the right to adequate housing that is safe, secure, healthy,
accessible and affordable as most crucial. In line with this, most countries have framed their
National Housing Policy setting out the broad goals and objectives for housing and providing
a framework for addressing housing issues through an enabling policy framework.

While in some cases housing development policy does not explicitly address disasters,
policies often outline the need to provide safe housing, indicating safe from natural andman-made disasters. However more specific approach is required to address disaster risks.
After disasters many countries have recognised the importance of mainstreaming DRR in the
housing strategy.

Regulatory Framework: National Building codes and enforcement
The Building Codes are national instruments providing guidelines for regulating the building
construction activities across the country. It serves as a model code for adoption by allagencies involved in building construction works including Public Works Departments, othergovernment construction departments, local bodies or private construction agencies. In
general, the Code mainly contains administrative regulations, development control rules andgeneral building requirements; structural design and construction (including safety); fire
safety requirements; stipulations regarding materials and other services.

DRR measures needs to be defined precisely and consistently in the existing building codes.
The building codes are expected to have DRR integrated in respected to disaster resilient
construction techniques; appropriate project planning for reducing risks and monitoring ofprocess of mainstreaming DRR. These may require sufficient information and resources toinclude and modify the existing codes, the working organisational building code.

Legal Framework
Legal framework supporting housing development exist in form of National Urban
Development and Housing Development Act, Town and Country Planning Act, PhysicalPlanning Act, Land Act, National Housing Bank Act addressing rational use of land including
for housing development, financial mechanisms, tenure system and mechanism for housingdevelopment, etc.
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Entry points for mainstreaming DRR can be done either through the existing framework on
housing such as amendments and / or through appropriate provisions in Disaster Management
Acts. While above section focused on the frameworks which provides an enabling
environment for mainstreaming DRR, following section focuses on specific DRR entry points
in components related to housing development which are in turn shaped by the enabling
environment.

LandLand use planning is prepared to identify, adopt the best land use options for housing and also
to identify alternatives. While good land use and planning can either eliminate disaster risk or
minimize disaster risk by adapting appropriate mitigation measures it also reduces overall
land vulnerability to disaster risks. Risk based land use planning can be an effective tool for
managing disaster risks and protect development gains.

Finance
Housing finance is important factor which influence housing development. There aredifferent models in which housing programmes are funded ex. Regular budget, Housing
Banks, Housing Finance Companies, Commercial Banks, Non Banking financial institutions
and donors. Most often housing finance is funded through financial institutions. Most cases
these institutions have safety provisions during their appraisal process for ensuring theinvestments are safe by minimizing their susceptibility to natural hazards. However theappraisal process has not been adequate to make the investments safe and buildings resilient.

LabourLabour in housing sector includes both formal and informal sectors. Non availability ofskilled work force leads to poor design and construction of houses and infrastructure. Lessons
from past disaster events, points to factors such as faulty design, weak construction material
and poor maintenance, noncompliance to safety regulations. Formal sector holds prospects
for improving the skills to ensure the quality and incorporation of disaster resistant design
through relevant trainings and capacity building.

From a DRR perspective, technological advances are made to improve the disaster resistantfeatures and subsequent enactments through building codes, however adaption of the
improvements in practice are limited.
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Building Materials
In general, choice of building materials for housing depends on various factors such as type,budget, culture, climatic condition and labour to name a few. Particularly in the context of
low cost housing building materials need to be cost effective, environmentally friendly.
However in practice, use of substandard materials, design and shoddy construction, poor
maintenance are key reasons for structural failure. It is important to select appropriate
building materials with designing process in order to reduce the structural vulnerability.

Infrastructure
Basic infrastructure and services such as electricity, water and sanitation, roads, waste
disposal are key components of housing development and greatly contributes to living
standards. In general, services provided by the local government authorities in developing
countries are inadequate due to funding constrain and further the services are disrupted
during any disaster events. At times, past infrastructure development itself creates orexacerbates vulnerability of the area. Hence it is important to design infrastructure systems towithstand disaster impacts and also ensure that infrastructure facilities support evacuation andemergency response functions (ADPC, 2011).

