Asian Disaster Reduction Center Visiting Researcher Program – FY2022

Submitted by:
Mr. Pravin Bhagwantrao Dhat
Assistant CommandantNational Disaster Response Force, Government of 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 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.

Contents
Acknowledgement

4

1.

5

Introduction

1.1.

Background of the Research

5

1.2.

Objective of the Research

6

1.3.

Significance of the Research

62.

Methodology

7

2.1.

Data collection and Analysis

7

2.2.

Study Area

7

2.3.

Scope and Limitations of the Research

7

3.

Disasters in Japan

8

3.1.

Disaster Risk Profile of Japan

8

3.2.

Major Natural Disasters in Japan

11

4.

Disaster Management System in Japan

14

4.1.

Disaster Management Laws

14

4.2.

4.3.

4.1.1.

Disaster Countermeasures Basic Act 1961

15

4.1.2.

Acts on Response to Disasters

16

Institutional Setup

17

4.2.1 . The Cabinet Office17

4.2.2 . Central Disaster Management Council

17

Disaster Management Planning System

19

4.3.1 . The Basic Disaster Management Plan

19
19

4.4.
5.

4.3.2.

Community Disaster Management Plan

19

4.3.3.

The Business Continuity Plan of Central Government

20

White Paper on Disaster Management

21

Early warning systems

22

5.1.

Observation, Forecasting, and Warning of Disaster Risks

22

5.2.

Five Alert Levels

22

5.3.

National Early Warning System (J-Alert)

23

5.4.

Disaster Information Sharing System (L-Alert)

24

6.

Information and Communications Systems

25

6.1.

Central Disaster Management Radio Communication Network

25

6.2.

Integrated Disaster Management Information System

26

6.3.

Information Support Team (ISUT)

26

7.

Emergency Response to Disasters

27

2

7.1.

Outline of Disaster Emergency Response

27

7.2.

Wide Area Support Mechanism

27
28

7.3. Coordination between National government and local public entities

29

7.4.

29

8.

Disaster Response Agencies
7.4.1.

Fire Service Organizations30

7.4.2.

National Police Agency

30

7.4.3.

Japan Self Defense Forces30

7.4.4.

Japan Coast Guards

31

7.4.6.

Disaster Medical Assistance Team (DMAT)

31

7.4.5.

BOKOMI

32

Disaster Reduction Drill / Human Resources Development

33

8.4.

Disaster Reduction Drills and Exercises

33

8.5.

Human Resources Development

33

9.

Measures for Support to Disaster-Affected People

34

9.4.

Measures for Residents in Need of Assistance in Evacuation

34

9.5.

Ensuring Satisfactory Living Conditions at Shelters

34

9.6.

Provision of Condolence Grant to Disaster Affected People

34

10.

Disaster Management Base Facilities

35

11.

Learnings for India

37

12.

Conclusions

38

References

39

3

Acknowledgement
When it comes to disaster management, Japan has remarkable best practices that can offer insights
to other countries. Therefore, it was a great opportunity to be a part of the Visiting Researcher
Program conducted by Asian Disaster Reduction Center (ADRC), Japan. I sincerely thank the National
Disaster Response Force, Ministry of Home Affairs, Government of India and the ADRC for accepting
my research plan and giving me the opportunity to participate in the ADRC Visiting Researcher
Program FY-2022.
I am grateful to Deputy Director (Research) Ms. Kodama Miki, our VR Program coordinator andSenior Researcher Mr. Gerald Ejem Potutan, my mentor for their continuous guidance and unwavering
support during the entire research program.

I thank Chairman ADRC Mr. Masanori Hamada, Executive Director Mr. Sasahara Akio, Research
Director Mr. Arakida Masaru, Senior Researchers Ms. Nakamura Akiko, Ms. Shiomi Yumi, Mr. Ikeda
Makoto, Mr. Yamaguchi Naoki, Mr. Nakayasu Yusuke, Researcher Ms. Tatebe Chihori, AssistantResearchers Ms. Fujimoto Ayako, Ms. Terasaka Kazuko, Senior Administrative Manager Ms Horiike
Mie, Administrative Manager Ms. Fujinaka Junko and Ms. Tanaka Tomomi for their support during the
program. I would like to thank the Cabinet Office, Japan, Hyogo Prefecture Government office, Kobe
City Fire Department, JICA, Nagoya University, Kyoto University, other government bodies, DRR
organizations and the private entities in Japan. I am grateful to many DRR experts from various
institutions we visited, notably Prof. Nishikawa Satoru and Prof. Binay Kumar Mishra, for sharing theirvaluable time, knowledge, and expertise.
Finally, I would like to express my appreciation to my fellow visiting researchers Ms. Ani Gevorgyan(Armenia), Ariuntungalag Batjargal (Mongolia), Ms. Mi Mi Tun (Myanmar), Mr. Jamali Asghar Ali(Pakistan), Ms. Sophita Thanyalakmetha (Thailand) and Ms. Thai Minh Huong (Vietnam) for their greatcompanionship and making the entire journey enjoyable. I also thank all those who have helped me
directly or indirectly in my research and during my stay in Japan.
It was a great experience that broadened my knowledge of disaster management and enabled me
to explore Japan's rich culture and traditions. I hope that the insights and knowledge gained during
this program help me and my organisation in improving the disaster management system.

4

1.

Introduction

1.1. Background of the Research
Asia-Pacific is the most disaster-prone region in the world. The region accounts 45 percent of theworld’s natural disasters and more than 75 percent of its population is affected. Different countries due to their physiographic, climatic, demographic and economic conditions - are vulnerable to a wide
range of natural as well as human-induced disasters/emergencies.
Heightened vulnerabilities to disaster risks can be related to increasing population, urbanization,industrialization, development within high-risk zones, environmental degradation, and climatechange. A growing number of people and assets are constantly exposed to the aggravated impacts
and increased frequency of disasters.
Whenever a disaster strikes, it is a major challenge to deal with the response and relief activities.
The response of the first responders eventually relates to the preparedness of various stakeholders
involved. It is therefore very important to strengthen the disaster management setup at preparedness
and response level.
There are different systems in different countries to respond to the disasters. Disaster response
includes all the activities which are taken up after the occurrence of a destructive event or a disaster.
Preparedness for disaster response can be undertaken before the disaster happens to reduce impacts.
Preparedness for response starts with risk assessment, forecasting, early warning systems, emergency
information and communication system, contingency planning, stockpiling of supplies and resources,
and training for building emergency response capacity among stakeholders and community. The
response further includes specific activities like evacuation procedures, search and rescue, hospital/
medical aid, food and shelter, and logistics.
There are certain problem areas in the response preparedness like inadequate policy direction, lackof coordination, unavailability of real-time information, lack or unclear allocation of resources, andgaps in public awareness and training among disaster managers. However, a well calibrated response
mechanism saves lives and strengthens people’s ability to reduce the impact of disasters.

5

1.2. Objective of the Research
Japan has a long history of dealing with natural disasters, including earthquakes, tsunamis,
typhoons, and volcanic eruptions. This history has influenced Japan's disaster preparedness culture,policies, and infrastructure. Disaster response in Japan is characterized by strong cooperation
between the government agencies, such as the Japan Meteorological Agency and the Fire and Disaster
Management Agency, as well as the community organizations, including neighborhood associationsand volunteer groups. Japan has invested heavily in disaster prevention and mitigation measures, suchas building earthquake-resistant structures, developing early warning systems, and conducting regulardisaster drills. Despite the extensive preparation, disasters can still occur, and Japan has experienced
several major disasters in recent years, including the 2011 Great East Japan Earthquake and Tsunami.

