Research Paper on
An Integrated Framework for the Earthquake Preparedness: An Assessment of the
Applicability of Japanese Experience in Bangladesh

By

Mohammad Manirul Islam
Senior Assistant Secretary
Ministry of Disaster Management and Relief
Government of the People’s Republic of Bangladesh&
ADRC Visiting Researcher, FY2013B

Disclaimer

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

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

ACKNOWLEDGEMENT
I would like to express my sincere appreciation to the ADRC authority and the Ministryof Disaster Management and Relief, Government of the People’s Republic of Bangladesh forselecting me for the VR FY 2013 B programme and allow me to visit the Japan with a view tosharing our experiences and improving our performance in the field of Disaster Risk
Reduction.
I would like to pay my sincere gratitude to Mr Mesbah ul Alam, Secretary, Ministry ofDisaster Management and Relief and Dr M. Aslam Alam, Ex Secretary, Ministry of Disaster
Management and Relief for providing guidance for undertaking such an important research
program. I also extend my deep appreciation to Mr. Munir Chowdhury, Joint Secretary of theministry for sharing his experiences. I would like to thank all the staff members of the ADRC
for providing me kind cooperation to conduct the successful research program. I am
extremely grateful to Mr. Kiyoshi Natori (Executive Director – ADRC) who guided me with hisvaluable wisdom, knowledge and experience on disaster management. I would like toexpress my thanks and gratitude to my mentor Ms Miki Kodama, Senior Researcher.
I deeply acknowledge the contribution of Ms Shiomi Yumi from ADRC for guiding me in asystematic and comprehensive way during my field visit outside Kobe and extending all out
support for successful completion of the program.
I am extremely grateful to all the officials and members of the Japan Government, JICA andmembers from other International Organizations who dedicated their valuable time to me
and shared their profound knowledge and expertise for enriching me. Also, I must extend myheartiest thanks to administrative staff members of ADRC and Japanese Teacher Mr. Shoji
Kawahara, for his valuable information and valuable suggestions and spent for me in many
ways during my stay in Japan. I would never hesitate to thank my fellow VR members from
Bhutan, Combodia and Iran who shared their experiences and supported me to create bettergroup activities during my stay in Japan.

Last but not the least; we must not forget to acknowledge our family Members who
undertook lots of pain during my long ten week stay in Kobe, Japan.

Mohammad Manirul Islam
Senior Assistant Secretary
Ministry of Disaster Management and Relief
Government of the People’s Republic of Bangladesh&
ADRC Visiting Researcher, FY2013B

LIST OF ABBREVIATIONSADRC: Asian Disaster Reduction Centre

BRAC: Bangladesh Rural Advancement Centre

CPP: Cyclone Preparedness Program

CCA: Climate Change Adaptation

CDMP: Comprehensive Disaster Management ProgramDM: Disaster Management

DRR: Disaster Risk Reduction

DMB: Disaster Management Bureau

DMRD: Disaster Management and Relief Division

DDM: Department of Disaster Management

DMIC: Disaster Management Information centre

DLA: Detailed Livelihood Assessment

DRRO: District Relief & Rehabilitation Officer

ECNEC: Executive Committee for National Economic Council

EMMA: Emergency Market Mapping and Analysis Tool-Kit

EU: European Union

EQ: Earthquake

GOB: Government of BangladeshGR: Gratuitous Relief

ILO: International Labour Organization

IRP: International Recovery Platform

ILIA: Initial Livelihood Impact Appraisal

JICA: Japan International Cooperation Agency

MODMR: Ministry of Disaster Management and Relief

NDRCC: National Disaster Response Coordination CentreNGO: Non- Government Organization

NHK: Nippon Hoso KyokaiNPO: Non-Profit Organization

PIO: Project Implementation Officer

PDRP: Pre-Disaster Recovery Planning

REOPA: Rural Employment Opportunity for Public Assests

SOD: Standing Order on Disaster

UNDP: United Nation Development ProgramVR: Visiting Researcher

VGF: Vulnerable Group Feeding

WFP: World Food ProgramTable of Contents
1.1 Introduction ...................................................... エラー! ブックマークが定義されていません。
1.2 Background of the Research ............................. エラー! ブックマークが定義されていません。
1.3 Significance of this Research ............................. エラー! ブックマークが定義されていません。
1.4 Disaster Risks in Bangladesh: An overview ....... エラー! ブックマークが定義されていません。
1.4.1 Physiography of Bangladesh: ..................... エラー! ブックマークが定義されていません。
1.4.2 Climate ....................................................... エラー! ブックマークが定義されていません。
1.4.3 Natural Hazards in Bangladesh .................. エラー! ブックマークが定義されていません。
1.5 Objectives of the Research ............................... エラー! ブックマークが定義されていません。
1.5.1 Specific Aims .............................................. エラー! ブックマークが定義されていません。
1.5.2 Long term Goals ......................................... エラー! ブックマークが定義されていません。
1.6 Data and Information and Potential Resources:エラー! ブックマークが定義されていません。
1.7 Research Methodology ..................................... エラー! ブックマークが定義されていません。
Proposed Research Activities .............................. エラー! ブックマークが定義されていません。
2. Disaster Management System in Bangladesh ..... エラー! ブックマークが定義されていません。
2.1 Regulative Framework .................................. エラー! ブックマークが定義されていません。
2.2 NATIONAL DISASTER CONTEXT ..................... エラー! ブックマークが定義されていません。
2.3 National and international Drivers ................... エラー! ブックマークが定義されていません。
2.4 National Committees under SOD ...................... エラー! ブックマークが定義されていません。
2.5 Field Level Committees under SOD................... エラー! ブックマークが定義されていません。
2.6 National Institutions for Disaster Managementエラー! ブックマークが定義されていません。
2.7 Other Institutions for Disaster Management.... エラー! ブックマークが定義されていません。
2.8 Bangladesh National progress report on the implementation of the Hyogo Framework for Action(2009-2011):............................................................ エラー! ブックマークが定義されていません。
2.9 Recent DRR Projects.......................................... エラー! ブックマークが定義されていません。
3. Earthquakes in Bangladesh ................................. エラー! ブックマークが定義されていません。
3.1 Tectonics and Geology ...................................... エラー! ブックマークが定義されていません。
3.2 Structure and Seismicity ................................... エラー! ブックマークが定義されていません。
3.3 Major Earthquakes Affecting Bangladesh ......... エラー! ブックマークが定義されていません。
3.4 Vulnerability of Cities ........................................ エラー! ブックマークが定義されていません。
3.4.1 Earthquake Seismic Hazard Assessment .... エラー! ブックマークが定義されていません。
3.4.2 Earthquake Vulnerability Assessment ....... エラー! ブックマークが定義されていません。

3.4.3 Earthquake Risk Assessment...................... エラー! ブックマークが定義されていません。
3.5 Earthquake preparedness in Bangladesh ......... エラー! ブックマークが定義されていません。
4. Disaster Management in Japan ........................... エラー! ブックマークが定義されていません。
4.1 Disasters in Japan .............................................. エラー! ブックマークが定義されていません。
4.2 Disaster Management Laws and Systems in Japan... エラー! ブックマークが定義されていません。
4.2.1 Basic Acts ................................................... エラー! ブックマークが定義されていません。
4.2.2 Acts & Law related to Disaster Prevention and Preparedness .. エラー! ブックマークが定義されていません。
4.2.3 Acts relating to Disaster Emergency Response .. エラー! ブックマークが定義されていません。
4.2.4 Acts related to Disaster Recovery and Reconstruction.. エラー! ブックマークが定義されていません。
4.2.5 Establishment of Comprehensive Disaster Management System: Disaster Countermeasures
Basic Act .............................................................. エラー! ブックマークが定義されていません。
4.2.6 Main Contents of the Disaster Countermeasures Basic Act .. エラー! ブックマークが定義されていません。
4.3 Mission of the Cabinet Office: .......................... エラー! ブックマークが定義されていません。
4.4 Central Disaster Management Council ............. エラー! ブックマークが定義されていません。
4.5 Disaster Management Planning System ........... エラー! ブックマークが定義されていません。
4.5.1 Basic Disaster Management Plan ............... エラー! ブックマークが定義されていません。
4.6 Disaster Management Structure ....................... エラー! ブックマークが定義されていません。
4.7 Disaster management Budget: ......................... エラー! ブックマークが定義されていません。
4.8 Research and Development: ............................. エラー! ブックマークが定義されていません。
4.9 Disaster Prevention and Preparedness ............. エラー! ブックマークが定義されていません。
4.9.1 National Land Conservation ....................... エラー! ブックマークが定義されていません。
4.9.2 Observing, Forecasting and Warning of Disaster Risks .. エラー! ブックマークが定義されていません。
4.9.3 Information and Communications Systemsエラー! ブックマークが定義されていません。
4.9.4 Integrated Disaster Management Information System . エラー! ブックマークが定義されていません。
4.9.5 Main wide-area disaster-management base in the Tokyo Bay maritime area:. エラー! ブック
マークが定義されていません。
4.9.6 Issuing of Evacuation Order and Instruction:エラー! ブックマークが定義されていません。

4.9.7 Measures for People Requiring Assistance during Disaster .. エラー! ブックマークが定義されていません。
4.9.8 Disaster Reduction Drills and Exercises ..... エラー! ブックマークが定義されていません。
4.10 Disaster Response: .......................................... エラー! ブックマークが定義されていません。
4.10.1 Outline of Disaster Response ................... エラー! ブックマークが定義されていません。
4.10.2 Wide-area Support System ...................... エラー! ブックマークが定義されていません。
4.11 Disaster Recovery and Rehabilitation: ............ エラー! ブックマークが定義されていません。
4.11.1 Outline of Recovery and Rehabilitation Measures: . エラー! ブックマークが定義されていません。
4.11.2 Disaster Victims Livelihood Recovery Support System エラー! ブックマークが定義されていません。
4.11.3 Contents of Disaster Recovery and Rehabilitation Measures: エラー! ブックマークが定義されていません。
5. Earthquake Prevention Experience in Japan ...... エラー! ブックマークが定義されていません。
Earthquake Disaster Mitigation Policy in Japan: ..... エラー! ブックマークが定義されていません。
5.2.1 Observation system ................................... エラー! ブックマークが定義されていません。
5.2.2 Dissemination of Forecast and EW: ........... エラー! ブックマークが定義されていません。
5.2.3 Utilization of Earthquake Early Warning Information エラー! ブックマークが定義されていません。
5.3 Countermeasures against Large-scale Earthquakes: エラー! ブックマークが定義されていません。
5.3.1 Countermeasures against Tokyo Inland Earthquakes: A case study . エラー! ブックマークが定義されていません。
5.4 Earthquake Disaster Management Strategy: .... エラー! ブックマークが定義されていません。
5.4.1 Earthquake-proofing of Houses, Buildings and Infrastructures. エラー! ブックマークが定義されていません。
5.4.2 Utilization Hazard Maps To Promote The Earthquake-Proofing Of Buildings: .. エラー! ブック
マークが定義されていません。
5.4.3 Earthquake-proofing of disaster management bases (schools and other institutions) and key
infrastructure: ..................................................... エラー! ブックマークが定義されていません。
5.4.4 Business continuity plans for companies ... エラー! ブックマークが定義されていません。
5.4.5 Improvement of evacuation areas ............. エラー! ブックマークが定義されていません。
5.4.6 Effects of long-period seismic waves on structures: . エラー! ブックマークが定義されていません。

6. A Comparative Study of Earthquake Management System between Japan and Bangladesh
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エ7. Observation and Findings…………………………………………………………………………………………………………….90
8. Recommendations………………………………………………………………………………………………………………………92
9. References………………………………………………………………………………………………………………………………….94

1.1 Introduction:
The geophysical location, land characteristics, multiplicity of rivers and the monsoon climate
render Bangladesh highly vulnerable to natural hazards. Climate change adds a new
dimension to community risk and vulnerability. The Disaster Management Vision of theGovernment of Bangladesh is to reduce the risk of people, especially the poor and thedisadvantaged, from the effects of natural, environmental and human induced hazards, to a
manageable and acceptable humanitarian level, and to have in place an efficient emergency
response system capable of handling large scale disasters. In this regard, Ministry ofDisaster Management and Relief has developed the mission to reduce the vulnerability bybringing a paradigm shift in incident management from conventional response and relief
practice to a more comprehensive risk reduction culture.
As a developing country, Bangladesh is striving for optimum development and allocatesmore than 500 million USD for annual development each year. But considerable amount of
the development initiative and investment are jeopardized by unwanted incidents. Proper
management & communication skill related to hazards can reduce losses and damages.
Different types of communication practices like early warning and timely forecasting canmake it possible to avoid huge losses, and to safeguard the development process.
Appropriate knowledge of the disaster management and relevant communication can bevery helpful for comprehensively dealing with the hazards. Thus development initiatives canreach at an optimum level.
The government, in coordination with NGOs and international organizations, has done acommendable job in responding to the flood risk management and cyclone preparedness but
most of the remaining major environmental incidents like earthquake are still unreachable atthe point of prediction, emergency response and management due to lack professionals,
appropriate tools, processes and guidelines.
Recent study shows that Bangladesh is possibly one of the countries, most vulnerable topotential earthquake threat and damage. The Seismic activity of Bangladesh is shown anearthquake of even medium magnitude on Richter scale can produce a mass graveyard inmajor cities of the country, particularly Dhaka, Sylhet and Chittagong. However, under thepresent stage of human occupancy, buildings, infrastructures and other physical structuresof different areas of a city will not be equally vulnerable to any such shock. Earthquake
vulnerability of any place largely depends on its geology and topography, population density,
building density and quality, and finally the coping strategy of its people and it shows clear
spatial variations. It is thus necessary to identify the scale of such variations and takenecessary measurements to cope with that.

1.2 Background of the Research:
Bangladesh, a densely populated country in South Asia, is located in the north-eastern partof the Indian sub-continent at the head of the Bay of Bengal. Tectonically, Bangladesh lies in
the north-eastern Indian plate near the edge of the Indian craton and at the junction of threetectonic plates - the Indian plate, the Eurasian plate and the Burmese micro-plate. In broad
terms, Bangladesh is an earthquake-prone country; its northern and eastern regions inparticular are known to be subjected to earthquakes of magnitudes greater than 5 on the
Richter scale. The geo-tectonic set-up of the country, which is located along two of theplanet's active plate boundaries, suggests high probabilities of damaging future earthquakes
and the possibility of rarer but extraordinarily large earthquakes that can cause damage far
from their epicenters. The juxtaposition of the Himalayan orogen along with its syntaxes
northeast of Bangladesh and the convergent Burma Arc plate boundary in the east make thisland in particular, vulnerable to high-magnitude earthquake events.