Basic Information
Iran is a county in southwest Asian, country of mountains and deserts. Eastern Iran isdominated by a high plateau, with large salt flats and vast sand deserts. The plateau issurrounded by even higher mountains, including the Zagros to the west and the Elburz to thenorth. Its neighbours are Turkmenistan, Azerbaijan and Armenia on the north, Afghanistan andPakistan on the east, and Turkey and Iraq on the west.
Tehran is the capital, the country's largest city and the political, cultural, commercial andindustrial center of the nation. Iran is a regional power, and holds an important position ininternational energy security and world economy as a result of its large reserves of petroleum
and natural gas. (ICT Ministry, 2014)
Natural Hazards and Disaster Risk Management, Strategy and Implementation
mechanisms in Iran
Iran has a high level of exposure to multiple disaster risks. Situated in one of the most arid
regions of the world, it suffers from frequent, droughts. Moreover, floods, forest fires and sandFinal Report | ADRC Visiting Researcher Program:FY2013B

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and dust storms increasingly affect different parts of the country. Iran’s main concern however
continues to be seismic risk. Due to its particular location in the Alpine-Himalayan mountainsystem, Iran is also highly vulnerable to numerous and often severe earthquakes. The Bam
earthquake at 1:56 AM UTC (5:26 AM local Time) on Friday, December 26, 2003 (magnitudeof 6.6 Mw) was one of several deadly tremors that have repeatedly struck Iran's towns andvillages throughout its modern and ancient history. 13 years before other devastating
earthquakes with a magnitude of 7.7 on the Richter scale hited the North of Iran at 00:30:09 on
June 21, 1990 (21:00:09 June 20, 1990 UTC). The disaster estimated left 40,000 dead, morethan 400,000 homeless, 60,000 or more injured. Around 100,000 homes and commercial
building damaged and hundreds of towns and villages destroyed. Seismic Hazard Map of Iranis illustrated as below:

Figure 5 Seismic Hazard Map of Iran. Source: www.IIEES.ac.ir
Iran has developed an effective and internationally recognized disaster preparedness andresponse capacity at the national and local levels, but disaster prevention and risk reduction
are areas that will require extensive longer-term efforts as well as multi-sectoral andmulti-stakeholder planning in development sectors such as health, education and urban
planning. At the same time, comprehensive concepts and standards of risk reduction – which
include social dimensions as well as physical aspects of disaster prevention – can be further
improved. (NDMO, 2012 and UNISDR, 2014)
Iran has significant experience and capacity in relief and emergency response as well as insome technical areas of disaster risk management, such as hazard mapping, earthquake
engineering and reconstruction planning. In terms of disaster preparedness and response, Iran
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has strong technical institutions and institutional arrangements for disaster management at thenational level.
In the last two decades, the Government of the Islamic Republic of Iran took a number ofsteps to enhance its national disaster management capacity. This has resulted in strong
disaster preparedness and emergency response capabilities at national and local levels.
The 5th National Development Plan of the Islamic Republic of Iran (2011-2015) addresses
the issue of disaster risk reduction and management in several areas, including enhancementof disaster preparedness and response, upgrading building and construction codes andstandards and earthquake prevention measures, improving safety in rural settlements, andimportantly, allocation of 2% of annual national budget to disaster risk reduction andmanagement. (NDMO, 2012)
In 2008 the National Disaster Management Organization(NDMO) is stablished in order toutilize the national, regional and local capacities to confront the natural and unexpecteddisasters as well as creating an integrated management system for policy making, planning,
coordinating research and executive activities in a cohesive manner, concentrated information
dissemination and supervision over different phases of disaster management as well as
rehabilitation and reconstruction of disaster stricken areas.( NDMO, 2012)
In order to coordinate the activities of the organizations and institutions affiliated to the three
State governing branches, the Armed Forces and the other institutes and agencies under the
auspices of the Supreme Leader (with regard to delegation of authority by His Honor) as well
as for enacting of regulations and standards governing the four phases of disastermanagement, the High Council of the National Disaster Management Organization(hereinafter referred to as the High Council) is formed. The High Council is chaired by the
President and its membership will include relevant Ministers, Mayor of Tehran, Commander
of Armed Forces, one of the deputies of the Speaker of the Islamic Consultative Assembly,
First deputy of the Judiciary, Heads of Management and Planning Organization, the Islamic
Republic of Iran Broadcasting Corporation, Head of Red Crescent Society of the Islamic
Republic of Iran, care taker of the Imam Khomeini Relief Committee, Head of State
Meteorological Organization, Head of Housing Foundation of the Islamic Revolution, as wellas the Head of the Organization.