Learning from Japan's experience would widen the scope of understanding and also help in better
planning of future initiatives in the field of disaster management
The objective of the research is to study the preparedness for disaster response in Japan in thefollowing context:a) Institutional setup for disaster management at various levelsb) Forecasting and early warning systems for disastersc) Response mechanism in the aftermath of a disaster1.3. Significance of the ResearchThis research is expected to provide a knowledge base for addressing the gaps in preparedness fordisaster response with reference to:a) Understanding and improving the forecasting and early warning systems for disastersb) Helping to improve the response mechanism in the aftermath of a disaster
It will help other Asian countries to understand the Japanese system of disaster response and help
them to improve on their capabilities by learning from it.

6

2.

Methodology

2.1. Data collection and Analysis
Two main methods of data collection, primary and secondary data collection were used during thisresearch. The Primary data collection was done directly from the source, through lectures,interactions, discussions, open-ended questions, observations, case studies, etc. which is basicallyqualitative in nature. This was done during the lectures at ADRC, visits of various institutions in Japanand during the conferences attended during this program. The secondary data was obtained throughvarious literature on disaster management in Japan through government reports, academic
publications, databases, publications available at ADRC as cited in the references including internet
sources.
The data analysis is based on the information obtained through various sources and is basicallyopinion based. No specific data analysis tool was used during this research.
2.2. Study Area
The research topic focuses on the disaster response system in Japan. The study areas relevant to
the research topic were selected by ADRC. Visits to the areas were conducted during the research
program. Specific lectures were also organised based on the research topic.
2.3. Scope and Limitations of the Research
The scope of the research topic is very wide and the availability of data on the same is also huge.
Hence, only a limited part of the information has been collected, analysed and presented in this report.
There are certain limitations in the report as only specific activities which are directly related to theresearch topic are covered, leaving other activities which are indirectly connected to the topic.

7

3.

Disasters in Japan

3.1. Disaster Risk Profile of Japan
Japan is an archipelagic country stretched over 3,000 km (1,900 mi) along the Pacific coast of East
Asia. It is surrounded by the Pacific Ocean, the Sea of Okhotsk, the Sea of Japan, and the East China
Sea. The territory of Japan comprises four large islands of Hokkaido, Honshu, Shikoku, and Kyushu,
and other smaller islands with a total land area of about 378,000 square kilometers. It is a
mountainous country, with two-thirds of its territory covered with forests. Most areas have atemperate climate with four distinct seasons, although Okinawa in the south is subtropical, andHokkaido in the north is subarctic. Therefore, it has great diversity of plant and animal life.

Japan is highly prone to various natural disasters. The most frequent natural hazards areearthquakes, tsunamis, typhoons, volcanic eruptions, floods and landslides. Occasional torrential rains
and heavy snows are another challenge for the country.
Japan is located in a very geologically active region known as the Pacific Ring of Fire, which ischaracterized by frequent earthquakes, volcanic activity, and tsunamis. This is because the country
sits at the intersection of four tectonic plates - the Eurasian Plate, North American Plate, Pacific Plate,and Philippine Sea Plate. These plates are constantly moving and interacting with each other, causing
seismic activity in the region. The movement of these plates also causes volcanic eruptions, as magmafrom deep within the Earth is pushed up to the surface. With around 110 active volcanoes, it is one of
the most volcanically active countries in the world. In addition to earthquakes and volcanoes, Japan is
also prone to tsunamis. These can be triggered by undersea earthquakes, as well as landslides or otherdisturbances in the ocean.

Figure 1. Ring of Fire8

Figure 2. World distribution of tectonic plates and earthquake hypocenters

Figure 3. Distribution of active volcanoes in Japan9

Japan is also subject to extreme weather conditions, including seasonal rain fronts, typhoons, andheavy snowfall. The rainy season, or "tsuyu", typically occurs from late May to mid-July, bringing heavy
rainfall and sometimes causing floods and landslides. Typhoons, or tropical cyclones that form over
the warm waters of the Pacific Ocean are also a common occurrence in Japan, particularly between
May and October. These storms can bring strong winds, heavy rainfall, and storm surges, which canlead to flooding and sediment disasters such as debris flows, landslides, and slope failures. August and
September are typically the peak months for typhoon activity. Heavy snowfall is common on the Sea
of Japan side of the country during the winter months, particularly in areas such as Niigata andHokkaido. This can lead to transportation disruptions, power outages, and other problems.
The average precipitation in Japan is 1,718 mm/year, higher than the world average (880mm/year). Local heavy rain and torrential shower have been occurring frequently. Comparing to therivers in the continents, the rivers in Japan are short and steep, so rain fallen in the watershed flows
out rapidly causing flooding in the plains and the bottom lands.

Figure 4. River gradient in Japan and the world

Fire risk in Japan is also high and there are several factors that contribute to this risk. The close
proximity of buildings in densely populated areas is a factor that increases the risk of fire in Japan.
Fires can easily spread from one building to another, especially in areas with narrow streets and alleys.
Tsunamis and earthquakes can also lead to large-scale fires in Japan. When buildings andinfrastructure are damaged by these disasters, gas lines and electrical wires can be severed, leading
to gas leaks and electrical sparks that can ignite fires. Japan's highly developed chemical and hightechnology industries also pose a significant fire risk. These industries often use hazardous materials
and produce large amounts of heat and sparks, which can lead to fires and explosions.
Japan has a large forested area that cover around 70% of its total land area. Forest fires can becaused by lightning strikes, but they are often caused by human activities such as campfires, cigarettebutts, and agricultural burning. These fires can spread quickly, especially during the dry season insummer.
When compared to the World, Japan was the site of 9% (5 of 56) of the meteorological disasters
from typhoons, flooding, and other causes, and 16% (9 of 55) of the earthquakes and tsunamis since
1900 AD.

10

Figure 5. Disaster comparison with the world

3.2. Major Natural Disasters in Japan
Every year there is a great loss of people's lives and properties in Japan due to natural disasters.
Largescale typhoons, earthquakes and Tsunamis have caused extensive damage and thousands ofcasualties.

11

Figure 6. Major natural disasters in Japan since 1945

12

Typhoon Ise-wan was an exceptionally intense and one of the most destructive typhoons inJapanese history. It struck the Ise Bay region on the southern coast of Honshu island, on Sept. 26,
1959, and wreaked havoc in the city of Nagoya. The storm killed more than 5,000 people, left an
estimated 1.5 million people homeless, and injured almost 39,000 people.
The Great Hanshin Awaji Earthquake of a 7.3 magnitude hit Awaji island of Hyogo Prefecture inWestern Japan on 17 January 1995. It killed 6,434 people, injured 43,792 people, destroyed 104,906
houses, half destroyed 144,274 houses, and partially destroyed 390,506 houses. The area of 835,858
square meters was burnt down by the fires that broke out along with the earthquake.
A magnitude 9.0 Great East Japan earthquake hit northeastern Japan on 11 March 2011, recording
the largest earthquake hit in Japan. Its epicenter was located in the coast of Sanriku and its epicentral
area stretched from the coasts of Iwate Prefecture to Ibaraki Prefecture. Massive shakes wereobserved particularly in eastern Japan, including a Japanese intensity scale of 7 registered in the northof Miyagi Prefecture. Furthermore, this trench-type earthquake occurred near the boundary of the
Pacific Plate and the plate beneath the Tohoku area, triggered seafloor movements and generated a
massive tsunami. It killed 15,870 people, 2,814 people went missing and 6,114 people were injured
and 129,472 buildings totally collapsed, 255,977 half collapsed, and 702,928 partially collapsed.
With the progress of society's capabilities to respond to disasters and mitigate vulnerabilities todisasters by developing disaster management systems, promoting national land conservation,
improving weather forecasting technologies, and upgrading disaster information communications
systems, disaster damage has shown a declining tendency. As such, natural disasters remain amenacing threat to the safety and security of the country.