Figure-1.1: Tectonic Framework of Bangladesh & adjoining area, source Haque, (2007).
The hazard that is inferred from tectonic analysis is backed by historic evidence. Bangladesh,a country of multiple natural disaster vulnerabilities, and its capital Dhaka are under thelooming threat of cataclysmic earthquakes. Records show that large earthquakes have

previously ravaged the country and the neighboring region several times over the last 450
years.
The north and northeastern parts of Bangladesh are the most active seismic zones, and had
experienced earthquakes of moderate to high intensity in the past. The great earthquake of1897 had its epicentre in the Shillong Plateau of India, and caused widespread damage inadjacent areas of what was then known as Bengal. Two other major earthquakes thatcaused severe damage in areas adjacent to the epicentres were in 1885, known as theBengal Earthquake, and in Srimangal in 1918. In addition, major earthquakes occurred in
Bangladesh, and surrounding areas in the years 1833, 1897, 1906, 1918, 1923, 1926, 1927,
1930, 1934, 1939, 1941, 1943, 1947, 1950, 1951 , 1954, 1957, 1962, 1965, and 1988.
Earthquakes with magnitudes between 7.0 and 8.7 on the Richter scale have been
experienced in this country, but they are rare events.

Figure-1.2: Epicentres of Historical Earthquake in Bangladesh (1664-2007), source: by
Bilham et al.(2003).
1.3 Significance of this Research:
As, Tectonically, Bangladesh lies in the northeastern Indian plate near the edge of the Indiancraton and at the junction of three tectonic plates – the Indian plate, the Eurasian plate andthe Burmese microplate. These form two boundaries where plates converge– the IndiaEurasia plate boundary to the north forming the Himalaya Arc and the India-Burma plateboundary to the east forming the Burma Arc. The Indian plate is moving ~6 cm/yr in anortheast direction and subducting under the Eurasian (@ 45 mm/yr) and the Burmese (@35 mm/yr) plates in the north and east, respectively (Sella et al., 2002; Bilham, 2004). This
continuous motion is taken up by active faults. However, they do so sporadically, primarily inlarge earthquake ruptures.An active fault in the upper crust tends to be locked so that platemotion is absorbed elastically until stress rises to the breaking point and the fault ruptures.
Thus the probability of an earthquake from a given fault depends on the rate of motion andon the time since the last rupture. Active faults of regional scale capable of generating
moderate to great earthquakes are present in and around Bangladesh. These include the
Dauki fault, about 300 km long trending east-west and located along the southern edge of
Shillong Plateau (Meghalaya- Bangladesh border), the 150 km long Madhupur fault trending
north-south situated between Madhupur Tract and Jamuna flood plain, Assam-Sylhet fault,
about 300 km long trending northeast-southwest located in the southern Surma basin and
the Chittagong-Myanmar plate boundary fault, about 800 km long runs parallel to
Chittagong-Myanmar coast. The Chittagong- Myanmar plate boundary continues south toSumatra where it ruptured in the disastrous 26 December 2004 Mw 9.3 earthquake (Steckler
et al. 2008). These faults are the surface expression of fault systems that underlie thenorthern and eastern parts of Bangladesh. Another tectonic element, the ‘Himalayan Arc’ ischaracterized by three well defined fault systems (HFT, MBT and MCT) that are 2500 kmlong stretching from northwest syntaxial bend in Pakistan in the west to northeast syntaxial
bend in Assam in the east. It poses a great threat to Bangladesh as significant damaging
historical earthquakes have occurred in this seismic belt (Bilham et al., 2001; Mukhopadhyay
et al., 2004 and Mullick et al., 2009). The tectonic set-up and the plate motions together
place Bangladesh potentially vulnerable to earthquake. Bangladesh, a major part of theBengal Basin, is home to one of the largest and most active deltas of the world formed by
the Ganges-Brahmaputra-Meghna river system. It is almost entirely formed of recent alluvial

Figure-1.3: Plate Boundary between Indian and Eurasian Plate, Akhter, S.H.(2010).
and deltaic deposits. Topographically, Bangladesh is mainly composed of low-lying flat
country with the exception of slightly elevated Pleistocene uplands in the central andnorthwestern parts of the country and Tertiary hilly terrain in the northeast and southeast
parts. These hills are part of the folding associated with the BurmaArc plate boundary(Steckler et al. 2008).
Significant damaging historical earthquakes have occurred in and around Bangladesh anddamaging moderate-magnitude earthquake occur every few years. The country’s position
adjacent to the very active Himalayan front in the north and Burma deformation front in theeast expose it to strong shaking from a variety of earthquake sources that can produce
tremors of magnitude 8 or greater. The potential for magnitude 8 or greater earthquakes on
the nearby Himalayan and Burmese fronts, which depends on the rate at which elastic strain
is accumulated, is very high. The effects of strong shaking from such an earthquake would
directly affect much of the country including Dhaka. In addition, historical seismicity within
Bangladesh indicates that potential for damaging moderate to strong earthquakes exist
throughout much of the country. Large earthquakes occur less frequently than serious floods,
but they can affect much larger areas and can have long-lasting economic, social, andpolitical effects.
The tectonic set-up of Bangladesh, especially its position close to three converging
lithopheric plates with the presence of seismogenic faults, suggests that the country,
including its capital Dhaka, must have suffered from severe earthquakes in the historicalpast. The occurrence of earthquakes and consequent destruction in Bangladesh andneighboring regions are poorly documented. Few records of them are available in publishedand unpublished literatures.
At present disaster management aims to achieve a paradigm shift from conventional
response and relief practice to a more comprehensive risk reduction culture. In this process
prepared is the most important phase. In the case of earthquake, preparedness is the mostsuitable way to reduce the risk because prevention is not possible and scope of mitigation isvery limited.
The Integrated Natural Disaster Risk Management means that people can recognize andassess many kinds of natural disaster risk, and deal with the risk they may meet so as toreceive the biggest safe guarantee by using the lowest cost. It is a comprehensive andintegrated approach that embraces the management of all types of natural disasters and allphases of disaster management cycle, focuses on disaster hazard and vulnerability, i.e. theunderlying conditions of disasters, and emphasizes a multi-level, multi-dimensional, multidisciplinary coordination among stakeholders.
Japan is one of the most earthquake prone countries of the world and it has gained a longexperience of managing different aspects of earthquake with its esteemed technicalexpertise. So Bangladesh can be benefited if ways are identified to apply Japaneseexperiences and technical know-how in this context.

1.4 Disaster Risks in Bangladesh: An overview
1.4.1 Physiography of Bangladesh:
Bangladesh is a low-lying, riverine country with a largely marshy jungle coastline of 710 km(441 mi) on the northern littoral of the Bay of Bengal. Formed by a delta plain at theconfluence of the Ganges (Padma), Brahmaputra (Jamuna), and Meghna Riversand theirdistributaries and tributaries,
Bangladesh's alluvial
soil isFigure-1.4: Physiography of Bangladesh, source DMB.
highly fertile, but vulnerable toflood
and drought. Hills rise above
the
plain
only
in
the Chittagong Hill Tracts inthe far southeast and the
Sylhet division in the northeast.
The whole country consists ofmainly low and flat land,
except for the hilly regions in
the northeast and southeast. A
network of rivers, with their
tributaries and distributaries,
crisscrossthecountry.
Physiographically, the country
can be divided into hills,
uplifted land blocks, and the
majority alluvial plains withvery low mean elevation
above sea level the In terms ofgeographicallocation,
Bangladesh is in the context of
the
GBM
river
system.
Geologically, Bangladesh is apart of the Bengal Basin, oneof the largest geosynclinals in
the world. The Basin isbordered on the north by the steep Tertiary Himalayas; on the northeast and east by the late
Tertiary Shillong Plateau, the Tripura hills of lesser elevation, and the Naga-Lusai folded
belt; and in the west by the moderately high, ancient Chotanagpur plateau. The southernfringe of the basin is not distinct, but geophysical evidence indicates it is open towards the
Bay of Bengal for a considerable distance. The formation and growth of the Bengal Basin is
directly related to the origin and morphology of the Indo-Gangetic trough, which itself isoverlaid and filled by sediments thousands of meters thick. The broad geological features of
the Bengal Basin and its prominent tectonic elements are Indian platform, Bengal foredeep,
Arakan Yoma folded system, and the Sub-Himalayan Foredeep. Other features are Rangpur
Saddle, Dinajpur slope, Bogra slope, Hinge Zone, Barisal High, and Troughs of Sylhet,
Faridpur and Hatiya, etc.

1.4.2 Climate:
Bangladesh has a tropical monsoon climate characterized by wide seasonal variations inrainfall, high temperatures, and high humidity. Regional climatic differences in this flat
country are minor. Three seasons are generally recognized: a hot, muggy summer fromMarch to June; a hot, humid andrainy monsoon season from June toNovember; and a warm-hot, dry
winter from December to February.In
general,maximum
summertemperatures range between 38 and
41 °C (100.4 and 105.8 °F). April isthe hottest month in most parts of thecountry. January is the coolest month,when the average temperature formost of the country is 16–20 °C (61–68 °F) during the day and around
10 °C (50 °F) at night. Winds aremostly from the north and northwest
in the winter, blowing gently at 1 to 3
kilometers per hour (0.6 to 1.9 mph)
in northern and central areas and 3 to
6 kilometers per hour (1.9 to
3.7 mph) near the coast. From March
to May, violent thunderstorms, called
northwesters
bylocal
Englishspeakers, produce winds of up to 60
kilometers per hour (37.3 mph).
During the intense storms of the earlysummer and late monsoon season,
Fig-1.5: Climate in Bangladesh, Source, DMB
southerly winds of more than 160
kilometers per hour (99.4 mph) cause waves to crest as high as 6 meters (19.7 ft) in the Bayof Bengal, which brings disastrous flooding to coastal areas. The annual rainfall is about
1,600 mm (63.0 in), most parts of the country receive at least 2,300 mm (90.6 in) of rainfall
per year. About 80% of Bangladesh's rain falls during the monsoon season.

1.4.3 Natural Hazards in Bangladesh:
Historical statistics would suggest that Bangladesh is one of the most disaster prone
countries in the world with great negative consequences being associated with various
natural and human induced hazards. The geophysical location, land characteristics,
multiplicity of rivers and the monsoon climate render Bangladesh highly vulnerable to natural
hazards. The coastal morphology of Bangladesh influences the impact of natural hazards on
the area. Especially in the south eastern area, natural hazards increase the vulnerability of
the coastal dwellers.

Disasters and Bangladesh
•
•
•
•
•
•
•

Flood
Tropical Cyclone
Storm Surge
TornadoRiver Bank Erosion
Drought
Earthquake

Key factors of vulnerability

•
•
•
•
•
•

Geographical location
Dominance of flood plains
Low elevation from the sea
Global warming & climatechangeHigh population density
High level of poverty

Fig-1.6: Disaster Prone Areas, Map Source: DMB
Flood:
Floods are annual phenomena, with the most severe occurring during the months of Julyand August. Regular river floods affect 20% of the country, increasing up to 68% in extreme
years. The floods of 1988, 1998, 2004 and 2007 were particularly catastrophic, resulting inlarge-scale destruction and loss of lives.
Flash floods caused by overflowing of hilly rivers in eastern and northern Bangladesh (inApril-May and September-November).
Rain floods caused by drainage congestion and heavy rains.
Monsoon floods caused by major rivers usually in the monsoon (during JuneSeptember).
Coastal floods caused by storm surges.
The 1998 flood lasted for 65 days from July 12 to September 14 and affected about 67% ofarea of the country. In the year 2000, Bangladesh faced an unusual flood over its
usually flood-free south western plain, which also caused loss of life and massive
damage to property. In 2004, floods inundated about 38% of the country. About 747
people lost their lives. About 2,500 kilometers of embankment were damaged andabout 74 primary school buildings were washed away. This flood caused economic
losses of about US$2,200 Million.

Fig-1.7: Flood Prone Areas, Map Source: DMB

Tropical Cyclone:
Tropical cyclones from the Bay of Bengal accompanied by storm surges are one of the majordisasters in Bangladesh. The country is one of the worst sufferers of all cyclonic casualties in
the world. Number of casualties is due to the fact that cyclones are always associatedwith storm surges. Storm surge height in excess of 9m is not uncommon in this region.
For example, the 1876 cyclone had a surge height of 13.6 m and in 1970 the height was
9.11 m. In fact, the 1970 cyclone is the deadliest cyclone that has hit Bangladesh

coastline. With a wind-speed of about 224 km per hour and associated storm surge of
6.1 to 9.11m, it was responsible for deaths of about 300,000 people.
Table 1: Major cyclones that hit the Bangladesh coast
Maximum Wind Storm Surge height
speed (km/hr)(metres)1965
161
3.7-7.6
11 May15 December
1965
217
2.4-3.6
01 October
1966
139
6.0-6.7
12 November
1970
224
6.0-10.0
25 May1985
154
3.0-4.6
29 April
1991
225
6.0-7.6
19 May1997
232
3.1-4.6
15 November
2007
223
4.2-4.625 May (AILA)2009
92-16 May (Mahasen) 2012
130
-Source: Bangladesh Meteorological Department 2013
Date

Figure-1.8: Inundation Risk Map for Strom Surge, source, IWM

Death Toll
19,279873
850
300,000
11,069138,882
155
3363
190
16

Tornado:
The two transitional periods between southwest and northeast monsoons over the
Indian sub-continent are characterized by local severe storms. The transitional periods
are usually referred to as pre-monsoon (March-May), and post-monsoon (OctoberNovember). It is the pre-monsoon period when most of the abnormal rainfall or drought
conditions frequently occur in different parts of Bangladesh. Also there are severe local
seasonal storms, popularly known as nor’westers (kalbaishakhi). Severe nor’westers
are generally associated with tornadoes. Tornadoes are embedded within a motherthundercloud, and moves along the direction of the squall of the mother storm. The
frequency of devastating nor’westers usually reaches the maximum in April, while a few
occur in May, and the minimum in March. Nor’westers and tornadoes are more frequentin the afternoon. Nor’westers may occur in late February due to early withdrawal of
winter from Bangladesh, Bihar, West Bengal, Assam, and adjoining areas. The
occasional occurrence of nor’westers in early June is due to the delay in the onset ofthe southwest monsoon over the region.
Table-2: The devastating nor’westers and tornadoes that hit Bangladesh:
14 April 1969
17 April 1973
10 April 1974
11 April 1974
09 May 1976
01 April 1977
26 April 1989
14 May 1993
13 May 1996
04 May 2003
21 March 2005
22 March 2013