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Disaster Management Coordination Council has been formed under the chairmanship of the
National Disaster Management Organization Head and membership of the plenipotentiary
representatives deputizing the related organizations and organs in order to coordinate
activities.
Disaster Management Coordination Council in the provinces is formed under thechairmanship of Governor Generals and Governors in the provinces and cities respectively.
Its membership includes the entire related organizations.
The NDMO is affiliated to the Ministry of Interior and the Head will be appointed on the
proposal made by the Minister of Interior, endorsed by the High Council and the decree givenby the Minister of Interior
The functions of the organization are as follows:1.

Development of policies and plans of action related to the four phases of disastermanagement, and planning for provision or making possible use of the potential &capacities pertaining to the governmental, non- Governmental organizations and theArmed forces during the preparedness and response operations, in order to be presented
to the Cabinet of Ministers for approval.

2.

Facilitate coordination and create cohesion among the various organizations in the
country regarding the four phases of disaster management.

3.

Arrange for review and develop policies and comprehensive plans on culture, research,training, and propagation, dissemination of information, as well as rehearsal and testing
activities in the four phases of disaster management in order to be proposed to the HighCouncil.

4.

Strengthen regional and international cooperation, exchange of views and make use ofexperiences and the know- how of countries and international organizations in relation
with the four phases of disaster management, as well as representation of the country in
the international communities with coordination and collaboration of relatedorganizations.

5.

Documentation of disasters, the measures taken and the analysis made in this regard.

6.

Planning and coordinating the organization and training of the entire people- centeredorganizations including non-governmental institutions, Basij forces and volunteers in thefour phases of the disaster management.
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7.

Follow up to the ratifications and decisions of the High Council

8.

Coordination and supervision over development and expansion of effective prevention
systems, retrofitting and seismic improvement of constructions, infrastructures, buildings
and crucial and important lifelines as well as reconstruction and improvement of the old
textures, development of reinsurance and compensatory methods including different
insurances, financial support and encouraging mechanisms in cooperation with therelated organizations.

9.

Supporting the development and expansion of active scientific and consultative institutes
and benefiting from their collaboration for the purpose of standardization and safetycontrol of products, services, building and infrastructural facilities, as well as supervisionof approved standards that should be taken into account.

10. Develop the system of national work division for enhancing the culture of safety for eachmember of the community with cooperation of the Ministries, organizations, institutions
and the organs related to disaster management in order to be presented to the Cabinet of
Ministers for approval.
11. Develop directives on determining the level of disasters as being of national, regional or
local significance, including emergency situations and the methods by which the crises
resulting from unexpected disasters are announced.
12. Provide directives to related organizations on procedures of the emergency andcontingency plans that can be executed in the event of or likely occurrence of a disaster.
13. Coordinate deployment of the entire potentials and capacities of both governmental or
non – governmental organizations and the Armed forces which are required by thedisaster management during the disaster response phase.
14. Develop appropriate rules and regulations concerning the investigation of violations andbreach of approvals and orders of the High Council and the organization as well as
negligence in performance of duties by officials in the entire related organizations, public
non- governmental organizations, the Armed forces and the organizations under the
auspices of the Supreme Leader during the disaster response phase with cooperation of
the Judiciary and the Armed forces general staff to be submitted to the Cabinet of
Ministers for approval and the consequent implementation and follow – up.
15. Develop draft on rules and regulations concerning the pre-emptive measures to address
abusers, rioters and plunderers during the disaster with cooperation of the Judiciary andthe Armed forces General staff to be submitted to the cabinet of ministers for approval,
the consequent follow up and monitoring the implementation.
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16. Develop operating procedures and guidelines with cooperation of related organizations
on receiving and distribution of national, international and foreign aids to be submitted to
the Cabinet of Ministers for approval and the subsequent follow – up.
17. Develop a comprehensive information management system assisted by information
networks of the scientific and research centers and the responsible executive
organizations as well as establishing the Disaster Information Management Center in theorganization in order to provide timely warning before occurrence of the likely disaster
together with sound dissemination of information to the authorities and the public at thetime of disaster.
18. Overseeing at the highest level and evaluating the activities of the related organizations
on the four phases of disaster management (particularly preparedness and response) inorder to be reported to the High Council.
The Iranian Emergency Response System
Disasters are categorized as being of National, Regional or local significance. Depending on
the classification of disasters, the respective authorities take control to direct relief efforts.
During the disaster, the entire relevant organizations are obliged to participate in the response
operations upon the call of the Head of the High Council in accordance with pre-planned
programs. A report will be presented to the organization accordingly. The cessation andtermination of the response operations will be announced by the Head of the High Council.
Specialized Working groups
14 Specialized Working groups under the overall supervision of the Ministry of Interior andheaded by their ministries are responsible for managing, coordinating, administrating all
activities related to Natural Hazards in their Organizations. The Specialized Working groups
are as follows:1.