Figure 7. Number of fatalities and missing persons due to natural disasters

13

4.

Disaster Management System in Japan

4.1. Disaster Management Laws
Japan has established a comprehensive legal framework for disaster management, including laws
covering all phases of disaster management. These laws include seven basic acts, eighteen disasterprevention and preparedness acts, three disaster emergency response acts and twenty-three disasterrecovery and financial measures acts. The acts and other legislations address all the phases of disasterwith clearly defined roles and responsibilities among the national and local governments.

Figure 8. Disaster management laws in Japan

14

4.1.1.

Disaster Countermeasures Basic Act 1961

The immense damage caused by Typhoon Ise-wan in 1959 led to the enactment of the Disaster
Countermeasures Basic Act in 1961, which formulates a comprehensive and strategic disastermanagement system. It is considered a national priority to protect national land as well as citizens ’lives, livelihoods, and property from natural disasters.
There have been constant revisions and amendments in the Basic Act on Disaster Management
since its first enactment, and with lessons learned from the Great East Japan Earthquake, provisions
were added for enhancement of the measures concerning support activities mutually done by local
governments in 2012 and the measures for ensuring smooth and safe evacuation of residents andimproving protection of affected people in 2013. Measures against unattended cars in order topromptly clear them from the roads for emergency vehicles were added in 2014. In 2021, in order toensure smooth and rapid evacuation in the event of a disaster and strengthen the implementation
system for disaster measures, evacuation information was reviewed, individual evacuation plans werelegalized, and measures in the regulations concerning acceptance of residents for region-wide
evacuation were stipulated. The government has also taken measures such as making it possible toestablish the National Disaster Management Headquarter at the stage of threatening disaster.

Figure 9. Outline of the Basic Act on Disaster Management154.1.2.

Acts on Response to Disasters

Out of the different acts related to Disaster management, The Disaster Relief Act (1947), Fire
Services Act (1948) and Flood Control Act (1949) are the ones focusing on response to the disasters.
The Disaster Relief Act of 1947 provides a legal framework for the Japanese government to provide
emergency relief in the event of a disaster, and it outlines the roles and responsibilities of various
government agencies, local governments, and non-governmental organizations in the disaster
response effort. It also emphasizes the importance of cooperation between the government, local
communities, and the general public in disaster preparedness and response, and it provides guidelines
for the protection and support of disaster victims.
The Fire Services Act of 1948 regulates fire service and fire defense in Japan. It sets out the roles
and responsibilities of the fire service and the legal framework for fire prevention, firefighting, anddisaster response in Japan. It also establishes the Fire and Disaster Management Agency (FDMA),
which is responsible for coordinating fire and disaster management across the country.
The Flood Control Act of 1949 is a law that was enacted to prevent and control floods in the
country. The Act outlines the roles and responsibilities of various government agencies, local
governments, and other organizations in flood control efforts, and it establishes a legal framework forflood control measures such as the construction of levees, dams, and other structures. It alsoemphasizes the importance of disaster preparedness and response, and it encourages thedevelopment of comprehensive flood control plans that involve local communities and otherstakeholders.

164.2. Institutional Setup
Japan has a well-established disaster management system that is implemented through a 3-layered
approach, consisting of the national, prefectural, and municipal levels.
At the national level, the Cabinet Office plays a leading role in disaster management by establishingpolicies, coordinating with other ministries and agencies, and providing financial support to theprefectural and municipal governments. The Prime Minister also serves as the head of the Central
Disaster Management Council, which is responsible for overseeing national disaster management
policies and operations.
At the prefectures and local municipalities, the Prefectural and Municipal Disaster Management
Councils led by the respective Governors and Mayors are established with the members ofrepresentatives of local government organizations including police and fire management department,
and designated local public corporations. Implementation of disaster risk management measures isbased on the Local Disaster Management Plans drafted by the Councils. They are also responsible forcoordinating disaster response and recovery efforts within their jurisdictions.
4.2.1.

The Cabinet Office

The Cabinet Office of Japan is "the place of wisdom" that provides strategic advice and support to
the Cabinet and the Prime Minister. It was established in 2001 with the aim of enhancing thecoordination and integration of government policies and initiatives. It plays a critical role in disastermanagement and emergency response.

Figure 10. Cabinet Office and related Ministries

4.2.2.

Central Disaster Management Council

The Central Disaster Management Council is an advisory body established in 1961 under theDisaster Countermeasures Basic Act to ensure the comprehensiveness of disaster risk management
and to discuss matters of importance with regard to disaster management. The council consists of thePrime Minister, who is the chairperson, Minister of State for Disaster Management, all ministers,
heads of major public institutions and experts.

The Cabinet Office is the secretariat for this Council and the Minister of State for Disaster
Management has been assigned as the Minister State for Special Missions and is assisted by the17Director-General for Disaster Management his mandate being to handle planning and central
coordination with regard to matters relating to basic policy on disaster risk reduction, and mattersconcerning disaster countermeasures in the event of a large-scale disaster.
The Council decides the national government’s disaster management policies which are carried out
by respective ministries and agencies, accordingly. In the event of a large-scale disaster, the Cabinet
Office is engaged in collection and dissemination of accurate information, reporting to the Prime
Minister, establishment of the emergency activities system including the Government’s Disaster
Management Headquarters, and overall wide area coordination concerning disaster response
measures.

Figure 11. Central Disaster Management Council

Figure 12. Outline of the Disaster Management System18

4.3. Disaster Management Planning System
a. Basic Disaster Management Plan: This plan is the highest-level plan and constitutes the basis fordisaster management activities prepared by the National Disaster Management Council based on the
Disaster Countermeasures Basic Act. It is prepared by the Central Disaster Management Council andis the plan for disaster management activities in the country.
b. Disaster Management Operation Plan: This is a plan prepared by each designated governmentorganization and designated public corporation based on the Basic Disaster Management Plan andshould provide measures to be undertaken for disaster prevention pertaining to the business of adesignated administrative organ.
c. Local Disaster Management Plan: This is a plan prepared by each Prefectural and Municipal
Disaster Management Council, subject to local circumstances and based on the Basic Disaster
Management Plan.
d. Community Disaster Management Plan: This is a “disaster management activities” plan at thecommunity level which is established by residents and businesses jointly on a voluntary basis.
4.3.1.