Demra (Dhaka)
Manikganj (Dhaka)
Faridpur
Bogra
Narayanganj
Faridpur
Saturia (Manikganj)Southern Bangladesh
Tangail
Brahmanbaria
Gaibandha
Brahmanbaria

Wind speeds in nor’westers usually do not exceed 113-130 km/hr (70-80 miles/hr),though often their speeds exceed 162 km/hr (100 miles/hr). When the winds become
whirling with funnel shaped clouds having a speed of several hundred kilometers or
miles per hour, they are called tornados. Nor’westers bring the much-needed premonsoon rain. They can also cause a lot of havoc and destruction. Tornados are
suddenly formed and are extremely localized in nature and of brief duration. Thus, it isvery difficult to locate them or forecast their occurrence with the techniques available atpresent. However, high-resolution satellite pictures, suitable radar, and a network ofdensely spaced meteorological observatories could be useful for the prediction or for
issuing warnings of nor’westers and tornados.
River Bank Erosion:
River erosion in Bangladesh is no less dangerous than other sudden and devastating
calamities. Losses due to river erosion occur slowly and gradually. Though losses are slow
and gradual, they are more destructive and far-reaching than other sudden and devastating
calamities. The effects of river erosion are long-term. It takes a few decades to make up thelosses, which a family has incurred by river erosion. There has been little progress, however,for improving the lives of erosion-affected people due to resource constraint. This is an ongoing disaster and there is no specific indicator to measure the extent of damage. Sothe extent of damage caused by river erosion in most cases is based on various
reports/information. Needless to say whatever the difference in ascertaining the extent
of damage river erosion causes huge loss of property throughout the year. According to“World Disaster Report 2001”
published by IFRCS every
year about 10,00,000 people
are affected by river erosion
and 9,000 hectare cultivablelands are banished in river.
Among these only a few
affected people are able tofind new shelters while others
becomehomelessforuncertain period. A recent
study of CEGIS (2005) showsthat bank erosion along Padma
River during 1973 – 2004 was
29,390 hectares and along
Jamuna River during 1973 – 2004, it was 87,790 hectares.
Droughts:
Drought conditions due to deficiency in rainfall affect different parts of Bangladesh mostly
during the pre-monsoon and postmonsoon periods. Between 1949 and1991, droughts occurred in Bangladesh
24 times. Very severe droughts hit thecountry in 1951, 1957, 1958, 1961,
1972, 1975, 1979, 1981, 1982, 1984
and 1989. Past droughts have typicallyaffected about 47% area of the country
and 53% of the population (WARPO,
2005). Bangladesh faces unpredictabledrought hazard in the dry monsoon due
to inadequate and uneven rainfall. It
varies from place to place, however,and the northwestern region suffers
most from the drought. As much as 17%of the Aman crops, the main paddy crops in the wet season may be lost in a typical year due
to drought.

Earthquake:
The historical seismic data of Bangladesh and adjoining areas indicate that Bangladesh isvulnerable to earthquake hazard. The record of approximately 150 years shows that
Bangladesh and the surrounding regions experienced seven major earthquakes (with Mb =7). In the recent past, a number of tremors of moderate to severe intensity had already takenplace in and around Bangladesh. The Sylhet Earthquake (Mb = 5.6) of May 8, 1997, theBandarban Earthquake (Mb = 6.0) of November 21, 1997, the Moheshkhali Earthquake (Mb= 5.1) of July 22, 1999, the Barkal (Rangamati) Earthquake (Mb=5.5) of July 27, 2003, theMeghalay Earthquake (Mb=5.2) of March 02, 2013 and many more shakes in the recent
years may be cited as examples. Bangladesh and the northeastern Indian states have long

been one of the seismically active
regions of the world, and haveexperienced numerous large earthquakes
during the past 200 years. Many ofseismic-tectonic studies have been
undertaken on the area comprising the
Indo-Burman ranges and their westernextension and in the northern India. Major
active fault zones of the country havebeen delineated through geologicaltrenching and dating methods. A seismic
zoning map of Bangladesh has been
proposed in 1979 by Geological Surveyof Bangladesh (GSB) dividing the country
into three seismic zone which was
accompanied by an outline of a code forearthquake resistant design. Later, a new
updated seismic zoning map and detailed
seismic design provisions have been
incorporated in Bangladesh National
Building Code (BNBC 1993). A seismicity
map of Bangladesh and its adjoining
areas has also been prepared by BMD
Fig-1.9: Earthquake Zones in Bangladesh, source GSB.
and GSB. Bangladesh has beenclassified into three seismic zones with zone-3 the most and zone-1 the least vulnerable toseismic risks.
Table-3: List of Major Earthquakes Affecting Bangladesh
Epicentral
Epicentral
Epicentral
Distance from Distance from Distance
Dhaka (km) Sylhet City
from
(km)
Chittagong
(km)

Date

Name

Magnitude(Richter)

10 January,
1869

CacharEarthquake

7.5

250

70

280

14 July, 1885 Bengal
Earthquake
Great Indian
12 June, 1897
Earthquake
Srimongal
8 July, 1918
Earthquake

7.0

170

220

350

8.7

230

80

340

7.6

150

60

200

DhubriEarthquake
Bihar-Nepal
Earthquake

7.1

250

275

415

8.3

510

530

580

8.5

780

580

540

2 July, 1930
15 January,
1934
15 August,
1950

Assam
Earthquake1.5 Objectives of the Research:
1.5.1 Specific Aims:

To understand tools and processes on earthquake preparedness at a national and local
level in Japan.
To review response models and ways of working with other key responders.
To asses applicability of Japanese experience on earthquake response and recovery in
Bangladesh.
Replicating Japanese vast experience on earthquake risk reduction in Bangladesh.
To prepare recommendations for improvement of the National Earthquake Risk
Reduction Plan in Bangladesh.
1.5.2 Long term Goals:
This research will recommend an integrated framework for the earthquake preparedness toreview the existing standing orders, plans and policies. It will assist to align the strategic
direction of the earthquake preparedness with national priorities and international
commitments and outline the strategic direction and priorities to guide the design andimplementation of earthquake management plans, policies and programmes. It willcontribute to articulate the vision and goals for the National Earthquake Risk Reduction Planin Bangladesh.
1.6 Data and Information and Potential Resources:
To fulfil the specific aims of the research, it would be used qualitative and quantitative datafrom various published and unpublished sources in Bangladesh and Japan. Undermentioned
data and information have been used to conduct this research:Institutional and Legal Frameworks for Earthquake Preparedness.
Earthquake Response Plans of National, Prefectural and Local level.
ModelsAttribute data on past time earthquakes.
Statistical data
Maps, Satellite Image and photos.
Graphics and Charts.
CBDRR Observations from field visit.
Maps, Satellite Image, photo, statistical information, frameworks, charts and models havebeen used from potential sources like Government Office, DRR agencies, previous research,
articles and Journals. CBDRR Observations would be gathered from field visit, interviews,
lectures and briefings.

1.7 Research Methodology:
To attain the research objectives under-mentioned activities have been performed

1.7.1 Research Activities:
Literature Review.

Critical review of the current earthquake preparedness in Bangladesh
Understanding the earthquake preparedness in Japan.
Study of the case studies of great earthquakes in Japan to understand how well the
Early Warning System and coordination worked.
Understanding CBDRR programs conducted in Japan with special focus on Earthquake
and compares the participation of the community in the DRR process.
Learn how the community is prepared in Japan: learning, training, and drills.
Field Visits to emergency operation centres/emergency services response centres of
National, Prefectural and Local Governments to understand the networking andcoordination for emergency response.
Visits to DRR agencies such as Cabinet Office, JMA, and Disaster Management
Authority etc. in Japan to understand their legal system & frameworks, organizational
network and earthquake preparedness plan.

Chapter-2: Disaster Management System in Bangladesh:
A series of inter-related institutions, at both national and sub-national levels have beencreated for disaster management. As per the Rules of Business of the Government of
Bangladesh, the Ministry of Disaster Management and Relief (MoDMR) is mandated toformulate policies, prepare plans, and monitor and coordinate all aspects of disaster
activities. The field level activities of MoDMR are carried out by two subordinate offices e.g.
the Department of Disaster Management and Cyclone Preparedness Centre (CPP), While
DDM is responsible for dissemination of all information on natural disasters, including flood
information at community level, flood preparedness, awareness raising and capacity building
activities, and also is responsible for conducting relief and rehabilitating operations with thehelp of district and upazila administrations.
The Ministry issued the Standing Orders on Disaster (SOD) in January 1997 to guide andmonitor disaster management activities in Bangladesh. The SOD has been prepared forconcerned persons to understand their duties and responsibilities regarding disastermanagement. All Ministries, Divisions/Departments and Agencies shall prepare their own

Action Plans in respect of their responsibilities under the Standing Orders for efficient
implementation. The National Disaster Management Council (NDMC) and Inter-Ministerial
Disaster Management Coordination Committee (IMDMCC) will ensure coordination ofdisaster related activities at the National level. Coordination at District, Thana and Unionlevels will be done by the respective District, Thana and Union Disaster Management
Committees. The Disaster Management Bureau will render all assistance to them byfacilitating the process. A series of inter-related institutions, at both national and sub-national
levels have been created to ensure effective planning and coordination of disaster risk
reduction and emergency response management.

2.1 Regulative Framework
In order to manage the paradigm shift in disaster management, a disaster management
regulative framework is established under which the Bangladesh Disaster Management
Framework is implemented, and in which work of Ministries, Departments, NGOs and civilsociety are undertaken. The regulative framework provides the relevant legislative, policy andbest practice framework under which the activity of Disaster Risk Reduction and Emergency
Response Management in Bangladesh is managed and implemented. The framework iscomprised of:Disaster Management Act
The Disaster Management Act creates the legislative framework under which disaster risk
reduction and emergency response management is undertaken in Bangladesh, and the legal
basis in which activities and actions are managed. It also creates mandatory obligations andresponsibilities on Ministries, committees and appointments.
National Disaster Management Policy
The National Disaster Management Policy defines the national policy on disaster risk reductionand emergency response management. and describes the strategic policy framework, andnational principles of disaster management in Bangladesh. It is strategic in nature and describes
the broad national objectives, and strategies in disaster management.
National Plan for Disaster Management ( 2010-15 )The National Plan for Disaster Management defines in broad
outline the systemic and institutional mechanisms under which
disaster risk reduction and emergency response management
undertaken in Bangladesh. It outlines disaster management
vision, strategic goals and conceptual framework. It
establishes disaster management regulative and planning
frameworks, and identifies priority areas for disaster risk
reduction and emergency response management

Standing Orders on Disaster (SOD)The Standing Orders on Disaster outlines the disastermanagement arrangements in Bangladesh and describes thedetailed roles and responsibilities of committees, Ministries,
Departments and other organizations involved in disaster risk
reduction and emergency response management, andestablishes the necessary actions required in implementing
Bangladesh’s Disaster Management Model, e.g., defining therisk environment, managing the risk environment, andresponding to the threat environment.

is2.2 NATIONAL DISASTER CONTEXT
Frequently hit by various natural disasters like Cyclones, Storm surges, Floods, Tornadoes,
Droughts and other calamities.
Monsoon flooding is an annual occurrence shaping lives and livelihoods.
Almost 200 disaster events have occurred causing more than 500,000 deaths
and leaving prolonged damage to livelihoods, infrastructure and the economy.
Climate change is likely to cause significant impact in the form of severe floods, cyclones,
droughts, sea level rise and salinity affecting agriculture, livelihoods, natural orders, watersupply, health etc.
The disaster vulnerable people demonstrates strong coping capacity to face the disasterchallenges.

2.3 National and international Drivers
Millennium Development Goals (MDG)
Hyogo Framework for Action (HFA)
United Nations Framework Convention on Climate Change (UNFCCC)SAARC Framework for Action (SFA)

2.4 National Committees under SOD
National Disaster Management Council (NDMC)Inter-Ministerial Disaster Management Co-ordination Committee (IMDMCC)
National Disaster Management Advisory Committee (NDMAC)
Cyclone Preparedness Program Implementation Board (CPPIB)
Disaster Management Training and Public Awareness Building Task Force (DMTATF)
Focal Point Operation Coordination Group of Disaster Management (FPOCG)
NGO Coordination Committee on Disaster Management (NGOCC)
Committee for Speedy Dissemination of Disaster Related Warning/ Signals (CSDDWS)

2.5 Field Level Committees under SOD
District Disaster Management Committee (DDMC) headed by the Deputy Commissioner(DC) to co-ordinate and review the disaster management activities at the district level
Upazila Disaster Management Committee (UZDMC) headed by the Upazila Nirbahi Officer(UNO) to co-ordinate and review the disaster management activities at the Upazila level
Union Disaster Management Committee (UDMC) headed by the Chairman of the Union
Parishad to co-ordinate, review and implement the disaster management activities of theconcerned union
Pourashava Disaster Management Committee (PDMC) headed by Chairman ofPourashava (municipality) to co-ordinate, review and implement the disaster management
activities within its area of jurisdiction
City Corporation Disaster Management Committee (CCDMC) headed by the Mayor of City
Corporations to co-ordinate, review and implement the disaster management activities
within its area of jurisdiction.