Communications

2.

Health and medical care

3.

Droughts, Vegetation diseases and cold

4.

Transportation, lifelines and weather disasters

5.

NGO’s

6.

Recovery , Hazardous material, Insurance, Firefighting
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7.

Security

8.

Flood, power, sanitations and sea level rise

9.

Fuel and oil supply

22

10. Earthquake and landslide
11. Reconstruction
12. Environment hazards
13. Media and public Awareness14. Rescue and relief and public Training
These working groups are at three levels: Local, national and provincial.
Regional (Provincial) and Local (District) Structures
The national structure of the Ministry of Interior is mirrored at provincial level.

The

provincial and township sub- units formed under the supervision of Governor Generals andGovernors respectively.
The deputy Governor General for development affairs and the deputy Governor will
respectively substitute the Governor Generals and Governors in the Disaster Management
Coordination Council in provinces and cities, who will be obliged to play their role ascoordinator and reporting to the organization.
Mainstreaming DRR in development planning In Iran.
As a signatory of the HFA 2005–2015, Iran, along with another 167 nations and multilateral
institutions, is formally committed to mainstreaming DRR into national/sectoral development.
This ten-year framework resolves to reduce disaster losses and is centered on the more
effective integration of disaster risk considerations into sustainable development policies,
planning and programming at all levels, with a special emphasis on disaster prevention,
mitigation, preparedness and vulnerability reduction The 2007 Delhi Declaration on DRR in
Asia, at the Second Asian Ministerial Conference on Disaster Risk Reduction, reiterated theimportance of mainstreaming as the second of six key areas of action. Mainstreaming
initiatives advocated by the declaration included the mainstreaming of DRR into nationalsustainable development strategies, plans and programs in key sectors and efforts to ensurethat development does not create further disasters; further strengthening of the legislative
frameworks and institutional mechanisms for DRR; the positioning of communities at the
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center of all aspects of DRM; the conduct of risk assessment as an ongoing process; and thestrengthening of financial mechanisms for disaster reduction.

In fulfilling Iran’s commitment to integrating DRR into development policies and programmes,
the government is about to begin to translate its international and national commitments into
practical steps and to enhance multi-sectoral buy-in to integration. There are however
challenges in the implementation of the HFA. One challenge is to overcome the lack ofrecognition of DRR as a development concern. Another challenge which is inter-linked to thefirst challenge is inadequacy of resources for integrating DRR. The need for intensified
capacity building in ensuring policy implementation, for planning skills, and for focusedleadership are equally important challenges faced by NDMO and Strategic Planning andSupervision (SPAS) as the apex institutions towards integrating

DRR in national andsectoral development.

Based on the above, there are several broad gaps as follows: Awareness-building is required to secure a solid appreciation and understanding of thelink between DRR and sustainable development and of the fundamental importance of
DRR to core development goals. Such awareness is most critically essential on the part of(SPAS), NDMO, key line ministries / agencies as well as local authorities andcommunities in high-risk areas. However, in view of the holistic, cross-cutting nature ofdisaster risk and potential consequences of decisions in one sector for disaster risk inanother, policy- and decision-makers across all areas and levels of government as well as
the private sector and civil society also need to be aware of the importance of considering
disaster risk as a routine part of their work; Enhanced capacities are required to mainstream DRR concerns into sectoral programmes
as well as use mainstreaming tools in the daily work of individual Ministries; Increased understanding and operational skills should be developed among participants onestablishing inter-ministerial partnerships for integrating DRR into development work,
including private sector;
 Capacity is needed to undertake advocacy, promote awareness, and conduct training formainstreaming DRR into development.