The Basic Disaster Management Plan

It is a comprehensive and long-term disaster management plan forming a foundation for theDisaster Management Operations Plan and Local Disaster Management Plan. It stipulates provisions
for the establishment of the disaster management system, promotion of disaster management
measures, acceleration of post disaster recovery and reconstruction measures, and promotion ofscientific and technological research on disaster management. Since its establishment in 1963, thisplan has been reviewed every year based on the Basic Act on Disaster Management and revised when
deemed necessary. Therefore, the plan was revised entirely in 1995 based on the experiences of theGreat Hanshin-Awaji Earthquake. It defines responsibilities of each entity such as the national andlocal governments, public corporations and other entities. It consists of various plans for each type ofdisaster, where specific countermeasures to be taken by each entity are described according to thedisaster management phases of prevention and preparedness, emergency response, as well as
recovery and reconstruction. Further, based on the lessons learned from the Great East Japan
Earthquake, a new chapter was created in December 2011, for Tsunami Disaster Countermeasures. In
recent years, lessons from disaster responses and developments in measures as well as responses to
the COVID-19 have been taken into account for the revisions.

Figure 13. Basic Plan for Disaster Risk Reduction

4.3.2.

Community Disaster Management Plan

In order to encourage and promote proactive disaster management activities among residents(including both individual and corporate residents) in a given area based on the spirit of self-help andmutual help, and to enhance the disaster management capabilities of the area in a bottoms-up
manner, it is stipulated that a community disaster management plan, featuring the community leveldisaster management activities, may be prescribed in the municipal disaster management plan. In
developing a community disaster management plan, more active and proactive participation of the19area residents is necessary at an early stage of such development. As such, it is stipulated that thearea residents may jointly make a proposal (proposed plan) to the municipal disaster management
council that a community disaster management plan be stipulated in the municipal disastermanagement plan. Thus far, the plans reflected in the community disaster management plans are thatof 30 prefectures, 73 municipalities and 901 communities (as of April 1, 2020).
4.3.3.

The Business Continuity Plan of Central Government“The Business Continuity Plan of Central Government (Measures against Tokyo Inland Earthquake)
stipulates the executive systems and work environment essential to continue the governmental
services smoothly in the event of the Tokyo Inland Earthquake occurring and in case the political,
administrative and economic core functions may be seriously affected by the Earthquake. Regarding
the executive system, the Plan stipulates that, upon the Tokyo Inland Earthquake occurring,
government staff including those in charge of the administrative management gather at the central
government buildings and stay there for a week to continue the emergency priority operations inrotation, so that such emergency priority operations will be smoothly carried out. With regard to thework environment, it stipulates that the government buildings be constructed to be earthquake
resistant with a work environment to continue the emergency priority services and administrative
work in case of emergency. Based on this Plan, central government ministries and agencies shall revise
the business continuity plans of each ministry and agency, identify services that need to be continued
under their responsibility in case of emergency as the emergency priority operations, and they workout a system and environment necessary to carry those out. It is planned that those business
continuity plans developed by respective ministries and agencies be reviewed and evaluated byexperts, and that these plans as well as the Plan itself be revised based on the result of such evaluation.
In the same manner, the systems for business continuity of local governments in the event of a largescale disaster are being developed and the Government is to give support to them by way of
formulating guidelines.

Figure 14. Business Continuity Plan of the Central Government20

4.4. White Paper on Disaster Management
The White Paper on Disaster Management in Japan is an annual report published by the Japanese
government that provides a comprehensive overview of the country's disaster management policies,
strategies, and activities. The White Paper on Disaster Management has its origins in the Disaster
Countermeasures Basic Act of 1961. The act established the basic framework for disaster managementin Japan, and called for the creation of a national disaster management plan and the publication of anannual report on disaster management.
The first White Paper on Disaster Management in Japan was published in 1962, and since then, it
has been published annually by the Cabinet Office of Japan. The purpose of the white paper is toprovide a comprehensive overview of the country's disaster management policies, strategies, andactivities, and to promote public awareness and understanding of disaster management issues. The
white paper is an important tool for monitoring and evaluating Japan's disaster management efforts,
and for identifying areas where improvements can be made. It also serves as a valuable reference forother countries and organizations that are interested in learning from Japan's experience andexpertise in disaster management.
In recent years, the relevance of the White Paper on Disaster Management in Japan has beenheightened by a number of high-profile disasters, including the Great East Japan Earthquake andTsunami in 2011, which highlighted the importance of effective disaster management and the needfor ongoing efforts to improve disaster resilience.
The white paper is also relevant in the context of the growing global concern about the impact ofclimate change on the frequency and intensity of natural disasters. As a country that is highly
vulnerable to natural disasters, Japan's experience and expertise in disaster management can provide
valuable insights and lessons for other countries that are facing similar challenges. It is a valuable
resource that provides insight into Japan's disaster management efforts offers important lessons forother countries and organizations that are working to improve disaster resilience and reduce theimpact of disasters on communities and societies.

21

5.

Early warning systems

5.1. Observation, Forecasting, and Warning of Disaster Risks
Observation systems that can accurately detect disaster risks in real-time have been progressively
improved for establishing early warning systems, supporting early evacuation and response activities,
and thereby reducing disaster damage. Organizations involved in disaster reduction, especially theJapan Meteorological Agency (JMA), use 24-hour systems to carefully monitor various natural
phenomena and weather conditions. In addition to observed information, the JMA issues a wide rangeof forecasts, warnings and advisories. Furthermore, in August 2013, it started to issue “Emergency
Warnings” in case of a severe disaster far exceeding the past level of issuing warnings such as heavy
rain emergency warning and heavy snow emergency warning.
5.2. Five Alert Levels
When a disaster occurs, the government issues various disaster information. Among these, proper
understanding of the evacuation information issued by the municipality is particularly important. The
Five Alert Levels, which has been implemented since the 2019 flood season, is informed by lessons
from the 2018 Japan floods and provides evacuation information as an intuitive guidance for actions
residents should take. Eg. With Alert Level 3: “evacuation of the elderly, etc”, the elderly, etc. evacuatefrom risk areas. With Alert Level 4: “evacuation instruction,” all persons evacuate from risk areas.
With Alert Level 5: “emergency safety securement,” the disaster has already occurred, and goingoutside to designated emergency evacuation sites may be dangerous. Therefore, actions such as
moving to the safer upper floors or to a room that is furthest away from the mountain to protect one’s
life, would be necessary.

Figure 15. Five alert levels

225.3. National Early Warning System (J-Alert)
J-Alert is a system which can send emergency information such as warnings of ballistic missile
attacks, earthquakes, tsunami and any other bad weather through an artificial satellite and theterrestrial line to prefectures, cities and towns. It automatically activates municipal disastermanagement radio communication systems and sends information to residents immediately without
manpower.
It is usually used by the Meteorological Agency to transmit weather information for risk reduction
such as weather warnings, information about an earthquake, a tsunami, a volcano eruption, and anyother natural disaster. The Cabinet Secretariat sends information about ballistic missiles, air raids,
guerrilla attacks, terrorism, and anything else the general population would need warning of. It is done
through the transmission facilities of the Fire Agency to prefectures, cities and towns of the country.
Nowadays there is another transmission route apart from the one through municipalities, which sends
J-alert information to individual cell-phone users by email (i.e. in the form of area mails or emergency
alarm mails) from the government through cell-phone service providers. Smartphones sold in Japan
come with "Area email" and "Emergency alert email" installed in and are capable of receiving a JALERT.