2.6 National Institutions for Disaster Management:
Department of Disaster Management (DDM)
DDM is designed as a small dynamic professionals unit at national level to perform
specialised functions in the field of disaster preparedness, local disaster action planning,
contingency planning, raising public awareness, training and facilitating improved disaster
information flows. DDM works under MODMR and overviews and coordinates all activities
related to disaster management from the national level down to the grass-roots level. DDM iscommitted to enhancing regular dialogues and fostering co-operation in practical disaster
preparedness matters ‘before, during and after’ a disaster between all levels of government,
donors, non-government organisations, community groups and others. DDM’s main strength
is the mandate and authority for dissemination of early warning of different disasters. DDM
has a total of 48 technical professionals stationed at their head office in Dhaka. It has a vast
network under its authority through a standing order.
Currently, DDM is working on cyclone and flood information warning dissemination, but it
has plans to extend its dissemination activities to other disasters. A process of hazard
mapping is also under consideration. A website (http://www.ddm.gov.bd) is currently
available with only static historic information, but it could be made dynamic for updating withearly warnings like the FFWC website.
Cyclone Preparedness Program (CPP)
Community Based Early warning through devoted volunteers.
A Joint Venture Program of GOB & BDRCS.
To minimize loss of lives and properties in cyclonic disaster by strengthening the capacity indisaster management of the coastal people of Bangladesh.
Covers 13 districts and 37 Upazilas (Sub-District).
Total Volunteers: 49,215

Comprehensive Disaster Management Program (CDMP)
CDMP is a strategic institutional and programming approach that is designed to optimize thereduction of long-term risk and to strengthen the operational capacities for responding toemergencies and disaster situations including actions to improve recovery from these events.
Strategic Focus Areas:
Professionalizing the Disaster Management System: Establishment of Policy Program
Partnership Development Unit, Professionalizing development of Disaster Management
System, etc.
Partnership Development: Advocacy and Capacity Building of DMCs.
Community Empowerment: Program Gap Analysis, Risk Reduction Planning, Livelihood
Security and hazard Awareness, etc.
Expanding Preparedness Program across a broader range of hazards: Earthquake andTsunami Preparedness, Climate Change and Research.
Strengthening Emergency Response Capabilities: DMIC and Response Management.

Space Research and Remote Sensing Organization (SPARRSO)SPARRSO acts as the centre of excellence and national focal point for the peacefulapplications of space science, remote sensing and geographic information system (GIS) in
Bangladesh. SPARRSO also advises the government in all matters relating to spacetechnology applications and policies. SPARRSO maintains close collaboration with national,
regional and international organizations, institutions and agencies and disseminates
research results, satellite data and information to the relevant public, autonomous andprivate agencies for their development and policy-making activities. SPARRSO’s mandate
includes monitoring and research on environmental issues. For this purpose they receive
images daily to observe weather patterns and floods and prepare flood reports including
flood maps showing flood-affected areas.
Bangladesh Meteorological Department (BMD)
BMD is the government organization authorized for all meteorological activities in the country.
It maintains a network of surface and upper air observation stations, radar and satellite
stations, agro-meteorological observation stations, geomagnetic and seismologicalobservation stations and meteorological telecommunication system. BMD contributes toflood forecasting and warnings by preparing short/medium and long term weather forecasts,
3-hourly surface charts, 6 and 12-hourly upper air charts, heavy rainfall warnings, andspecial weather bulletins with storm surge information. BMD is the only government
authorized organization mandated to issue all sorts of weather forecast and record
meteorological observations (surface and upper air) in Bangladesh. BMD has been affiliatedto the World Meteorological Organization (WMO) since 1972.
FFWC is a division of the Directorate of Processing and Forecasting, under the Chief
Engineer, Hydrology. Together FFWC, Surface Water Hydrology (SWH) and Construction
and Instrumentation (C&I) undertake the transmission and processing of data for flood
forecasting and warning services. It maintains a strong institutional network for disseminating
flood forecasts at national level.
2.7 Other Institutions for Disaster Management:
Center for Environmental and Geographic Information Services (CEGIS)CEGIS is a Public Trust organization under the Ministry of Water Resources and functions
under a Board of Trustees chaired by the Secretary of the Ministry of Water Resources onbehalf of the government. CEGIS works in the fields of initial environment examination,
environmental impact assessment, disaster management modelling, natural resource andrisk management, GIS/RS mapping, and survey. CEGIS serves government and nongovernment organizations. CEGIS has developed several disaster and warning related tools
including a Community Based Flood Information System (CFIS); an Environmental
Monitoring Information Network (EMIN); and a Climate Forecast Application Network (CFAN).
Currently, CEGIS is in the process of development/acquiring technology for a regional basin
flood forecast modeling for use in Bangladesh. Also, CEGIS has started to acquire
knowledge on urban and flash flood forecasting.
An operational pilot system was developed to produce daily flood monitoring and forecast
maps for use at the community level under Community Flood Information System (CFIS).
CFIS project was designed as a pilot operational system to produce accurate and timely
information on current and forecasted flood conditions for a floodplain community by using
easy understandable mobile SMS. This created an important opportunity for low-cost,reliable, and deeply penetrating dissemination of flood forecasts for vulnerable communities.

CEGIS has developed a methodology for predicting the morphology process and bankerosion along the Jamuna, Ganges and Padma Rivers based on space-based technology.
The methodology makes it possible to predict morphological development and bank erosion
one to two years ahead.
The Institute of Water and Flood Management (IWFM)
IWFM is a research institute of the Bangladesh University of Engineering and Technology(BUET). Its mandate includes conducting research on floods focusing on integrated water
management, organizing seminars and workshops related to floods, and offering a post
graduate diploma in Water Resources Development.
Institute for Water Modelling (IWM)
IWM is an institute of learning and research in the fields of water modelling, computational
hydraulics and allied sciences established as a Public Trust under the ministry of Water
Resources. IWM activities in flood forecasting and warning include the collection of real timehydrometric data for running flood forecasting and inundation models; annually updating andvalidating the forecasting models; providing technical backstopping and training to FFWC;
assisting FFWC to expand into new areas; developing dynamic flood inundation models(MIKE FLOOD) and issuing medium (10 days) flood predictions based on climate forecasts
produced by the CFAB project.

2.8 Bangladesh National progress report on the implementation of the Hyogo
Framework for Action (2009-2011):

Priority for action 1“Ensure that disaster risk reduction is a national and a local priority with a strong
institutional basis for implementation”
PROGRESS:
9 A new ministry established to deal with disaster management affairs exclusively named
Ministry of Disaster Management & Relief (MoDMR)
9 National Disaster Management Plan ( 2010-2015 ) approved in April, 2010 linked withth

Vision 2021 and 6 Five Year Plan
9 Revised Standing Orders on Disaster ( SOD ) , which explicitly outlined the DRR & CCA
business for GO, NGO, public representatives & citizens
9 National Disaster Management Act has been published in 2012

Priority for action 02“Identify, assess and monitor disaster risks and enhance early warning”
9 Updating of the risk assessment 12 guidelines in revised SOD
9 Specific Sectoral Disaster Risk Reduction guidelines develops by CDMP
9 Detailed risk assessment mapping for earthquake and tsunami for three cities Dhaka,
Chittagong & Sylhet prepared and planned for new eight cities
9 DRR budget now 4.5% of national Budget
9 Climate Change Fund (CCF ) US $ 100m/Year
9 Bangladesh Climate Change Resilience Fund ( BCCRF ) US $ 110m
9 Resource allocation increased to all line ministries towards DRR
9 Development Partners support increases towards national DRR initiatives

Priority for action 03“Use knowledge, innovation and education to built a culture of safety and resilience at
all levels”
9 Bangladesh DM Education Research and Training ( BDMERT ) established
9 Key ministries, research institutions and civil society organization establishedwebsite for sharing of disaster related knowledge
9 DMIC established network with 64 Districts HQ and planned to expand to all 485
Upazilas by 2012
9 BMD. FFWC, CPP, BTV, Radio, mobile phone companies & Other electronic andprint media contributing significantly in dissemination of early warning anddisaster Messages
9 Disaster & climate risk information are included in text book from elementary tohigher secondary level
9 DRR education & special course in universities, institutions, armed forces div, civil
service college etc

Priority 04“Reduce the underlying risk factors “
9 National Adaptation Program of Action ( NAPA) & Bangladesh Climate Change
Strategy & Action Plan has already prepared
9 Bilateral & multilateral donors exploring the possibilities of creating multi-donor
trust fund to accelerate financing for research and adaptation
9 Climate change Cell established and focal points identified for each ministries
9 DRR & CCA link developed with the introduction of various program launched bydifferent ministries i.e sustainable land management program, climate resiliencecrop verities, cyclone resistance house etc
9 Strong institutional arrangement for implementing social protection program
9 National committee for updating national building code, land use plan
9 Disaster risk reduction & EIA for all development projects

Priority for action 05
9 National Plan for DM, DM Act, SOD mentioned tasks for all sectoral safety
preparedness
9 For existing structure, retrofitting techniques are being introduced to combat
earthquake
9 Mock drill guidelines for school and hospitals safety
9 Earthquake contingency developed for AFD, FSCD, DGHS & DRR
9 30,000 members of local DMCs imparted training on comprehensive DM
9 DMB established damage, loss and need assessment cell
9 60,000 volunteer are working 13 cyclone prone district
9 Search and rescue equipment
9 Adequate reserve of relief materials in each district2.9 Recent DRR Projects:
Construction of Bridges/Culverts (up to12m long)
Construction of Cyclone resistance Houses
Procurement of Equipment for Search and Rescue operation on Earthquake and otherdisasters.
Development of Community Volunteers
Construction of Flood and Cyclone Shelter
Comprehensive Disaster Management Program (CDMP) Phase 2
Inundation Map/Risk Map for storm Surges
Cyclone shelter Data Base
Micro-zonation Map for greater districts
Disaster Management Information center (DMIC)
Mobile Communication for early warning by Cell Broadcasting System (CBS) , SMS andInteractive Voice Response ( IVR )Chapter-3: Earthquakes in Bangladesh:
Tectonic frame work of Bangladesh and adjoining areas indicate that Bangladesh is suited
adjacent to the plate margins of India and Eurasia where devastating earthquakes haveoccurred in the past. Historical seismic catalogues (ISET, 1993) reveal that Bangladesh has
been affected by earthquake disasters since ancient times. Earthquakes occurring in 1664,
1828, 1852 and 1885 are shown to have Dhaka as epicentral area. Similarly cities like
Rangpur, Sylhet, Mymensingh, Chittagong, Saidpur, Sirajgonj, Pabna etc. have beenshown to be epicentral area of some of the major earthquakes in the past. Although theancient records do not specify the earthquake epicenter by giving coordinates in termsof latitudes and longitude, it is difficult to figure out whether these cities were directly
hit by earthquakes. However occurrences of earthquakes both inside and outside of thecountry and around major cities indicate that earthquake hazard exists for the country
in general and the cities in particular. Consideration of earthquake forces in structuraldesign, city planning and infrastructure development is therefore a prerequisite for
future disaster mitigation.
Unlike most natural disasters, earthquake affects millions of square kilometers in a very
short time, which in most cases, is less than a minute. As it catches everybody in an
unprepared state, earthquake tops the list of all natural disasters in producing damages
and death. The 12` June 1897, Great Indian earthquake of magnitude 8.5 affected wholeof Bangladesh and produced severe damage in northern, central and eastern parts of
Bangladesh. The 15th January, 1934 Bihar Nepal earthquake affected only northern partsof Bangladesh where intensity of ground shaking was only VII on the MMI scale.
The historical seismicity data of Bangladesh and adjoining areas indicate that
Bangladesh is vulnerable to earthquake hazards. As Bangladesh is the world’s mostdensely populated area, any future earthquake shall affect more people per unit area
than any other seismically active regions of the world. Both of the above factors call forevaluation of seismic hazard of Bangladesh so that proper hazard mitigation measures
may be undertaken before it is too late.
3.1 Tectonics and Geology:
Tectonics and geology of Bangladesh and adjoining areas have been discussed indetails by Guha, 1978; Matin et al., 1983; Sesoren, 1984; Bolt, 1985, 1987; and Khan,
1991; It is revealed in the above literatures that stratigraphy, structure and surface
geology of Bangladesh are related to its tectonic evolution which started during late
Cretaceous period when the northward moving Indian plate collided with the Eurasianplate. The collision caused the northern extremity of Bay of Bengal to separate into gulfs
of Assam and Burma. During second collision at the end of Eocene time, the gulfs wereshallowed. The third collision, which occurred in Middle Miocene, was intense due towhich folding occurred in the sediments of Chittagong, Sylhet and Assam. The fourth andfifth collisions caused mainly vertical movements. The Shillong Plateau and Mikir Hills
formed a horst and Dinajpur shield a graben during the fourth collision. The fifth collision
uplifted the red clay tablelands.

Fig-3.1: Tectonic Map of Bangladesh.
Geologically Most of West Bengal of India and whole of Bangladesh are occupied theBengal Basin, where the Precambrian basement lies more than 3 km below mean sea level.
The basin is bordered on the western side by the peninsula shield of India, and on theeastern side by the Shillong Massif.
The Precambrian rocks form the basement of all geological formations of Bengla Basinand shield areas. The surface geology of Bangladesh is essentially the geology of thesediments of only the Cenzoic Era. The geological succession of Bangladesh shows thatthe sub-surface stratigraphy includes, in addition to the continuation of the surface
geological formations, the Precambrian, the Permain Gondwana sediments, the upper
Jurassic Volcanic rocks, and a thin mantle of Cretaceous sedimentary rocks originatingFig- 3.2: Geological Map of Bangladesh, Source: BGS
mainly from the deposition of the denuded volcanic. It also indicates that the Cenozoic
sedimentary sequence is non-calcareous with sandstone, siltstone, sandy shale, shaleand lignite comprising most of the deposits.
3.2 Structure and Seismicity
Geological framework of Bangladesh and adjoining areas is shown in Figure I whichshows that it is surrounded by a number of tectonics blocks which have produced
damaging earthquakes in recent times. To the east, the Tripura-Naga Orogenic belt is azone of highly faulted tertiary deposits. In it and along the borders of the Shilong massif
occurs a number of faults of which the Sylhet fault, the Kopili fault, and the Dauki fault
are worth mentioning. The 180km long Sylhet lineanent passing in a NE-SW direction

Fig-3.3: Fault Modelling Map, Source GSB.
across the Sylhet district forms the surface expression of a deep-seated, high angle
reverse fault called the Sylhet fault. The fault has a dip of 70° towards South-East and isactive seismically at present. The July 8, 1918 Srimangal earthquake located near the
Sylhe fault originated due to subsidence along the southern side of a normal fault
trending WNW-ESE through Balisera valley in Sylhet. The depth of hypocentre estimatedfor this earthquake was 15 km.
To the northwest part of Bangladesh a northeast-southwest tending fault called Bogra
fault has recently been discovered. This fault is located to the west of the Jamuna Riverand south of Bogra town and is assumed to originate in the basement complex andFig-3.4: Fault Modelling with Google Image, Source, GSB.
extend into the Pleistocene layers up to depths of almost 300m. The Bogra fault system
may be associated with flexure of the basin along its north western margin. Running in NS direction through Longitude 90°E of the Jamuna lineament cuts through all eastern
Himalayan structures. It is the surface expression of a deep-seated sub-vertical fault called
Jamuna fault. This fault might have played active role towards the evolution of the
Meghalaya plateau during recent times (Gupta and Nandy, 1982). To the north east of thecountry the Shilong plateau is separated from the Sylhet plain by E-W trending Dauki
fault. Although -a number of epicenters occur in the plateau proper, only a few epicenters
appear on or close to the Dauki fault, including thereby that this fault is relatively inactive
during the recent times. Maximum depth of hypocentre of earthquakes in the plateau isonly 60 km. These earthquakes are caused by upward material transport from greater
depth, which produces tensional stress in the crustal rocks.
Considering geology and tectonics of Bangladesh and neighborhood five tectonic blocks canbe identified which have been active in producing damaging earthquakes. These are:
a.
b.
c.
d.
e.