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Mainstreaming DRR into National Development Planning

At the national level, since the national development agenda sets the framework fordevelopment in each sector, it is important to utilise the opportunities that are provided by
Iran’s platform of 5 year national development plans for integrating DRR. On the other hand,most often local governments are not fully aware of their city-specific DRM “options”, nor dothey comprehend the “process” for successfully implementing these options. Thus, across the
spectrum of local government duties, DRM is not very well recognised, is difficult toimplement, and is sometimes a challenging proposition for local governments. A primarychallenge is therefore to help mainstream DRR as a development concern for local
governments.

Thus far, there has been little investigation and analysis of the key challenges around DRR
integration or of mechanisms, opportunities and incentives for mainstreaming. There are
inadequate reliable data on the type and amount of Iran’s economic activity at risk fromnatural hazards. In addition, a fundamental obstacle is the absence of accurate hazard andvulnerability maps. In this regard, Iran urgently needs an integrated natural hazards andvulnerability data and mapping system to be designed and implemented. In Hazard mapping
and physical exposure, efforts need to be initiated to cover the whole country and to produce
an integrated national multi-hazards data and mapping system, recognizing geological,
watershed and other ecosystem boundaries, rather than political and administrative districts.
They also need to be further extended to map risk, a considerable challenge, due to theexisting functional and budgetary compartmentalization between different government
departments involved in DRR and DRM. Overlaying discrete single-hazard datasets fromdifferent participating agencies would require a separate round of field assessments forvulnerability

andadaptation

analysis.

The

determinationofimpactrequiresamulti-disciplinary approach toward data integration and mapping vulnerabilities.

With a population of 75 million, Iran has a number of mega cities that are vulnerable toseismic risk. Thus far, efforts had focused on the assessment of the risk carried out by thetechnical community. Most of the efforts and resources have been used in studies to produce
reports, maps, papers and conferences that have not been utilized by the whole community.
Very few concrete actions have resulted from those studies, and there has been almost no
progress in the incorporation of the community in the “risk-reduction” process. (NDMO,
2012)
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Disaster Management in Japan
Geographically, Japan is located in the East Asia and Pacific Ocean because of geographical,
topographical and meteorological conditions, the country is prone to frequent natural hazards
such as earthquake, Tsunami, typhoons.

For managing Disasters, Japan has three 3 administrative levels of governance; national,
prefectural and municipal. Each level of governments has its own disaster management
organizations, policy frameworks and budgets. When disasters occur, municipalities respondfirst. In case disasters are large in scale beyond their capacity, national and prefectural
governments provide every possible support. (See figure6).

Responsibilities by Administrative Level
National Level
Prime Minister

Formulation and execution of disaster management plan,
Comprehensive coordination

Central Disaster Management Council

Formulation and promoting execution of the Basic Disaster
Management Plan

Designated Administrative Organs
Formulation and execution of the Basic Disaster
Management Plan

Designated Public Corporations

Prefectural Government Level
GovernorPrefectural DM Council

Formulation and execution of disaster management plan,
Comprehensive coordination

Designated Local Administrative Organs

Formulation and promoting execution of the Basic Disaster
Management Plan

Prime Minister

Municipal Level
Prime Minister

Formulation and execution of disaster management plan,
Comprehensive coordination

Prime Minister

Formulation and promoting execution of the Basic Disaster
Management Plan

Residents Level

Figure 6, administrative systems in Japan, Source: Cabinet Office, Feb 2011)

Disaster Management Strategy, Policy, and Plan
Basic Disaster Prevention Plan is the master plan and a basis for disaster reduction activities
in Japan. Basic Disaster Prevention Plan is prepared by the Central Disaster Management
Council in accordance with Article 34 of the Disaster Countermeasures Basic Act. The planclarifies the duties assigned to the Government, public corporations and the local government
in implementing measures. For easy reference to countermeasures, the plan also describes thesequence of disaster countermeasures such as preparation, emergency response, recovery andreconstruction according to the type of disaster.
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Structure of Disaster Management

Figure7. Central Disaster Management Council

Mainstreaming Disaster Risk Reduction into Housing sector in JapanTo study the mainstreaming DRR into housing sector in Japan, the following approaches
were reviewed and examined for two huge earthquakes, one Great Hanshin-Awaji in 1995
and second Japan Great East Earthquake in 2011:
1.