Figure 16. Outline of the J-Alert system

23

5.4. Disaster Information Sharing System (L-Alert)
L-Alert is a common platform by which local municipalities send necessary information to local
residents through various media such as broadcasting societies, television, radio, mobile phones,
portal sites and application companies immediately and effectively when a disaster occurs. It was
launched in June 2011, and since then it has been used by a lot of information senders. All of theprefectures and metropolis have started operating L-Alert by April 2018, and it plays a certain role as
an information infrastructure such as sending reports of the status of the evacuation instruction
issuance immediately thus contributing to the smooth provision of information to local residents intimes of disaster.

Figure 17. Outline of the L-Alert system

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6.

Information and Communications Systems

6.1. Central Disaster Management Radio Communication Network
The central disaster management radio network ensures mutual communication among disasterprevention related organizations nationwide in the event of a large-scale disaster such as anearthquake. In central Tokyo, the Prime Minister's Office, Central ministries, designated public
institutions, and the Tokyo metropolitan government are connected by terrestrial micro wireless lines.
In addition, these organizations are also equipped with portable satellite communication equipment
in case of the Tokyo Inland Earthquake. On the other hand, designated public institutions located inareas other than central Tokyo are connected by satellite communication lines. In the event of adisaster, this system will be used for collecting and sharing information between central ministries,
prefectures and designated public institutions, and for video conferencing between the affected
prefectures and the prime minister's office. In normal times this system is used for exchanging
information such as coordinating disaster-related work and for training in preparation for a disaster.

Figure 18. Outline of the Central Management Radio Communication Network25

6.2. Integrated Disaster Management Information System
Based on the experiences of the Great Hanshin-Awaji Earthquake, the Cabinet Office has anintegrated disaster management information system to ensure the quick assessment of damage aswell as rapid and appropriate decision-making. The information system consists mainly of the damage
estimation function (Disaster Information System, or DIS) and information sharing function (Platform,
or PF). After the occurrence of an earthquake, the damage estimation function (DIS) immediately
estimates the human/building damage due to the earthquake and tsunami. This is instrumental inunderstanding the scale of damage during the initial response phase and informs the government’s
decision-making for dispatch of personnel to affected areas. The information sharing function (PF)visualizes and shares various disaster information collected from disaster management relatedorganizations such as related ministries and agencies as well as infrastructure companies (including
data on weather, community lifelines, evacuation, traffic and trains as well as satellite images) on amap. It thereby facilitates the assessment of damage and drafting of countermeasures at the
government’s Disaster Management Headquarters and meetings of relevant ministries and agencies.
6.3. Information Support Team (ISUT)
During times of emergency, it is necessary to quickly collaborate with relevant organizations totake various response measures. To do so, information held by each organization about “what ishappening where,” must be amassed so that a shared understanding of the situation is possible. Thenthe strategies about “who does what” can be implemented through placement of personnel andequipment. For apt decision-making by the disaster response personnel, it is essential to visualize thisinformation on maps to systematically understand the situation. The Cabinet Office and the National
Research Institute for Earth Science and Disaster Resilience (NIED) launched as a prototype a dispatch
team called ISUT (Information Support Team) in 2018. Since 2019 the team has been in full operation.
At times of large-scale disasters, the team aggregates damage information and evacuation sites andplots this data on a map to support disaster response by administrative organizations and designatedpublic organizations. Specifically, the team provides an information aggregation website (ISUT Site) as
well as creates and shares maps for disaster response personnel on a need-basis. In addition, for
information collected by the ISUT that can be made available to the public, they are published on the
NIED Crisis Response Site (NIED-CRS) operated by the NIED. As a recent example, during the 2020
Kyushu floods, staff were dispatched to the Kumamoto Prefectural Government. The staff helped
various organizations assess the damage by supporting data collection and sharing the map producedwith the prefectural disaster management headquarters, front-line actors such as police, firefightersand self-defense forces, designated public organizations, and support staff from other local
governments.

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7.

Emergency Response to Disasters

7.1. Outline of Disaster Emergency Response
In the event of a disaster, the national and local governments quickly collect and share disasterand damage information, and secure communications to carry out effective emergency activities suchas emergency rescue and medical operations. Based on such information, local governments set up
disaster management headquarters and related organizations establish their own operation
mechanisms. The national government collects disaster information at the Cabinet Information
Collection Center 24 hours a day. When a large-scale disaster strikes, an emergency team composedof the directors-general of the respective ministries and agencies gathers immediately at the Crisis
Management Center in the Prime Minister's Official Residence to grasp and analyze the disastersituation, and report the results to the Prime Minister. Disaster Management meetings at theministerial or high-ranking senior official level are held, as necessary. According to the level of damage,the government may establish the Headquarters for Major Disaster Management (headed by the
Minister of State for Disaster Management) or the Extreme Disaster Management Headquarters(headed by the Prime Minister), to establish the policies for the disaster countermeasures, and tocoordinate various emergency measures to be taken by various organizations. Further, in order tograsp the situation in the disaster area, a government investigation team headed by the Minister ofState for Disaster Management may be dispatched, or if quick and swift actions are needed to betaken with overall coordination of emergency activities on site, the government may establish theonsite headquarters for disaster management.
7.2. Wide Area Support Mechanism
In case of large-scale disasters that exceed the response capacities of the affected local
government, various wide-area support mechanisms are mobilized by the Government which includes
the Disaster Response Units of the National Police Agency (NPA), Emergency Fire Response Teams of
the Fire and Disaster Management Agency (FDMA), Japan Coast Guard. The Self-Defense Forces arealso dispatched for emergency response activities upon request from the governor of the affected
prefecture. Also, personnel such as Disaster Medical Assistance Team (DMAT) provide medical
services to the affected people. These teams transport severely injured persons via Self-Defense
Forces vehicles and aircrafts to hospitals outside the disaster-stricken zone. In addition, thegovernment provides relief goods without awaiting specific requests from affected municipalities.
These basic necessities for the affected citizens ’lives and living environment are procured by thegovernment and delivered via emergency transportation to the affected areas in a “push-mode”
support system.

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Figure 19. Government Disaster Response Mechanism28

7.3. Coordination between National government and local public entities
In the event of a disaster occurring, municipalities will primarily be engaged in emergency
countermeasures as they are the closest to residents. Prefectural administration will get involved
when the comprehensive wider-area measures are necessary. In the event of a large-scale disasterbeyond the capability of local public entities struck by the disaster, the National government will stepin to support the local entity and coordinate mutual support among the local entities. At the national
level, the Extreme Disaster Management Headquarters or the Major Disaster Management
Headquarters is set up to promptly collect the disaster information from relevant ministries and local
public entities struck by the disaster, and overall coordination is provided for rescue, first aid, medical
and emergency supplies as necessary and appropriate. Also, an on-site disaster management
headquarters may be set up to promptly coordinate among the affected local entities and collectinformation and requests from relevant prefectures and to properly conduct the emergency response
activities in consideration to the needs for the affected people. The on-site disaster management
headquarters were set up in the affected areas in such cases as the Great East Japan Earthquake in2011, the heavy winter snowfall in 2014, the heavy rains in August 2014, and the Mt. Ontake eruption
in 2014. Through joint meetings held in collaboration with the disaster response headquartersorganized by the local entities in the affected areas, the national government and the local entities
coordinate based on their shared awareness to serve as the government’s closest one-stop contact
point for requests from the affected local entities. As such, the role of the on-site disastermanagement headquarters is increasing its importance.
7.4. Disaster Response Agencies

Figure 20. Example of Coordination between National and Local Governments

Various agencies at different levels carry out the disaster response operations depending
upon the size of the disaster. Following are some important agencies involved in the response
activities.