Bogra fault zone
Tripura fault zone
Sub-Dauki fault zone
Shillong plateau andAssam fault zoneFigure-3.5: Earthquake Intensity in Different Faults.

Table-4: Maximum earthquake magnitude in different Tectonic blocks.
SI. NO. Tectonic block

Maximum Magnitude of Earthquake

1
2
3
4
5

7.0
7.0
7.3
7.0
8.5

Borga fault zone
Tripura fault zone
Sub Dauki fault
Shillong Plateau
Assam fault zone

3.3 Major Earthquakes Affecting Bangladesh
During the last 150 years, seven major earthquakes (with M > 7) have affected
Bangladesh. Table 2 shows the date, magnitude for each earthquake. Out of theseven earthquakes, only two (viz. 1885 and 1918) had their epicenters within
Bangladesh.
Table-4: Major earthquakes in Bangladesh during the, last 150 years.
Date

Name

October 11th, Kolkata
1737
January 10, Kachar
1869

Epicenter

Magnitude

22.60N, 88.40E,

X (in MM)>7 M India's deadliest
earthquake.
Jainati Hills 25.00 N 7.5,
Sylhet Town, area of
93.00 E
Depth 50 km. 650, 000 square miles.

July 14, 1885 The Bengal Bogra Fault 24.00 N, 7.0
Earthquake 90.00 E
June 12, 1897 The Great
Shillong Plateau
Indian26.00N, 91.00E
July 8, 1918 Mymensingh 24.50 N, 91.00 E
July 3, 1934

DhubriJanuary15,
Bihar-Nepal
1934
August 15,
Assam
1950
23rd October, Dergaon
1943
Assam

Comment

24.50 N, 91.00 E

8.7
7.4,
12 -14 km
7.1

Damage within a 100 km
radius of the epicenter, an
area of 6,00,000 sqkm
Dhaka-Kolkata.
Damage in a 100-kilometerradius of the epicenter
Rangpur experienced
severe tremor

Darbhanga 26.50N, 8.3
86.50E
Arunachal Pradesh 8.5

Felt throughout Bangladesh

26.80 N , 94.00 E

Felt throughout Bangladesh

7.05

the Ganges BasinTable-6: Recent Earthquakes in Bangladesh:
Date

Name

Epicenter

Magnitude Comment

May 8,
1997

Indo-Bangla
border

24.89N 92.25E,
34 km depth

6 Mb

November Chittagong Indo- 22.21N 92.83E,
21, 1997 Bangladesh
57 km depth
July 22,
Moheshkhali
21.47N 91.90E,
1999
Island10 km depth

6 Mb

December Indo-Bangladesh 21.43N, 91.76E
31, 1999 Border Region Near Sonadia

Mb - 4.3

Triggered a tidal surge thatreached heights of 4 feet.

January 4, Bungtlang
2000(Tripura), India

22.13N, 92.77E

Mb - 4.6

Southern Bangladesh epicentersabout 150 km from Chittagong.

December Kaliakoir, Dhaka 23.70 N 90.40 E
19, 2001(IMD)
June 20, Rajshahi
25.80N 88.86E
2002(NEIC)

4.2 IMD

Strong tremors (MM V-VI) in
Dhaka City
Shook buildings for 39 seconds in
Bogra and Syedpur.

5.2 Mb

ML 4.6

March 25, Bhutan
2003

27.260N 89.240E M 5.1(NEIC)

July 27,2003

22.85 N 92.31 E
Depth–10 km

BarkalRangamati

Felt from Chittagong to Rangpur,
also inSylhet and Meghalaya, India.
Felt throughout Bangladesh

Though the epicenter was in
Bhutan

M 5.6

Source: NEIC, USGS.
3.4 Vulnerability of Cities
By close examination of the seismicity maps presented shows that north-eastern cities ofBangladesh are more vulnerable to earthquake hazards than the central, eastern, southern,south western and western cities. The most vulnerable cities in the northeast are
Mymensingh, Kishorognj and Sylhet. The north western, central and south-eastern cities
which include Dinajpur, Rangpur Dhaka, Comilla, Chittagong and Cox's Bazar arecomparatively less vulnerable than the afore mentioned cities. The south-western andwestern cities are the least vulnerable and include cities like Rajshahi, Faridpur, Khulna andBarishal etc.
Dhaka, the capital city of Bangladesh is one of the fast growing cities in the world. Since its
independence, rapid urbanization turned Dhaka as one of the megacities of the world. The
city had already become the eleventh largest city in the world in 2000 and is projected to be
the sixth most populous city by 2010(Islam, 2005). In 2010, it becomes the 2nd worst city of
the world. The rapid growth of Dhaka’s population forced haphazard & unplanneddevelopment and speedy construction of new buildings in any and every available space.
Due to this, the capital city is now in a serious threat of upcoming massive disaster likeearthquake. Some incidents of recent building collapse in and around Dhaka City have

provided impetus of increasing concern about the seismic vulnerability of the built
environment in Dhaka City. Bangladesh lies in a seismically active zone making theoccurrence of major earthquakes a realistic possibility. Though Dhaka city lies in themoderate risk zone due to some others risk factor like high population density, unplanned
urbanization and lack of open spaces, the city is most vulnerable than any other parts of
Bangladesh.
3.4.1 Earthquake Seismic Hazard Assessment
Figure-3.6: Earthquake Seismic Hazard Assessment Map of the major Cities.

3.4.2 Earthquake Vulnerability Assessment:
Based on the developed database for the general building stock, vulnerability maps are
created. Each map shows the ward‐wise distribution of the following vulnerability factors
including occupancy class, structural type, building age, visible physical condition, andpopulation at risk. Moreover, the maps showing vulnerability of concrete buildings in thethree cities are developed by using the statistics obtained from the field survey including
presence of soft story, presence of heavy overhang, apparent building quality, presence ofshort columns, pounding possibility between adjacent buildings, and topographic effects.
The significant findings from the building vulnerability assessment are concluded asfollowings:
1. Among occupancy classes in all city corporation areas, residential class is the major
proportion. Their proportions are 81.3%, 81.7% and 85.2% in Dhaka, Chittagong and
Sylhet, respectively.
2. Among structural type of non‐engineered buildings from the survey results, BF (brickin cement mortar masonry with flexible roof) is the most common type in all cities. For
engineered buildings, C3 (concrete frame with masonry infill walls) is the mostcommon class.
3. From the survey results, age of buildings has been related to structural types. For
example, it was found that most buildings with concrete slab‐column frames (C4) areconstructed less than 10 years. On the other hand, most masonry buildings withconcrete floors (BC) ages more than 10 years. Also, light reinforced concretebuildings (LC) are found to be older than reinforced concrete buildings (RC).
4. As expected, all residential types have an average number of occupants per floorarea in the daytime less than the nighttime; nevertheless, the other occupancy
classes as commercial, industrial, government and education have the number ofoccupants in the daytime more than the nighttime.
5. The vulnerability factor which is the most common in Dhaka city is soft story (52%).
The common vulnerability factor in both Chittagong and Sylhet city is heavy overhang(38% and 46%, consequently).
For Lifeline inventory, the database including transportation including highway, railway, bus
and ferry and utility systems including portable water, waste water, natural gas, electric
power and communication systems in the 3 city corporation areas were developed. This
information was collected based on field surveying, data collecting from reliable sources andidentifying of quickbird image. From the collected data and developed vulnerability map, themajor findings are summarized as followings:
1. By defining road blockade potential as the building density (number of building perarea) dividing by the total length in each ward. In Dhaka, this value is found to be thehighest in southern part of Dhaka which is the old city.
2. About 51% of highway road in Dhaka, 3% of highway road in Chittagong and 13% of
highway road in Sylhet is located in the soil with very high liquefaction susceptibility.
It is noted that the liquefaction susceptibility depends on only geologicalcharacteristic and does not consider the effect of earthquake hazard, yet.
3. Most highway bridges in 3 city corporation areas are non‐seismic design. The overlay
map between liquefaction susceptibility and location of the bridge showed that there
are 6 major highway bridges in Dhaka, 4 Bridges in Chittagong and 2 bridges in
Sylhet which are located in moderate to very high liquefaction susceptibility area.
4. Two components of railway transportation system which are railway track and railway
facilities were found in 3 city corporation areas. 70% of railway track in Dhaka, 92%
of railway track in Chittagong and 84% of railway track in Sylhet are located in themoderate to very high liquefaction potential areas. From interviewing and expert
judgment, it was found that most structure and its facility do not have a seismic
design.

5. Most natural gas pipeline is 3 city coporation areas are arc‐welded join steel pipe.
56% in Dhaka, 90% in Chittagong and 45% in Sylhet of this pipe is located in themoderate to very high liquefaction potential area.

Figure-3.7: Earthquake shaking level of Dhaka City, Source, CDMP

Figure-3.8: Earthquake Evacuation space of Dhaka City, Source, CDMP

Figure-3.9: Possible Evacuation Route of Dhaka City, Source, CDMP

Figure-3.10: Trapped Population of Dhaka City, Source, CDMP

Figure-3.11: Location of Search & Rescue Capacities of Dhaka City, Source, CDMP

Figure-3.12: Potential catchment area of fire Station in Dhaka City, Source, CDMP

Figure-3.13: Highway Transportation System Damages of Dhaka City, Source, CDMP

3.4.3 Earthquake Risk Assessment:
An assessment presents the seismic risk of the buildings, essential facilities and lifelines
based on a GIS database that was developed from existing secondary data and field survey
in Dhaka, Chittagong and Sylhet City Coproration areas. The assessment provides forecastsof damage and human and economic impacts in those study areas that may result from anearthquake.
It is estimated that there are 326,000, 182,000, and 52,000 buildings in Dhaka, Chittagong,
and Sylhet City Corporation Areas respectively, which have an aggregate total replacement
value of 16,759 millions of dollars for Dhaka, 3,400 millions of dollars for Chittagong, and
940 millions of dollars for Sylhet. The total population of Dhaka, Chittagong and Sylhet areapproximately 7.2, 2.3 and 0.4 millions respectively.
There are 600 hospitals, 2,737 schools, 10 fire stations, 62 police stations and 18
emergencies response agency offices in Dhaka City Corporation area. While in Chittagong,
there are 162 hospitals, 1,033 schools, 12 fire stations, 11 police stations and 11 emergency
response agency offices. And in Sylhet, there are 87 hospitals, 211 schools, 2 fire stations, 6
police stations, and 9 emergency response agency offices.
The lifeline inventory in Dhaka City Corporation area includes over 1,270 kilometers ofhighway road, 10 highway bridges, and 2,582 kilometers of potable water, waste water, andgas pipes. While in Chittagong, the lifelines include 639 kilometers of highway road, 4highway bridges, and 792 kilometers of potable water and gas pipes. In Sylhet, the lifelines
include 148 kilometers of highway road, 2 highway bridges, and 268 kilometers of potablewater and gas pipes.
The earthquake in the worst case scenario will generate 72, 17, and 5 millions of ton ofdebris in Dhaka, Chittagong, and Sylhet respectively. It will also trigger 107 ignitions of fire
following earthquake in Dhaka, 36 ignitions in Chittagong, and 13 in Sylhet. Before theearthquake, there are 59,849 hospital beds available for use in Dhaka City Corporation area.
On the day of the earthquake with the worst case scenario, the model estimates that only
7,441 hospital beds (12%) are available for use by patients already in the hospital and thoseinjured by the earthquake. While in Chittagong, there are 21,664 hospital beds available foruse. With the worst case earthquake scenario, HAZUS estimates that only 923 hospital beds(4%) are available for use by patients already in the hospital and those injured by theearthquake. In Sylhet there are 8,722 hospital beds available for use, and in worst caseearthquake scenario it is estimated that only 17 hospital beds (0%) are available for use by
patients already in the hospital and those injured by the earthquake.
Regarding fatalities in the worst case scenario, it estimates the number of killed victims is
260,788, 95,183 and 20,708 for Dhaka, Chittagong, and Sylhet respectively if theearthquake occurs during night time (2:00AM). If the earthquake occurs during day time
(2:00PM), the number of victims is 183,450, 73,213 and 14,276 for Dhaka, Chittagong, and
Sylhet respectively. In the worst case scenario, estimated total building‐related economic
losses are 15,603 millions of dollars, 3,112 millions of dollars, and 1,105 millions of dollars in
Dhaka, Chittagong, and Sylhet City Corporation areas respectively. While for the lifeline, thelosses are 364, 244, and 117 millions of dollar in Dhaka, Chittagong, and Sylhet respectively.

3.5 Earthquake preparedness in Bangladesh:
It is evident from the past history of higher intensity earthquake in this region and the mild
shakes experienced in recent dates as an initial call for earthquake in major cities ofBangladesh. The overall development of these cities has taken place without any caution for
the earthquake. As such, it is feared that a high intensity earthquake in these cities may
result in to serious devastation and collapse the cities. Thus, a well-designed and fully
coordinated plan for optimum and efficient preparedness, response and early recovery,
usually known as Contingency Plan, in a systematic manner so that their capacities andresources are best utilized to fulfill the need complimenting and supplementing otheragencies. Realizing the need of coordinated and comprehensive emergency response,
United Nations has been promoting its humanitarian response activities in a cluster
approach. This approach is proved to be effective and efficient in responding to recent
disasters, for instances, the response during the earthquake on 8 October 2005 in Pakistan.
Hence, it has been decided that this concept of response operations in functional clusters beapplied in Bangladesh also in case of possible earthquake disaster.
In this approach, under National Earthquake Contingency Plan, all response activities aregrouped into nine relevant operational functional clusters based on the similarity of works
normal and disaster time mandates of different relevant organizations and possible
complementarily in the resources and capacities. The clusters are as follows:
1.
2.
3.
4.
5.
6.
7.
8.