Institutional framework

2.

Policy and legal framework3.

Regulatory framework

4.

Land and housing finance5.

Labour,6.

Building materials and7.

Infrastructure

Type of construction in Japan
Traditionally, Japanese buildings were wooden based structures and even now, most of the
low storied buildings are still built using the wood. But most of the apartments, including
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condominiums, are reinforced concrete structures or steel structures (Tomohiro, Hasegawa,2013).

Institutional Frame work
The Central Government legislates for building regulations based on the Building Standard
Law (BSL) in Japan. The building regulatory systems and building codes (technicalrequirements) has 2 levels as follows:
1.

Legislation by National governments

2.

Legislation by local governments.

There are two levels of local governments in Japan: prefectures, and basic local governments
such as cities, towns and villages. At the national level, the Ministry of Land, Infrastructure,
Transport and Tourism (MILT) is responsible for managing and administering issues related
to BSL. At the local level, the MILT bureaus and municipalities do the same tasks.

Policy and Legal Framework
In line with Housing sector, the fallowing Acts/Laws are available:
1.

Disaster Relief Act(1947)2.

Flood Control Act(1949)

3.

Building Standard Law (1950)

4.

Act on Temporary Measures for Disaster Prevention and Development of Special Land
Areas (1952)

5.

Meteorological Services Act (1952)

6.

Act on Temporary Treatment of Rental Land and Housing in Cities (1946)7.

Act on National Treasury Share of Expenses for Recovery of Public School Facilities
Damaged Due to Disasters (1953)

8.

Airport Act (1956)

9.

Small-scale Business Equipment Installation Financial Support Act (1956)

10. Seashore Act (1956)
11. Landslide Prevention Act (1958)
12. Act on Special Measures for Disaster Prevention in Typhoon-prone Areas (1958)
13. Disaster Countermeasures Basic Act(1961)
14. Act on Special Financial Support to Deal with Extremely Severe Disasters (1962)
15. Act on Special Measures for Heavy Snowfall Areas (1962)
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16. River Act (1964)
17. Act on Earthquake Insurance (1966)
18. Act on Prevention of Steep Slope Collapse Disaster (1969)
19. Act on Special Financial Measures for Group Relocation Promotion Projects for Disaster
Mitigation (1972)
20. Act on Payment of Solatia for Disasters (1973)
21. Act on Special Measures for Large-scale Earthquakes (1978)
22. Act on Special Measures for Reconstruction of Disaster-stricken Urban Areas (1995)
23. Act on Special Measures for Reconstruction of Jointly Owned Buildings in
Disaster-stricken Areas (1995)
24. Act on Special Measures for Earthquake Disaster Countermeasures (1995)
25. Act on Promotion of the Earthquake-proof Retrofit of Buildings (1995)
26. Act on Special Measures for Preservation of Rights and Profits of the Victims ofSpecified Disasters (1996)
27. Act on Promotion of Disaster Resilience Improvement in Densely Inhabited Areas(1997)
28. Act on Special Financial Measures for Urgent Earthquake Countermeasure Improvement
Projects
29. Areas for Intensified Measures (1980)
30. Amendment of Building Standard Law(1981)
31. Act on Support for Livelihood Recovery of Disaster Victims (1998)
32. Act on Promotion of Sediment Disaster Countermeasures for Sediment Disaster Prone
Areas (2000)
33. Specified Urban River Inundation Countermeasures Act (2003)
34. The Japan Finance Corporation Act (2007)

Legal Framework
Following are the list of policies and strategies to improve building safety:
1.

Act for Promotion of Retrofitting

2.

Housing Quality Assurance Act

3.

Amendment of BSL

4.

Financial assistance to those who retrofit their buildings/houses

5.

Development of technologies to promote retrofitting
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Regulatory Framework
The BSL is the primary law concerning building codes and was first enacted in 1950.
Through the experiences and lessons learned from different disasters, the Building Standard
Law was revised in 1981. Figure8 illustrates the regulatory framework in Japan.

Other laws

concerning building constructions and regulatory procedures are shown in the figures 9 and
10.