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7.4.1.

Fire Service Organizations

The Fire Service Organizations (FSOs) in Japan play a critical role in disaster response andmanagement, including firefighting, rescue operations, and emergency medical services. These FSOs
are organized at both the national and local levels.
At the municipal level, regular fire-fighting units and volunteer firefighters are the two main typesof FSOs. Regular fire-fighting units are staffed by full-time, professional firefighters who are employedby municipal governments. They are trained in fire-fighting, medical service and rescue activities andare usually the main responders during any kind of disaster. Volunteer firefighters, on the other hand,
are typically local residents who are trained and equipped to provide support to the regular firefighting units in times of emergency. They work on their regular jobs but are expected to respondquickly to emergencies when they occur in their communities. They have the authority and duty tocarry out fire defense activities, including firefighting, rescue, and ambulance services. They areusually the first to respond to disasters on the front line, providing initial response and support until
the arrival of the regular fire-fighting units.
At the national level, the Emergency Fire Response Teams (EFRTs) are operated by the Fire andDisaster Management Agency (FDMA). These teams are composed of highly trained professionals andare designed to respond to large-scale disasters that exceed the capacity of local FSOs. The EFRTs are
typically dispatched to disaster areas to support and coordinate with local FSOs, as well as to provide
additional resources and expertise.
Overall, the FSOs in Japan are an essential component of the country's disaster management
system, and they play a critical role in protecting lives and property during emergencies.
7.4.2.

National Police Agency

The police play a crucial role in responding to disasters by ensuring public safety, maintaining law
and order, and providing security. In the event of a large-scale disaster, the police, together with firestations and the Self-Defense Forces (SDF), play a wide range of roles, such as conducting evacuation
guidance and rescue operations for victims, searching for missing persons, conducting forensic
examinations and identity checks, taking various traffic measures, and tackling various crimes in thedisaster area. The NPA's disaster response units are responsible for coordinating police response
efforts and providing support during emergencies. Additionally, the police provide important
information to the public through various channels such as social media and public address systems.
Rapid response units are dispatched during a period of about two weeks from immediately after
the disaster occurrence and carry out disaster control activities in a short period of three days to one
week. In principle, they conduct activities without receiving any support such as the arrangement ofaccommodations and the procurement of supplies from the police in the disaster area. General units
are dispatched after a certain period of time has passed after a large-scale disaster. They conduct
searches for missing persons, vigilance and patrol, traffic control and regulations, consultation
services, initial investigation, etc., and carry out a wide range of activities based on the requests of thedisaster area over a long period of time.
The ability of the police to coordinate effectively with other agencies is essential for a successful
response to disasters. Overall, the police are an integral part of Japan's disaster response system,working closely with other agencies to ensure the safety and well-being of the public.
7.4.3.

Japan Self Defense Forces

The Japanese Self-Defense Forces (JSDF), officially the Self-Defense Forces, are the unified militaryforces of Japan. Established in 1954, the Self-Defense Forces include the Japan Ground Self-Defense
Force, the Japan Maritime Self-Defense Force, and the Japan Air Self-Defense Force. They arecontrolled by the Ministry of Defense with the Prime Minister as commander-in-chief.

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The SDF disaster relief role is defined in Article 83 of the Self-Defense Forces Law of 1954, requiring
units to respond to calls for assistance from prefectural governors to aid in fire fighting, earthquake
disasters, searches for missing persons, rescues, and reinforcement of embankments and levees inthe event of flooding. The SDF conducts a variety of disaster relief operations in collaboration withmunicipal governments when disasters such as natural disasters occur in any part of the country, by
engaging in the search and rescue of disaster victims or missing ships or aircraft, controlling floods,
offering medical treatment, preventing epidemics, supplying water, and transporting personnel andgoods. In particular, over 100,000 SDF personnel were dispatched at a peak time for relief operations
for the large-scale earthquake and nuclear disaster based on the Great East Japan Earthquake inMarch 2011.
SDF are deployed only upon the request of the prefectural governor. Municipal Mayors can ask
prefectural governors to request a disaster relief dispatch by the SDF. In the event that mayors areunable to make such a request to the prefectural governor, they can inform the Minister of Defense,or those designated by the Minister of the disaster conditions. After receiving such requests fromgovernors, the Minister of Defense or other personnel designated by the Minister can immediately
dispatch units as necessary according to the disaster situation. Under circumstances of particularurgency when there is no time to wait for a request, the Minister of Defense or those designated by
the Minister may authorize an exceptional dispatch (discretionary dispatch). The Minister of Defense
is authorized to dispatch SDF once earthquake or nuclear threat alarm is issued, based on the requestof Chief of the Nuclear Disaster Countermeasures Headquarters and Chief of the Earthquake Disaster
Warning Headquarters (both –the Prime Minister)
7.4.4.

Japan Coast Guards

The Japan Coast Guard (JCG) is a government agency that falls under the Ministry of Land,
Infrastructure, Transport and Tourism (MLIT) and is responsible for disaster preparedness and marine
search and rescue operations. The JCG educates people about the dangers of the sea and promotes
self-rescue principles to raise awareness.
In the event of a marine accident, such as a boat or vessel accident, the JCG conducts search andrescue operations. It deploys mobile rescue personnel skilled in helicopter rescues, scuba diving, andproviding emergency medical treatment. The JCG also collaborates with other public and private
rescue organizations, including police and fire departments, to cover the vast areas of the sea
surrounding Japan. To ensure prompt assistance, the JCG operates a maritime accident reporting
service 24 hours a day through the Global Maritime Distress and Safety System (GMDSS). Incidents
and accidents can also be reported quickly by dialing 118 on a mobile or onboard phone. Calls fromlandlines are received by the respective regional centers, while calls from onboard phones are directed
to headquarters. The JCG also plays a crucial role in responding to natural disasters, such as
earthquakes and tsunamis. In these situations, JCG vessels and aircraft are used to assess damage andprovide assistance to affected areas. The JCG operates a fleet of vessels and aircraft, including patrolboats, helicopters, and fixed-wing aircraft, to carry out its missions. These assets are strategicallystationed throughout Japan to ensure rapid response to emergencies. Overall, the JCG plays a criticalrole in disaster response activities in Japan.
7.4.6.