Emergency Operations Cluster 1 – Overall Command and Coordination
Emergency Operations Cluster 2 – Search, Rescue and Evacuation
Health Cluster
Relief Services (Food, Nutrition and other Relief) Cluster
Shelter (Including Camp Management) Cluster
Water Supply, Sanitation and Hygiene Cluster
Restoration of Urban Services Cluster
Transport (Road, Rail, Air, Sea) Cluster
9. Security and Welfare Cluster

Considering the fact that people of Bangladesh did not have any living memories of major
earthquake, it was a great challenge to motivate people with regard to preparedness forsuch a disaster. Therefore, with due respect to communities’ physical vulnerability, thecommunity people’s response to this initiative was also given high importance.
CDMP works with the Partnership development among the DRR stakeholders, Community
development through public awareness and participation and Urban Community
Volunteerism. CDMP supports to develop 18000 urban volunteers for search rescue
activities and CDMP officials currently conduct earthquake drills at 70,000 primary andsecondary schools twice a year.
Bangladesh is working to enhance children’s understanding of earthquake preparedness
with the introduction of 10 new supplementary books for teaching the subject, which has
been part of the education curriculum in primary and secondary schools since 2004. With
these books, students will be taught about earthquake preparedness by rhymes and stories,
so that they can understand the risks.

In the Bangladesh 2010 National Education Policy disaster preparedness is cited as a corearea to be incorporated into the curriculum.
Earthquake Drills:

Chapter-4: Disaster Management in Japan:
Japan is particularly vulnerable to natural disasters because of its climate and topography,
and it has experienced countless earthquakes, typhoons, and other types of disasters. A
number of factors contribute to the high incidence of natural disasters in Japan. First, thecountry is subject to extreme climatic variations, such as seasonal rain fronts and typhoons,as well as heavy snowfall on the Sea of Japan side of the archipelago. Second, Japan's
topography is rugged and there are many faults and steep inclines. Third, Japan is located in
the Pacific earthquake belt and is frequently struck by earthquakes, while its complex
coastline is vulnerable to tsunamis. And fourth, Japan is located in the circum-Pacific zone,
in which almost all the volcanoes of the world are concentrated, and has 83 active
volcanoes-one-tenth of the world total.
4.1 Disasters in Japan:
Every year there is a great loss of people's lives and property in Japan due to disasters. Up
until the second half of 1950s, numerous large-scale typhoons and earthquakes caused
extensive damage and thousands of casualties. However, with the progress of society's
capabilities to address disasters and the mitigation of vulnerabilities to disasters bydeveloping disaster management systems, promoting national land conservation, improving
weather forecasting technologies, and upgrading disaster information communications
systems, disaster damage has shown a declining tendency. In spite of such eff orts, in 1995,
more than 6,400 people dies of the Great Hanshin-Awaji Earthquake. Also, in 2009, some
100 people died or went missing due to storms, flooding or heavy snowfall. There is also ahigh probability of the occurrence of large-scale earthquakes in the coming decades. As
such, natural disasters remain a menacing threat to the safety and security of the country.
Earthquake:Japan is located at a point on the earth’s surface where four of more than 10 tectonic plates
covering the globe are crushed against each other, making it earthquake prone. More than
20% of the world’s earthquakes (magnitude 6 or greater) have occurred in or around Japan.
Japan is well acquainted with the massive inter-plate earthquakes produced by platesubduction (such as the Great Kanto Earthquake of 1923) and the inland crustal
earthquakes caused by plate movements (such as the Great Hanshin-Awaji Earthquake of
1995)
Tsunami:Surrounded by water on all sides with long andcomplex coastlines, Japan is highly
vulnerable to earthquake-generated tsunamis. In reality, there has been severe damage
caused by various tsunamis in the past, including the Meiji-Sanriku Earthquake Tsunami(1896), Nihon-kai-Chubu Earthquake (1983), and Hokkaido Nansei-oki Earthquake (1993).
Volcano:There are 110 active volcanoes in Japan; on average, a total of 15 volcanic events (including
eruptions) occur every year, some of which seriously hinder human life. To continuously
monitor this volcanic activity, JMA deploys seismographs and related observation
instruments in the vicinity of 47 volcanoes that are remarkably active.

Source: Japan Meteorological Agency
Storm and Flood:
Japan is prone to a variety of water and wind-related disasters including flooding, landslides,
tidal waves and storm hazards, owing to meteorological conditions such as typhoons andactive weather-front systems and geographical conditions such as precipitous terrains andsteep rivers, as well as settlement conditions in which many of the cities are built on riverplains. One-half of the population is concentrated in possible inundation areas, which
account for about 10% of the national land. Although there has been a large reduction in thearea inundated by floods owing to soil conservation and flood control projects over many
years, the amount of general assets damaged in flooded areas has increased in recent
years. Additionally, as a long-term trend, there is an increasing tendency of downpours
throughout the country.
Snow:
Japan is a bow-shaped archipelago filled with steep mountain ranges. When cold winds blowin from Siberia in winter, the warm current flowing up the eastern coast from the south brings
heavy snowfalls to the Sea of Japan side of the country. Among the seasonal problems that
result every year are falls by people removing snow from their roofs, avalanches, andobstruction of traﬃc and city functions due to snow accumulation.
In the winter of 2005‒06, ferocious winds brought tremendous snowfalls to every part of
the Sea of Japan coastline. Many people were injured from falls as they cleared snow fromtheir roofs, while others were pinned by snow falling from rooftops or even by collapsingroofs. The death toll reached 152̶the second-worst total for snow-related deaths since theend of World War II. Fatal accidents continued in subsequent years, with 47 people
perishing in the winter of 2006‒07, 21 in 2007‒08 and 56 in 2008‒09.
4.2 Disaster Management Laws and Systems in Japan:
In Japan, the disaster management system has been developed and strengthened following
the bitter experiences of large-scale disasters and accidents.

Source: Cabinet Office, Japan
Disaster countermeasures are taken based on the Disaster Countermeasures Basic Act andvarious disaster management related laws.
4.2.1 Basic Acts
1.
2.
3.
4.
5.
6.
7.

Disaster countermeasures Basic Act (1961)
Act on Prevention of Marine Pollution and Maritime Disaster (1970)
Act on Disaster Prevention in Petroleum Industrial Complexes and other Petroleum
Facilities (1975)
Act on Special Measures for Large-scale Earthquakes (1978)
Act on Special Measures for Nuclear Disasters (1999)
Act on Special Measures for Promotion of Tonankai and Nankai Earthquake Disaster
Management (2002)
Act on Special Measures for Promotion of Disaster Management for Trench-type
Earthquake in the Vicinity of the Japan and Chishima Trenches (2004)

4.2.2 Acts & Law related to Disaster Prevention and Preparedness:
1.
2.
3.
4.

Erosion Control Act (1897)
Building Standard Law (1950)
Forest Act (1951)
Act on Temporary Measures for Disaster Prevention and Development of Special
Land Areas (1952)
5. Meteorological Services Act (1952)
6. Seashore Act (1956)
7. Landslide Prevention Act (1958)
8. Act on Special Measures for Disaster Prevention in Typhoon-prone Areas (1958)
9. Act on Special Measures for Heavy Snowfall Areas (1962)
10. River Act (1964)
11. Act on Prevention of Steep Slope Collapse Disaster (1969)
12. Act on Special Measures for Active Volcanoes (1973)
13. Act on Special Financial Measures for Urgent Earthquake Countermeasures
Improvement Projects in Areas for Intensified Measures (1980)
14. Act on Special Measures for Earthquake Disaster Countermeasures (1995)
15. Act on Promotion of the Earthquake-proof Retrofit of Buildings (1995)
16. Act on Promotion of Disaster Resilience Improvement in Densely Inhabited Areas(1997)
17. Act on Promotion of Sediment Disaster Countermeasure for Sediment Disaster
Prone Areas (2000)
18. Specified Urban River Inundation Countermeasures Act (2003)

4.2.3 Acts relating to Disaster Emergency Response
1.
2.
3.
4.
5.
6.
7.

Disaster Relief Act (1947)
Fire and Disaster Management Organization Act (1947)
Japan Coast Guard Act (1948)
Fire Services Act (1948)
Flood Control Act (1949)
Police Act (1954)
Self-Defense Forces Act (1954)

4.2.4 Acts related to Disaster Recovery and Reconstruction
1.
2.
3.
4.

Forest National Insurance Act (1937)
Act on Temporary Treatment of Rental Land and Housing in Cities (1946)
Agriculture Disaster Compensation Act (1947)
Act on Interim Measures for Subsidizing Recovery Projects for Agriculture, Forestry
and Fisheries Facilities Damaged Due to Disasters (1950)
5. Small-Medium Business Credit Insurance Act (1950)
6. Act on National Treasury Share of Expenses for Recovery Projects for Public Civil
Engineering Facilities Damaged Due to Disasters (1951)
7. Public Housing Act (1951)
8. Fishing Boat Damage Compensation Act (1952)
9. Railway Improvement Act (1953)
10. Act on National Treasury Share of Expenses for Recovery of Public School Facilities
Damaged Due to Disasters (1953)
11. Act on Interim Measures for Financing Farmers, Woodsmen and Fishermen
Suffering from Natural Disasters (1955)
12. Airport Act (1956)
13. Small-scale Business Equipment Installation Financial Support Act (1956)
14. Act on Special Financial Support to Deal with Extremely Severe Disasters (1962)
15. Fisheries Disaster Compensation Act (1964)
16. Act on Earthquake Insurance (1966)
17. Act on Special Financial Measures for Group Relocation Promotion Projects for18. Disasters Mitigation (1972)
19. Act on Payment of Solatia for Disasters (1973)
20. Act on Special Measures for Reconstruction of Disaster-stricken Urban Areas (1995)
21. Act on Special Financial Measures for Reconstruction of Jointly Owned Buildings in
Disaster-stricken Areas (1995)
22. Act on Special Financial Measures for Preservation of Rights and Profits of Victimsof Specified Disasters (1996)
23. Act on Support for Livelihood Recovery of Disaster Victims (1998)
24. The Japan Finance Corporation Act (2007)
4.2.5 Establishment of Comprehensive Disaster Management System: Disaster
Countermeasures Basic Act

To protect national land as well as citizens’ lives, livelihoods, and property from natural
disasters is a national priority. The turning point for strengthening the disaster management
system came after the immense damage caused by the Ise-wan Typhoon in 1959, and led tothe enactment of the Disaster Countermeasures Basic Act in 1961, which formulates acomprehensive and strategic disaster management system. The disaster management
system has been further strengthened following the lessons learned from large-scaledisasters such as the Great Hanshin-Awaji Earthquake.

Japan’s disaster management system addresses all of the disaster phases of prevention,
mitigation and preparedness, emergency response as well as recovery and rehabilitation.
With clear roles and responsibilities of the national and local governments, the relevant
stakeholders of the public and private sectors cooperate in implementing various disastercountermeasures.

4.2.6 Main Contents of the Disaster Countermeasures Basic Act

1) Definition of responsibilities for disaster management
2) Disaster management organizations
3) Disaster management planning system
4) Disaster prevention and preparedness
5) Disaster emergency response
6) Disaster recovery and rehabilitation
7) Financial measures
8) State of Disaster Emergency

4.3 Mission of the Cabinet Office:Along with a series of reforms of the central government system in 2001, the post of Ministerof State for Disaster Management was newly established to integrate and coordinate
disaster reduction policies and measures of ministries and agencies. In the Cabinet Office,which is responsible for securing cooperation and collaboration among related governmentorganizations in wide-ranging issues, the Director-General for Disaster Management is
mandated to undertake the planning of basic disaster management policies and response tolarge-scale disaster, as well as conduct overall coordination.
Additionally, taking into account the lessons learned from the Great Hanshin-Awaiji
Earthquake, the Cabinet Secretariat system was also strengthened, including theappointment of the Deputy Chief Cabinet Secretary for Crisis Management and theestablishment of the Cabinet Information Collection Center, to strengthen risk management
functions to address emergencies such as large-scale disasters and serious accidents.
Thereby, the Cabinet Office has a role in supporting the Cabinet Secretariat regarding
disaster management matters.

Figure 4.3: Organization of National Government and Cabinet Office (Disaster management)
Source: Cabinet Office, Government of Japan

4.4 Central Disaster Management Council
The Central Disaster Management Council is one of the councils that deal with crucial
policies of the Cabinet, and is established in the Cabinet Office based on the Disaster
Countermeasures Basic Act. The council consists of the Prime Minister, who is thechairperson, Minister of State for Disaster Management, all ministers, heads of major public
institutions and experts. The council promotes comprehensive disaster countermeasures
including according to requests from the Prime Minister or Minister of State for Disaster
Management.

Figure 4.4: Structure of Central Disaster Management Council
Source: Cabinet Office, Government of Japan

4.5 Disaster Management Planning System

1) Basic Disaster Management Plan: This plan is a basis for disaster reduction
activities and is prepared by the Central Disaster Management Council based on the
Disaster Countermeasures Basic Act.
2) Disaster Management Operation: This is a plan made by each designatedgovernment organization and designated public corporation based on the Basic Disaster
Management Plan.
3) Local Disaster Management Plan: This is a plan made by each prefectural andmunicipal disaster management council, subject to local circumstances and based on the
Basic Disaster Management Plan.

Fig-4.5: Disaster Management Plan.
4.5.1 Basic Disaster Management Plan
The Basic Disaster Management Plan states comprehensive and long-term disaster
reduction issues such as disaster management related systems, disaster reduction projects,
early and appropriate disaster recovery and rehabilitation, as well as scientific and technicalresearch. The plan was revised entirely in 1995 based on the experience of the Great
Hanshin-Awaji Earthquake. It now consists of various plans for each type of disaster, where
tangible countermeasures to be taken by each stakeholder such as the national and local
governments, public corporations and other entities are described for easy reference
according to the disaster phases of prevention and preparedness, emergency response, as
well as recovery and rehabilitation.