Figure 8, Regulatory Framework in Japan, Source: Tomohiro, HASEGAWA, 2013Land use
From the viewpoint of urban environment and also for the purpose of preventing theproximity of buildings that differ widely in their use:
1.

There are 12 types of land‐use zones are designated by the local governments in theirrespective administrative areas, based on the City Planning Law; and2.

The use of buildings is restricted by the BSL according to land use zones.

3.

Twelve types of land‐use zones and their purposes of are shown in the next page. For
example, in a zone that is defined as a Residential Zone, the construction of factories andother facilities that would lead to the deterioration of the living environment is restricted,
while the construction of schools and hospitals is restricted in areas that are designated as
Industrial Zones.

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Mainstreaming DRR into National Development Planning

Finance
Housing finance in Japan is predominantly generated from the deposit-taking system,
whether by commercial banks or public-sector lending institutions. The largest single
mortgage lender makes loans at a lower rate of interest about 5.4 percent (Seko, 1994).
whereas the national budget for disaster management is approximately 1.2 trillion yen (Initialbudget 2010FY).

LabourIn Japan buildings builds by private companies who received licence. The majority of
constructing company benefits skilled work force.

During process of construction regularinspections makes by authorities in terms of design, administration and infrastructure.
Construction Building must meet Building Standard Law. After occupancy Periodic
inspection report conducted by experts and checked by the local government.

Figure 9, Regulatory procedures in Japan, Source: Tomohiro, 2013

Building materials
Common building structures in Japan are: wooden (one or 2 stories), Two-by-fourconstruction is an alternative to the native style, Large buildings are typically constructed ofreinforced concrete Structural steel products are Japanese Industrial Standards( JIS) standard
products.
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Japan Architectural Standard Specification and Commentaries(JASS) also presents standard
quality levels for buildings of normal size and form constructed in Japan, basically describes
widely used construction methods and technologies, and further clarifies noteworthy items.

Figure 10, Provisions related to construction administration. Source: Tomohiro, 2013

In construction Building materials must meet technical requirements if the codes havespecific mandatory standards that apply. It can be basically confirmed through either method
below that they meet technical requirements.
I.

To satisfy one of the specifications provided by the prescriptive provisions, including
ministerial Notifications, JIS or JAS (Japan Agricultural Standards)

II. To be approved by the Minister (It is needed to be evaluated by one of the DesignatedEvaluation Bodies prior to approval by the Minister.)III. Innovative products, which do not satisfy one of the specifications provided by theprescriptive provisions, can be used if they are approved by the Minister through theprocess of (ii) above

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Case studies
Great Hanshin-Awaji Earthquake
The earthquake occurred at 5:46 am, January 17, 1995, the magnitude was 7.2 on the Richterscale, 6 and 7 on the Japanese scale in different areas .Due to earthquake number of 82,000
houses was destroyed.

Temporary and Permanent Reconstruction
After earth quake government had done two stages: Temporary Housing and Permanent
housing. In the emergency phase number of 32,346 units as a temporary housing wasconstructed. For Housing Reconstruction the Government planed 5 years program.
Emergency Three-Year Plan for Housing Reconstruction (1995-1997) ,(2) Restoration Plan
(1996-1997) that The elderly and low-income earners accounted for a large proportion of thedisaster victims and finally Three-Year Housing Plan (1998-2000) that based on thefollowing measures had done:
1. Smooth transition from temporary housing to permanent housing
2. Provision of public housing and support for daily living for the disaster victims
3. Housing and urban development towards the coming 21st century
4. Cooperation with the welfare division, housing and urban development based on theregional characteristics and utilization of the resources of Kobe specially designatedPublic Reconstruction Fund:To provide funds for various activities for rapid recovery from the Great Hanshin-Awaji
Earthquake, to provide financial assistance to earthquake victims and help them rebuild theirlives, to facilitate the implementation of a long term stable overall recovery plan for theregion struck by the earthquake, and to recapture the damaged areas.
 Basic Assets (Donations): 100 million yen
 Management Assets (Work Funds): 2.29 billion yen

The cost for the restoration and reconstruction after the Great Hanshin–Awaji Earthquake was
JPY16.3 trillion (Okada, 2011,).

Urban Planning
Procedures for Community Development in view of Seismic Disaster Restoration
Employment of “2-Stage City Planning” Method:
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1. 1st Stage of city planning
Government defines regions and urban facilities to be improved
2. 2nd Stage of city planninga.