Disaster Medical Assistance Team (DMAT)The Disaster Medical Assistance Teams are specialized and trained medical aid teams which
operate during large-scale disasters. DMAT system was established in 2005 based on the lessons ofGreat Hanshin Awaji Earthquake.
The guidelines for the deployment of DMATs are based on the results of research by the Ministryof Health Labour and Welfare (MHLW) and they define DMATs as “mobile, trained medical teams thatcan be rapidly deployed during the acute phase of a disaster (within 48 hours). “DMAT Team Member
Training Course” is conducted at the National Hospital Organization’s Disaster Medical Center (an31independent administrative agency) for certification of DMAT personnel. The primary mission of
DMATs is to provide emergency medical care to disaster victims. This includes triaging patients toassess their medical needs, stabilizing patients with life-threatening conditions, and providing
treatment for injuries and illnesses. DMATs are also trained to provide mental health support todisaster victims who may be experiencing trauma or psychological distress. Once deployed, DMATs
work closely with other disaster response teams and agencies to provide comprehensive support todisaster victims and are also part of the national disaster management plan.
The four to five-person team consists of doctors, nurses, and coordinators who are trained torespond to disasters quickly and efficiently. There are 1,686 teams and 14,204 registered personnel
nationwide (as of the end of March 2019). DMAT teams were mobilized in various incidents including
the Northern Osaka Prefecture Earthquake, heavy rain in western Japan, and the Hokkaido Eastern
Iburi Earthquake in 2018, and the torrential rain disaster in the northern part of Kyushu and the
Typhoons 15 and 19 in 2019. Approximately 100 teams were dispatched for Typhoon 15, andapproximately 260 teams were dispatched for Typhoon 19. Their job was to support hospitals withwater interruptions and power outages, as well as to evacuate hospitalized patients.
DMATs are an important component of Japan's disaster response system, providing critical medical
assistance to disaster victims and supporting local medical facilities. The highly trained and equipped
teams of medical professionals work quickly and efficiently in challenging environments, providing
necessary medical care to those in need.
7.4.5.

BOKOMIBOKOMI (Community Organization for Disaster and Welfare Management) is a volunteer
organization established by the Kobe City government to reduce the risks associated with disasters.
The organization was created in the aftermath of the Great Hanshin Awaji earthquake, which occurredin 1995 and caused extensive damage to the city. BOKOMI's primary goal is to ensure that thecommunity is well-prepared to deal with any future disasters that may occur.
One of the unique aspects of BOKOMI is that it combines disaster response with local welfare
activities during normal times. The organization is made up of elementary school district-based
voluntary groups that collaborate closely with the local government and fire department. These teams
serve as first responders during emergencies or disasters, and they work together to ensure thatpeople are safe and that the situation is under control.
BOKOMI conducts various emergency drills and programs to ensure that its members are wellprepared to handle different types of disasters. These drills include rescue drills, evacuation drills,
information transmission drills, flood control drills, and more. The local government provides theequipment and materials needed for these activities, and storehouses are established in local parks
to ensure that emergency supplies are readily available.
In addition to its disaster preparedness activities, BOKOMI also conducts various welfare activities
for the community. For example, the organization hosts lunch gatherings for elderly people andconducts other community-building activities. By combining disaster response with local welfare
activities, BOKOMI helps to strengthen the disaster management system of the city.

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8. Disaster Reduction Drill / Human Resources Development
8.4. Disaster Reduction Drills and Exercises
The Basic Act on Disaster Management stipulates that it is obligatory to conduct disastermanagement drills. In order for various disaster management entities to check and confirm theemergency measures to be taken upon occurrence of a disaster, and to raise awareness amongresidents of disaster reduction, the Government annually sets out, at the National Disaster
Management Council, basic guidelines for the drills to be exercised nationally and by the local entities
and sets out the “Disaster Preparedness Drill Plan'' stipulating overview of drills and exercises
implemented by the Government. Communities implement disaster management drills at various
times of the year based on this Plan. In particular, on every “Disaster Preparedness Day '' on
September 1 and “Tsunami Preparedness Day '' on 5 November, wide, large-scale disaster response
drills are implemented nationwide with various disaster management entities working together andnumerous participating citizens. Further, based on the experience of past disasters, the Plan is revisedwhen necessary. For example, based on lessons learned from the 2016 Kumamoto Earthquake, thePlan was revised to include provisions for training of wide-area aid/aid acceptance of dispatch staff
based on intergovernmental support agreements. Also, based on the experience with 2018 Japan
floods and the 2018 Hokkaido Eastern Iburi earthquake, cross-industry training for lifeline recovery
was also included. In addition, the experience of COVID-19 led to the inclusion of infection control in
drills.
8.5.

Human Resources Development

The Cabinet Office started a “program for developing disaster management specialists” for the
purpose of developing and training people “who can respond to the emergency promptly andappropriately” and “who can form a network between the national and local entities.” Specifically, 1)
the provision of the training program, “OJT Workshop,” to employees of local public organizations byengaging them in disaster management services at the Cabinet Office and receiving workshops related
to disaster management, 2) provision of a training program either online or at the Ariake-no-Oka Main
Wide-Area Disaster Management Base Facility, called “Ariake-no-Oka Workshop,” teachingsystematically the knowledge, skills and attitude required for disaster management operations
through lectures and exercises. From 2020, with infection control of COVID-19 in mind, e-learning andvideo conference tools have been utilized to implement online workshops to increase the number oftrainees.

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9. Measures for Support to Disaster-Affected People
9.4. Measures for Residents in Need of Assistance in Evacuation
In 2006 the Cabinet Office released and disseminated to municipalities the Guidelines for
Evacuation Support of People Requiring Assistance during a Disaster. There were high mortality rates
for age and disabled groups in the Great East Japan Earthquake in 2011, while there was a sacrifice on
a broad scale for those who provided support such as firefighters and social workers. With theselessons, the Disaster Countermeasures Basic Act was amended in 2013 to stipulate that head of eachmunicipality be assigned with the responsibilities of establishing a list of residents who needassistance in evacuation at the time of disaster, and upon revision of the Basic Act, the abovementioned Guidelines were revised in its entirety into the guidelines which incorporated specificprocedures for establishing a list of residents in need of assistance at the time of evacuation. In
addition, under the amendment of the Basic Act on Disaster Management in 2021, preparation of theindividual evacuation plans which describe information such as those who provide evacuation supportand evacuation sites for each person requiring assistance evacuating have been obligated to makeefforts for municipalities.
9.5. Ensuring Satisfactory Living Conditions at Shelters
In the Great East Japan Earthquake, there were many problems arising during the disaster: affected
people suffered health problems; aged people were forced to stay home because they could not adapt
themselves to the evacuation shelters in some cases, relief supplies were not provided sufficiently tohome evacuees in many cases; and there were reported problems for provision of information, relief
supplies, and services for wide area evacuees who evacuated to other prefectures or municipalities.
In order to address these challenges, the Basic Act on Disaster Management was amended in 2013,
and established obligations to make efforts regarding distribution of food, clothing, medicines, andother living-related supplies, and improvement of the living environment of evacuation shelters. Also,
upon revision of the Basic Act, guidelines the Guidelines for Ensuring Satisfactory Living Conditions at
Shelters have been formulated and published mainly for municipalities. Under these guidelines, theShelter Management Guidelines, the Guidelines for Securing and Managing Welfare Shelters, and the
Guidelines for Securing and Managing Toilets at Shelters have been published Under the COVID-19, it
is imperative that thorough infection control measures are taken at evacuation sites. The government
has issued considerations for COVID-19 infection control measures at evacuation sites to local
governments. The government has also taken actions to further raise awareness of citizens by
distributing flyers through local governments. These flyers written in 14 languages contain 5 essential
points for evacuation with the COVID-19 situation in mind.
9.6.

Provision of Condolence Grant to Disaster Affected People

The Disaster Relief Act aims at protecting disaster affected people and maintaining social order by
the national government in cooperation with local public corporations, the Japan Red-Cross and otherorganizations, and the general public, at the time of disaster, by providing emergency relief.
Specifically, upon occurrence of a disaster with specified magnitude or more, the prefectural
governors will make emergency disbursements to assist the affected, including setting up evacuation
shelters and rescuing victims (the national government will reimburse 50% to 90% of such
disbursement). The Act on Provision of Disaster Condolence Grant stipulates the provision of
condolence grants to the bereaved families, emergency cure grants to the victims severely damaged
mentally or physically and loans for the affected by disasters to the head of families with severe
damage.