Figure 4.6 Structure of basic disaster management plan
Source: Book of disaster management in Japan

4.6 Disaster Management Structure
Disaster Management of Japan is categorized into 3 levels including national, regional andmunicipal level. The significance of each level is delineated as follows:
1) National Level: The Prime Minister is the National Commander through the National
Disaster Management Council, and the designed government organizations (23 ministries
and agencies), and designated public cooperation (63 organizations including independentadministrative agencies, Bank of Japan, Japanese Red Cross Society, NHK, electricity andgas companies and NTT). In this connection, the national council is responsible forformulation and promoting the implementation of the Basic Disaster Management Plan.
Meanwhile, the other two designed agencies of government and public cooperation are
responsible for formulation and implementation of the Disaster Management Operation Plan.
2) Prefectural Level: The Governor is the commander ordering via the Prefectural Disaster
Management Council, and designed government organization and public corporations inlocal. The prefectural council will conjunctionally work with the mentioned designed agencies
to formulate and promote the implementation of Local Disaster Management Plan.

3) Municipal Level: In this level, the Mayor of City, Town and Village is the commander, as
the same of Governor in prefectural level, will take function through Municipal Disaster
Management Council to formulate and promote the implementation of Local Disaster
Management Plan.

Fig-4.7: Disaster Management Structure, Source: Cabinet Office, Japan.

4.7 Disaster management Budget:
The National Budget for disaster management is approximately 1.2 trillion yen (Initial Budget
2010FY).
4.8 Research and Development:(1) Scientific and Technological Research in Disaster Reduction:

The Basic Science and Technology Plan-Third Term (2006), which describes Japan's basic
science and technology policies, sets a major goal of making Japan a country that can takepride in being safest in the world, and an intermediate goal of ensuring the security ofnational land, society and people's livelihoods. Based on this, the implementation strategy
for the plan sets 10 important issues on disaster reduction.

(2) Utilization of Earthquake Early Warning Information:

Earthquake Early Warning (EEW) information announces the estimated hypocenter andmagnitude of an earthquake as Well as the estimated arrival time of the S-Wave (theprincipal shock) of the earthquake and seismic intensity in each area. This information ismade possible by detecting the P-wave near the epicenter and immediately processing thedata since there is a difference in the speed of the P-Wave, which arrives faster and theprincipal shock which arrives later and causes more severely destructive phenomena. In thecase of a large-scale ocean trench-type earthquake, there may be a time lag (several
seconds to several tens of seconds) between the issuance of the EEW information and thestart of severe shaking (When the S-Wave arrives). This can be a critical time to be used for
mitigating damage by stopping trains and elevators, extinguishing flames or crawling undertables.
The issuance of EEW information by the Japan Meteorological Agency (JMA) began in
October 2007. The JMA initiated the service to provide earthquake Warnings as mandated
under a 2007 revision of the Meteorological Services Act.

4.9 Disaster Prevention and Preparedness
4.9.1 National Land Conservation
National land conservation projects such as river improvement, soil erosion control (sabo),and soil and coastline conservation are carried out strategically for protecting national land,
citizens' lives and property from various disasters. Although long-term plans by field had
been formulated in separate plans in the past, the Priority Plan for Social Infrastructure
Development," set forth in 2002, integrated these plans. Additionally, the Forest
Improvement and Conservation Works Master Plan" was formulated in 2003 to promotecomprehensive and effective forestry improvement and soil conservation projects. A plan for
the next five years, from 2009 to 2014, was adopted at a Cabinet meeting in April 2009.

4.9.2 Observing, 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 the early
evacuation of residents and response activities of disaster management organizations, andthereby reducing disaster damage. Organizations involved in disaster reduction, especially
the JMA, use 24-hour systems to carefully monitor various natural phenomena and weather
conditions. In addition to announcing observed information related to natural phenomena,
the JMA issues a Wide range of forecasts, Warnings and advisories regarding earthquakegenerated tsunamis and severe Weather events such as heavy rain.

4.9.3 Information and Communications Systems
The development of a quick and accurate communications system is essential for theeffective use of disaster early Warning information. For this purpose an online, system has
been built, linking the JMA with disaster management organizations of the national and local
governments and media organizations. Disaster management organizations have also beendeveloping radio communications networks exclusively for disasters: the Central Disaster
Management Radio Communications System, which connects national organizations; theFire Disaster Management Radio Communications System, which connects firefightingorganizations across the country; and prefectural and municipal disaster management radio
communications systems, which connect local disaster management organizations andresidents.
The Cabinet Office has established the Central Disaster Management Radio
Communications System to link with designated government organizations, designatedpublic corporations and local disaster management organizations. providing communications
by telephone, fax, data transmission, TV conferencing and transmission of pictures ofdisaster situations from helicopters. Furthermore, to provide backup for terrestrial
communications services such as a satellite mobile- telephone communications system for
municipal governments have been launched in 2011.
Simultaneous wireless communications systems using outdoor loudspeakers and indoor
radio receivers are used to disseminate disaster information to residents. Tsunami andsevere weather warnings are widely provided to citizens via TV and radio broadcasts.

4.9.4 Integrated Disaster Management Information System
Based on the experiences of the Great Hanshin-Awaji Earthquake, the Cabinet Office has
been developing an integrated disaster management information system that helps to grasp
the situation of the disaster early on and promotes information sharing among relevantorganizations. thereby enabling quick and appropriate decision-making for emergency
response operations.The main features of the Integrated Disaster Management Information
System are as follows.
1. Function for early assessment of damage from earthquakes: The System
receives information on earthquake intensity as observed by the JMA andautomatically activated by an earthquake intensity level of 4 or greater. It has afeature that estimates the distribution of seismic intensity and scale of damage(human suffering and building damage) Within 10 minutes.
2. Early damage assessment function using artificial satellites: When large-scaledisasters occur. this feature uses images from artificial satellites capable of Widearea observation to provide early assessment of damage.
3. Information sharing function: This feature plots disaster information provided bydisaster-management agencies to a map using GIS, so it can be freely accessed byall.

4.9.5 Main wide-area disaster-management base in the Tokyo Bay maritime area:
The first decision taken in the Urban Renewal Headquarters' Urban Renewal Project (June
2001) was to establish a core wide-area disaster-management base in the Tokyo Bay
Waterfront area (the Ariake-no-Oka and Higashi-Ohgijima areas). The function of this basewould be to secure a local headquarters for disaster-management activities in the event of alarge-scale. wide-area disaster in the Tokyo area. If an earthquake strikes directly beneath
Tokyo, a local disaster-management base is set up in the Ariake- no-Oka area to serve as
the capital's Wide-area disaster- management headquarters, as well as a base camp for
Wide-area support teams and a support base for disaster- relief medical care. During normal
times, the site is used for the exchange of disaster-management information among related
agencies and various training activities, to prepare for response in the event of disaster. The
Higashi- Ohgijima area's role, in the event of an earthquake striking directly beneath Tokyo,
is to coordinate the arrival of shipments of support materials from other locations in Japanand overseas; serve as a relay base for the shipment of these materials by sea, river andland; and to offer a temporary base camp for the mustering of wide-area support teams.

4.9.6 Issuing of Evacuation Order and Instruction:
When a disaster occurs or is imminent residents may start evacuating on their own, and themayor of the municipality may also issue an evacuation advisory or order. It is effective formunicipalities to prepare a manual explaining the criteria regarding disaster situations that
require the issuance of evacuation advisories or orders thereby helping the mayor’s quick
decision. The Cabinet Office, in cooperation with relevant ministries, published the"Guidelines for Producing a Decision and Dissemination Manual for Evacuation Advisories
and Orders” in 2005, and is promoting its implementation. Disasters that occurred in 2009
pointed up the need for a new approach to evacuation. When heavy rainfalls and sedimentdisasters struck that year, residents were unable to carry out appropriate evacuation
procedures, and disaster information was not transmitted properly. To examine all aspects ofthe evacuation issue, a Committee on Disaster Evacuation was established (decision of theCentral Disaster Management Council, April 21. 2010).

4.9.7 Measures for People Requiring Assistance during DisasterIn recent storms and floods, it was observed that most of the victims were elderly people
aged 65 years and over. When these disasters occur, many older people are unable toescape by themselves. Establishing a framework through which neighbors can support andassist the elderly and disabled is therefore an issue of vital importance for minimizing injury
and loss of life. To guide this process, the Cabinet Office formulated the Guidelines for
Evacuation Support of People Requiring Assistance During a Disaster in March 2005. Thispublication was followed in March 2007 with the preparation of Measures for Supporting
Persons Requiring Assistance During a Disaster. a guidebook filled with case studies fromrecent disasters. The Cabinet Office continues to support municipal governments in
producing overall plans (plans outlining policies for providing disaster support to persons
requiring assistance).

4.9.8 Disaster Reduction Drills and Exercises
Disaster reduction drills and exercises are good opportunities to review the effectiveness of
disaster management systems to ensure quick and appropriate emergency operations, andto enhance public awareness through wide-ranging stakeholders' participation. The Disaster
Countermeasures Basic Act stipulates the obligation to conduct disaster reduction drills. In
order to promote various drills and exercises nation-wide, the Central Disaster Management
Council sets forth an annual Disaster Reduction Drills Plan which stipulates the basic
principles for executing the drills and outlines the comprehensive disaster reduction drills
carried out by the national and local governments and relevant organizations.

On September 1st, Disaster Reduction Day, wide- area, large-scale disaster reduction drills
are conducted in every region across the country in collaboration with disaster relatedorganizations. Additionally, drills based on the experiences of the past disasters are
conducted in every region throughout the year. In recent years, practical disaster reduction
drill methods such as mapped- put role-playing systems have been introduced, in which
participants are not given any information beforehand and are required to make decisions
and respond to the situation based upon the information provided after the drill starts.
4.10 Disaster Response:
4.10.1 Outline of Disaster Response
The national and local governments need to quickly collect and share disaster and damage
information, and secure communications so that they can carry out effective emergency
activities such as search and rescue and medical operations. Based on such information,
local governments set up a disaster management headquarters and related organizations
establish their own operations mechanism.
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 director generals of the respective ministries and agencies gathers immediately at theCrisis Management Center in the Prime Minister's Office to grasp and analyze the disastersituation, and report the results to the Prime Minister. Inter-ministerial meetings at theministerial or high-ranking senior-official level are held to decide basic response policies ifnecessary. According to the level of damage, the government may establish a Headquarters
for Major Disaster Management (headed by the Minister of State for Disaster Management)
or a Headquarters for Extreme Disaster Management (headed by the Prime Minister).
Additionally a government investigation team headed by the Minister of State for Disaster
Management may be dispatched, or an onsite response headquarters may be established.

4.10.2 Wide-area Support System
In the case of large-scale disasters that exceed the response capabilities of the affected
local government, various Wide-area support mechanisms are mobilized by the National

Police Agency (Inter-prefectural Emergency Rescue Unit), Fire and Disaster Management
Agency (Emergency Fire Rescue Team), and Japan Coast Guard. Furthermore, the SelfDefence Forces can be dispatched for emergency response activities upon request from thegovernor of the affected prefectural government. Also, the disaster medical assistanceteams (DMATS) will be dispatched to provide Wide-area medical-transport services. These
teams transport severely injured persons via Self-Defence Forces vehicles to hospitals
outside the stricken zone.

Fig-4.8: Emergency Disaster Response.

4.11 Disaster Recovery and Rehabilitation:
4.11.1 Outline of Recovery and Rehabilitation Measures:
In rebuilding and recovering from disasters, the aim is not merely to restore public buildings
to their original state. Rather. these efforts encompass a more comprehensive range ofmeasures, including legal, tax-related and budgetary measures. Among other objectives,
these measures are taken to create the basic conditions for regional recovery, with greater
consideration of safety issues; to effect recovery in disaster-stricken zones in a planned
manner; to rebuild disaster victims’ ability to live autonomously; to provide disaster victims
with shelter; and to effect recovery in the regional economy.
In the case of the Great Hanshin-Awaji Earthquake in 1995, to achieve smooth and rapid
reconstruction and recovery from disaster, the Headquarters for Re-construction of the
Hanshin-Awaji Area (headed by the Prime Minister) was established, followed by the InterMinisterial Committee for Reconstruction of the Hanshin-Awaji Area. In the cases of the Mt.
Usu Eruption in 2000 and the Niigata-ken-Chuetsu Earthquake in 2004, inter-ministerial
recovery and rehabilitation committees were established. As such, ministries and agencies
work together on disaster recovery and rehabilitation, taking into account the opinions of
those in the disaster-stricken area.

4.11.2 Disaster Victims Livelihood Recovery Support System
The Disaster Victims Livelihood Recovery Support System is based on the Act on Support
for Livelihood Recovery of Disaster Victims. which was enacted in 1998 following the Great
Hanshin-Avvaji Earthquake of 1995. Under this system, a “livelihood recovery support
payment for disaster victims" is disbursed to persons whose livelihoods are severely
damaged by disasters. The purpose of this system is to support victims in recovering theirnormal lives, bring stability to the lives of residents, and facilitate the quick recovery ofdisaster-stricken areas.
Specifically, the livelihood recovery support payment for disaster victims is disbursed tohouseholds whose homes are completely destroyed in disasters of a certain scale or greater,
up to a maximum of three million yen.

4.11.3 Contents of Disaster Recovery and Rehabilitation Measures:
1. Disaster Recovery Project: The recovery of damaged public infrastructure facilities,
educational facilities, welfare facilities and agricultural, forestry and fishery facilities iseither conducted directly by the national government or put into practice by the local
government with subsidies from the national government.
2. Disaster Relief Loans: Persons engaged in the agriculture, forestry or fishery industries,
small and medium enterprises and low-income people Who incurred damage are eligible
for a variety of low-interest loans with rather generous conditions as compared to normal
ones.
3. Disaster Compensation and Insurance: Affected persons engaged in the agriculture,
forestry or fishery business can obtain compensation for disaster losses. Earthquake
insurance system has been established by the national government.
4. Tax Reduction or Exemption: For affected persons, measures are taken for the
reduction, exemption and postponed collection of income and residential taxes.
5. Tax Allocation to Local Governments and Local Bonds: For affected local
governments measures such as delivery of special tax allocations and permission toissue local bonds are taken.
6. Designation of Extremely Severe Disaster: When a disaster causes extremely severe
damage, it is designated an “extremely severe disaster." Various special measures areto be taken for disaster recovery projects.
7. Assistance for the Rehabilitation Plan: Assistance is provided, when necessary, forlocal government rehabilitation plans, which should be quickly and accurately formulated
and implemented.
8. Support for the Livelihood Recovery of Disaster Victims: Assistance is provided forvictims to support their self-supportion efforts through disaster solatia, money for supportof livelihood recovery of disaster victims and loans such as disaster relief funds andlivelihood welfare funds.