Residents have talks and determine roads and parks necessary for improvement of
the region by themselves.

b. Government draws up city planning and restoration project plan according toproposal submitted by residents:


For Moving to Second Stage Community Development with Residents
anticipation Desire of victimized residents

Restoring community that ensures safe and comfortable living

Improving urban infrastructure (roads and parks)

Constructing durable houses

Drawing up plan with residents

Equal burdens on residents and landowners

Infrastructure:
All lifelines were restored within three months. The reason that such fast restoration was
possible was because of the input of a large number of aid organizations and teams. As aresult, the system in the initial stage of emergency response has been reviewed and mutual
assistance agreements have been concluded. (The Office of the10th Year Restoration
Committee, 2005)

Great East Japan Earthquake
The earthquake was happened off the coast of Sanriku at 14:46 on March 11, 2011. That was
the largest ever earthquake on record in Japan (Magnitude 9.0/ Maximum seismic intensity of
7). Around 126,631 Building Completely destroyed. 10 years planned for the reconstruction
period, with the first 5 years being the intensive reconstruction period for swift recovery.
Support for reconstruction:
 Establish a system of “Special Zones for Reconstruction”
 Establish easy-to-use grants for the conduct of reconstruction projects planned by local
governments Collaboration with the private sector for reconstruction (Agency Reconstruction, 2013)
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Outline of the Special Zones for Reconstruction
A package of special measures relevant to regulations/procedures, taxation, financial andfiscal assistance as well as land use restructuring has been done.

Land Use Restructuring
 Special arrangements for land use restructuring beyond existing land use frameworks(urban area, farming area, forests, etc.)
 Relaxed requirements for floor area ratio for buildings construction aimed at evacuationfrom tsunami(Agency Reconstruction, 2013)

BudgetBudget for reconstruction is conducted intensively from 19 trillion yen to 25 trillion yen(Takumi, 2014)

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Finding and Suggestions
To mainstream DRR into Housing sector, all housing related interventions have to beconsidered for the effect of natural hazards taking the followings into account:
1.

Institutional Framework,

2.

Policy Framework,

3.

Legal Framework,

4.

Regulatory Framework,

5.

Land use,

6.

Housing finance,

7.

Labour,8.

Building Materials and9.

Infrastructure

Based on the lessons learned from Japan in mainstreaming DRR into housing sector, andaccording to the situation of Iran, the following recommendations are proposed: Creating awareness Gaining political commitments and support
 Promoting public awareness on DRR through media coverage Developing necessary laws, policies and strategies in different aspects of housing Developing policies, regulations, guidelines related to housing sector concerning
finance, land, labour, building materials and infrastructure Reassessing policies, regulations and role of agencies associated to housing sector interms of DRR
 Promoting the observance of the National Building Code.
 Carrying out estimation of annual disaster losses (direct and indirect) related toinvestments and project activities.
 Systematic inspection from design to occupancy.
 Allocating additional financial mechanism to mainstream DRR in housing sector.
 Designing the infrastructure facilities with resilience features.
 Regular review of building codes to incorporate DRR and other features.
 Developing regulations related to quality of building materials.
 Promoting the use of local, environmental friendly and durable building materials.
 Allocating subsidies for earthquake resistant retrofitting.
 Designing courses and short term training programs for Engineers, Architects,
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construction labours to upgrade their skill on DDR.
 Administering of public housing sector by qualified companies.
 Developing financial products for encouraging risk transfer through insurance Facilitate training for skill up-gradation of construction workers
 Administration of special programme for Capacity Building of Engineers inEarthquake Risk Management
 Risk based land use planning for an effective tool for managing disaster risk andprotecting developmental gains.
 Making Temporary housing just similar to permanent housing declines speed ofrecovery and reconstruction.
 Involving local people in the land use planning for reconstruction after disasters.
 Using the opportunity made by disasters to make a safer city: eg. modification ofstreets, alleys, etc.
 Developing reconstruction plan based on geographic situation of affected sites.
 Regular review and examination of reconstruction after disasters.
 Considering the lessons learned from the past reconstructions.
 In reconstruction after disasters, haste is not always beneficial in drafting
reconstruction plans.

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Mainstreaming DRR into National Development Planning

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earthquake case.

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