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10. Disaster Management Base Facilities
In preparation for the Tokyo Inland Earthquake, the Government maintains and manages disastermanagement bases as follows. The Substitute Facility in Tachikawa will serve as the Government’s
Extreme Disaster Management Headquarters when the Prime Minister’s Office is seriously damaged
and dysfunctional. It is equipped with the back-up functions of the Cabinet Office (set up in the Joint
Government Building #8) including communications control and information processing dedicated todisaster management. The Key Wide-area Disaster Prevention Bases in the Tokyo Bay Waterfrontarea, located in the Ariake-no-Oka area, is a potential site for accommodating the Government’s Onsite Disaster Management Headquarters, to function as the headquarters for wide-area disastermanagement covering the entire Metropolitan area. Also, it functions as the base camp for the widearea support forces and for supporting disaster medical aids. In normal times, the facilities are utilized
for information exchange among disaster-related institutions and for various training. The Key Widearea Disaster Prevention Bases in the Tokyo Bay Waterfront area, located in the Higashi-Ohgĳima area,
coordinates the arrival of shipments of support materials from Japan and overseas in the event of adisaster, and functions as a relay base for the shipment by sea, river and land, and offers a temporarybase camp for the mustering of wide-area support teams.

Figure 21. Headquarters Functions of the Greater Metropolitan Area Disaster Management

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Figure 22. Back-up for the Disaster Management Headquarters Functions

36

11. Learnings for India
The following aspects of the Japanese Disaster Management system are worth emulating by India:a) White Paper on Disaster Management
The annual White Paper on Disaster Management providing an outline of the government's
policies, measures, and initiatives for disaster management. India could benefit from a similar
document, which would provide a roadmap for disaster management.
b) DM Plans at Community level
Each community area develops a Disaster Management Plan based on the hazards and vulnerability
in the area. These plans are periodically reviewed and updated to ensure that they remain relevant.
Such an approach in India would ensure that every community is well-prepared to handle disasters.
c) BOKOMI- Community Organization for Disaster and Welfare Management

The Community Organisations like BOKOMI play a crucial role in times of disasters. These
organization combines disaster response with local welfare activities during normal times. The
organization is made up of various voluntary groups that collaborate closely with the local government
and fire department. India could benefit by training similar organizations, which would help in building
resilience at the community level.
d) Business Continuity Plan
The Business Continuity Plan stipulates that the executive systems continue to run the government
services smoothly in the event of a disaster. It ensures effective response during the times of crisis.
Implementation of a similar system in India will help in better response and quick resumption of
normal activities.
e) Communication Network
The central disaster management radio network of Japan ensures communication among disasterprevention related organizations nationwide in the event of a large-scale disasters. This system uses
communication satellites and other redundancies to keep up the communication and also fordissemination of alerts and warnings to the public. Similar system in India can improve thepreparedness for disasters.
f)

Human Resource Development in DRM

Japan places a strong emphasis on human resource development in disaster risk management. The
country provides regular training to disaster management personnel, including government officials,
first responders, and volunteers. India could benefit from a similar approach, as it would ensure thatthe country has a skilled workforce that can effectively respond to disasters.
g) Evacuation sites and Emergency shelters
In Japan, the network of evacuation sites and emergency shelters that can be quickly activated in
the event of a disaster. The sites are equipped with basic facilities such as food, water, and medical
supplies. India could benefit from the establishment of similar facilities, which would provide a safe
haven for people affected by disasters.
In conclusion, India by adopting some of the above-mentioned aspects, can improve its disaster
preparedness and response capabilities, and ultimately, save lives and mitigate the impact ofdisasters.

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12. Conclusions
Japan is a country that is highly prone to natural disasters such as earthquakes, tsunamis, typhoons,floods, and landslides. The country's high-risk profile makes it necessary to have a well-defineddisaster management system in place. It has developed a comprehensive disaster management
system that includes disaster prevention, preparedness, response, and recovery.
The government has enacted several laws and acts related to disaster management prominently
the Disaster Countermeasures Basic Act of 1961 which requires the national and local governments
to take preventive and preparedness measures against disasters. It establishes the roles andresponsibilities of government agencies, and requires them to work together to prepare for disasters.
There is a well-defined institutional setup that includes the Cabinet Office and the Central Disaster
Management Council with Prime Minister as the Chairperson.
Japan also has a system of updating the disaster management system, such as introducing
amendments to the Basic Countermeasures Act and the publication of the White Paper on Disaster
Management which outlines the government's policies, measures, and initiatives for disastermanagement.
Basic Disaster Management Plan, Community Disaster Management Plans, and Business Continuity
Plans form the core of Japan's disaster management planning aimed at the functioning of the systems
in the aftermath of a disaster.
Japan has a sophisticated early warning system with different levels of alerts at the national andlocal levels in the form of J-alert and L-alert, respectively. Information and communication with
Central Disaster Management Radio network, Integrated Disaster Management information systems,
and Information Support Teams play a crucial role in disaster management.
The emergency response mechanism in Japan involves wide area support and coordination
between the national and local governments. Response agencies like the Fire Service Organizations,
National Police Agency, Japan Self Defense Forces, Japan Coast Guards, Disaster Medical AssistanceTeams, and BOKOMIs (the community volunteers) play a crucial role in emergency response.
Human resource development activities like DRR drills and exercises help in building resilience andpreparedness among the citizens. The system caters for support during evacuation and emergency
shelters and other provisions to ensure the safety and well-being of the affected population.
While Japan invested in readiness for response (e.g., mitigation, forecasting, EWS, and drills), largescale disasters like the Great East Japan Earthquake proved that those efforts were not enough, asshown in the magnitude of damage and loss of lives and properties brought about by large-scaledisasters.

But then, the policies, programs, and activities on preparedness for response in Japan often
undergo major changes for improvement. Firstly, by learning from the past disaster experiences andaddressing the limitations to improve the system (e.g., use of satellites in EWS). Secondly, by using
disaster data to simulate future impacts of disasters and prepare the response system to withstandthe impacts (e.g., projection studies showing that the existing 5-meter levee could not withstandfuture tsunami. So, the heights of levees need to be raised accordingly).
Japan has an ever evolving, comprehensive and well-organized disaster management system
reflecting the country's experience in dealing with natural disasters and showing a high level of
preparedness for response in the event of a disaster.

38

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National Disaster Risk Profile of Japan published by National Institute of Disaster Management(NIDM), India
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https://pubs.usgs.gov/gip/dynamic/fire.html
White Paper on Disaster Management in Japan (2012 to 2022)
River Bureau Ministry of Land,Infrastructure,Transport and Tourism, JAPAN (mlit.go.jp)
White Paper on Police 2021 (https://www.npa.go.jp/english/publication/hakusyo2021.html)
Disaster Countermeasures Basic Act (No.223, November 15, 1961)
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JMAJ, January/February 2013—Vol.56, No.1
(https://www.med.or.jp/english/journal/pdf/2013_01/025_029.pdf)
https://www.adrc.asia/Asian Disaster Reduction Center（ADRC）

Presentation/lecture materials during ADRC classes, visits, conferences and meetings.

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