Chapter-5: Earthquake Prevention Experience in Japan
Japan locates the peripheral part between oceanic plate (Pacific Plate and Philippine Sea
Plate) and inland plate. Pacific Plate sinks under inland plate and Philippine Sea Plate at
Chishima Trough, Japan Trough and Izu-Ogasawara Trough. Also Philippine Sea Plate
sinks under inland plate at south-western trough, Nankai Trough, Suruga Trough andSagami Trough. This indicates that Japan, locating on the complex crust structure, has more
earthquakes comparing with other countries and have much damage from past earthquakes.
The earthquakes over 6 minus of earthquake intensity in Japanese scale happened 13 times(25 times when each aftershock was counted from the Hyogoken Nambu Earthquake in1995 to the Noto Hanto Earthquake in 2007). There are two types of large-scale
earthquakes which heavy damages were brought. One is the type that occurs near theboundary of plate, and this is divided into the type occurred between the plates and the typeoccurred within oceanic plate. The typical example of earthquake occurred between theplates was the Kanto Earthquake in 1923 and the Nankai Earthquake in 1946. This kind ofearthquake occurs when the deformation recovers after the deformation with plate’s sinking
in reaches its limit. Its frequency is generally said every several hundred years. The Tokai,
the Tonankai and Nankai Earthquake occurred in near future are predicted as this type. The
other type is the one in inland shallow area that strain energy is accumulated by deformationof inland plate resulted from plate’s sinking in and the energy is released by the disruption ofunderground fault. The typical example of this kind of earthquake was the Hyogoken Nambu
Earthquake in 1995, the Niigataken Chuetsu Earthquake in 2004, and the Noto Hanto
Earthquake in 2007.

Fig‐5.1: Earthquake Focus Distribution Magnitude 6.0 or Greater

Fig‐5.2: Plates around Japan

Fig-5.3: Seismicity Map (1900 to 2012) of Japan, source: USGS.

5.2 Earthquake Disaster Mitigation Policy in Japan:
5.2.1 Observation system
In order to constantly monitor seismic activity, the Japan Meteorological Agency((JMA) and other relevant organizations install and maintain seismometers that are used for
estimating the location of the epicenter and magnitude of an earthquake as well as fortsunami warnings, and seismic intensity meters that measure the intensity of ground motion,in numerous places nationwide. As soon as an earthquake occurs in or around Japan, theJMA analyzers P-wave at seismometers placed close to the hypocenter. If an earthquake ofintensity 5 or greater is forecasted, Earthquake Early Warning (EEW) information is issued.
Within about two minutes, it issues a seismic intensity information report for earthquakes ofintensity 3 or greater, and within about five minutes issues an earthquake information report
indicating the epicenter and magnitude ofthe earthquake and the seismic intensity inthe municipalities where strong shaking
was observed.
To monitor earthquakes, JMA operates anearthquake
observation
networkcomprised of about 200 seismographs and
600 seismic intensity meters. It alsocollects data from over 3,600 seismic
intensity meters managed by local
governments and the National ResearchInstitute for Earth Science and Disaster
Prevention (NIED).
When an earthquake occurs, JMA
immediately issues information on its
hypocenter, magnitude and observed
seismic intensity.

Fig‐5.4: Source: Japan Meteorological Agency

5.2.2 Dissemination of Forecast and EW:
In order to prevent and mitigate damage caused by natural disasters and support prompt
disaster prevention activities, JMA disseminates weather information and warnings via
various channels to government disaster prevention agencies, local governments, the mass
media and the public. An outline of EWS in Japan is given in figure 5. For this purpose, theAgency maintains direct communication links with meteorological offices and central/local
governments. Strong communication with municipal governments that play direct roles indisaster management and mitigation in affected areas is essential. Such communication is
ensured via various channels for information dissemination, such as prefectural
governments, NTT (Nippon Telegraph and Telephone Corporation), J-ALERT (an instantinformation broadcasting system introduced by the Fire and Disaster Management Agency(FDMA) and the Internet. To support prompt disaster mitigation activities by local
governments, the Agency has introduced a new information provision system called theInformation Network for Disaster Prevention (INDiP), which enables effective and rapid
dissemination of data in both text and graphic form. INDiP connects disaster prevention
agencies and local governments with JMA headquarters via the Internet and provides
detailed weather information and warnings tailored to individual municipalities. Information
for maritime users is transmitted via the JMH radio facsimile broadcast service operated by
JMA and fishery radio communications services. Such information is also disseminatedwithin the framework of theFigure 5.5: INDiP Network (Source: JMA)

Global Maritime Distress and Safety System (GMDSS), i.e. via the NAVTEX broadcast
service of the Japan Coast Guard for seas in the vicinity of Japan, and via the Safety-Net
broadcast service for ships in the high seas via the maritime satellite INMARSAT. Nowadays,
the Internet plays a vital role for JMA in the public dissemination of a wide range of
meteorological information not only on forecasts but also on historical and current
observation data.
J-Alert System - J-Alert is the system to immediately transmit emergency information suchas Emergency Earthquake information, tsunami warning, information of ballistic missiles,
which people have no enough time to deal with, is transmitted to the municipalities by using
satellite (via the Fire and Disaster Management Agency, the Cabinet Secretariat, and JMA).
It became operational on 09 February 2007 and on 01 October 2007 started sending the
emergency earthquake information. As of first March 2010, 344 municipalities haveintroduced this system. Among them, automatic activation system of radio broadcasting andcommunity FM has been introduced to 282 municipalities. The J-Alert framework has been
given in figure 5.6.

Figure-5.6: Framework of J-Alert System, source:JMA
5.2.3 Utilization of Earthquake Early Warning Information
Earthquake Early Warning (EEW) information announces the estimated hypocenter andmagnitude of an earthquake as well as the estimated arrival time of the S-wave of theearthquake and seismic intensity in each area. This information is made possible bydetecting the P-wave near the epicenter and immediately processing the data since there isa difference in the speed of the P-wave, which arrives faster, and the S-wave, which arrives
later and causes more severely destructive phenomena. In the case of a large-scale ocean
trench-type earthquake, there may be a time lag (several seconds to several tens ofseconds) between the issuance of the EEW information and the start of severe shaking(when the S-wave arrives). This can be a critical time to be used for mitigating damage bystopping trains and elevators, extinguishing flames or crawling under tables. Research anddevelopment has been promoted by the JMA in cooperation with related organizations, andthe provision of the EEW information to specific entities such as railway companies began in
2006. Earthquake or tsunami warnings are instantly delivered to central & local governments,
broadcasters, telecom carriers. After receiving this warning, local government delivers alarm
through their sirens or microphones. The flow of information in EEWS has been given in
figure 5.7 and use of this alert by train services in figure 5.10.

Figure-5.7: Outline of Earthquake Early warning Information (Source: MIC, Japan)

Figure-5.8: An outline of Earthquake Early warning Information to community (Source: MIC,
Japan)

Figure 5.10: An outline of Earthquake Early warning Information used to stop high speed
trains (Source: MIC, Japan)

5.3 Countermeasures against Large-scale Earthquakes:
It has been pointed out with a great sense of urgency that Japan can be struck by largescale earthquakes in the next few decades, in areas such as Tokai, Tonankai, Nankai, theJapan and Chishima Trenches, and directly below Tokyo and the Chubu and Kinki regions.
Regarding trench-type earthquakes, based on the related laws and regulations, appropriate
actions where various countermeasures need to be strengthened, the reinforcement ofobservation systems, and the formulation of a plan of action by relevant governmentorganizations and private corporations. In addition, preparations such as improvements inevacuation sites and firefighting facilities are being promoted based on laws specifying
special financial measures. With regard to each large-scale earthquake, including the Tokyo
Inland Earthquake, the Central Disaster Management Council has conducted examinations
to clarify the characteristics of the earthquake, estimate the damage and identify necessary
countermeasures. The following set of plans and strategies for each large-scale earthquake
are now being developed: the “Policy Framework,” a master plan that includes a range ofactivities from preventive measures to post-disaster response and recovery; the “Earthquake
Disaster Reduction Strategy, ”to determine an overarching goal of damage mitigation andstrategic targets based on the damage estimation; and the “Guidelines for Emergency
Response Activities,” which describes the actions to be taken by related organizations. It isnecessary to keep working on countermeasures nationwide, as has been witnessed by theexamples of the major earthquakes of Hanshin-Awaji and Niigata-ken-Chuetsu, becausesuch a disaster can occur anywhere in Japan. Committee on Earthquake Disaster Reductionin Local Cities is examining possible countermeasures.

Fig‐5.11: Flowchart of Formulation of Countermeasuresagainst Large‐scale
Earthquakes

Fig‐5.12: Large‐scale Earthquakes

Countermeasures against disasters in Japan can be broadly classified into;a. research into the scientific and technical aspects of disaster prevention;b. the reinforcement of the disaster prevention system, its facilities and equipment, andother preventive measures;
c. construction projects designed to enhance the country's ability to defend against
disasters;d. emergency measures and recovery operations ande. the improvement of information and communication systems.

5.3.1 Countermeasures against Tokyo Inland Earthquakes: A case study
It is believed that in the capital area (Tokyo), massive trench-type earthquakes with amagnitude of 8 or greater, like the Great Kanto Earthquake (1923), will occur at intervals of
200-300 years. Additionally, it is presumed that several Tokyo Inland Earthquakes of M7
scale will occur before a M8 scale earthquake, and the imminent possibility of such an eventin the first half of this century has been pointed out.
Many types of Tokyo Inland Earthquakes are assumed due to various possible epicenters
and the complicated mechanism of the occurrence. The Central Disaster Management
Council has carried out damage estimations for 18 types of Tokyo Inland Earthquakes, andassumed extensive damage including a death toll of approximately 11,000 people, totalcollapse of 85,000 buildings and a maximum economic loss of 112 trillion yen in theearthquake with an epicenter in the northern part of Tokyo Bay (assumed scale of M7.3).
In 2005, the Council established the Policy Framework for Tokyo Inland Earthquakes, withthe main items being to secure the continuity of the capital functions and countermeasures
to reduce massive damage. In 2010, this policy framework was revised to include specificFig‐5.13: Seismic Intensity Tokyo Inland Earthquake

Fig‐5.14: Reinforcement Dispatch Plan

measures to handle large numbers of evacuees or travelers unable to return to their homes.
Additionally, in 2006, the council drafted the Tokyo Inland Earthquake Disaster Reduction
Strategy, with general goals of halving the death toll and reducing the economic loss by 40%,
as well as strategic goals such as increasing the proportion of earthquake-resistant houses
and buildings to 90% of total housing stock and increasing the fixed furniture rate to 60%
within 10 years.
Fig-5.15: Source: Book of disaster management in JapanThat same year, the Council also drafted the Guidelines for Tokyo Inland Earthquake
Emergency Response Activities. Plans specifying specific activities were then drawn up on
the basis of these guidelines.

5.4 Earthquake Disaster Management Strategy:
In March 2005, disaster mitigation objectives were determined. These set forth specificobjectives, including timeframe, regarding the mitigation of human and economic damage
from a large-scale earthquake. An earthquake disaster management strategy was thenformulated that presents in ordered form those items that should be addressed selectively
and strategically in order to meet the mitigation objectives.
The earthquake disaster management strategies formulated on that occasion have to dowith the Tokai Earthquake and the Tonankai and Nankai Earthquakes. In every case, they
set disaster mitigation objectives that call for reducing fatalities and economic damage by
one half in the coming decade. They also set specific objectives by which to achieve that
goal, such as aiming for a rate of earthquake proofing of 90% for residences, and drawing up
tsunami hazard maps for all coastal municipalities. Disaster mitigation objectives of this kind
are not only for the national government, but are meant to be shared by society at large,
including local governments, related organizations, and local residents. The local
governments concerned have therefore been requested to formulate their own regional
objectives in light of the earthquake disaster management strategy. Follow-up surveys will
be conducted at three-year intervals to check on the status of progress. There are plans toformulate earthquake disaster management strategies in stages for other large-scale
earthquakes, as well, including major earthquakes centered in Tokyo.
Like the Niigata Chuetsu Earthquake, earthquakes could occur anywhere in Japan.
Consequently, local governments should make provisions for earthquakes other than thelarge-scale kind addressed by the earthquake disaster management strategy. They arebeing required to come up with damage scenarios in light of their regional characteristics,
formulate disaster mitigation objectives accordingly, and promote effective and efficientearthquake countermeasures.

5.4.1 Earthquake-proofing of Houses, Buildings and Infrastructures
Approximately 80% of the people who died in the Great Hanshin-Awaji Earthquake were
suffocated or crushed when they were trapped in collapsing homes and other buildings. The
standards for earthquake proofing of buildings today were revised in 1981 in light ofexperience from the Miyagi-Ken Oki Earthquake of 1978, and the majority of buildings thatcollapsed during the Great Hanshin-Awaji Earthquake predated the 1981 standards. In 1995,
therefore, the Act for Promotion of the Earthquake Proof Retrofit of Buildings was enacted topromote earthquake proof reinforcement of existing buildings. (Subsequent progress inearthquuake proof retrofittingrw inadeq
wasquate, and thist
law waas amended
d to better promotepsuch reetrofitting in a special Diet
D session in 2005.)
The cuurrent state of earthquuake proofiing of build
dings in Ja
apan is esttimated as follows:
Approximately 25%% of residen
nces (appro
oximately 11
1.5 million out
o of somee 47 million houses)
are thoought to ha
ave inadequuate earthq
quake proo
ofing, while the corressponding fig
gure forbuilding
gs other tha
an residencces is appro
oximately 35%
3(approxximately 1.2
2 million ou
ut of 3.4
million buildings).
b
Fiigure-5.16: Number off Residentss Urgently Requiring
R
E
Earthquake
e Proofing

uake proofin
ng of resid
dences, individual hom
meowners mustmbe
To raisse the rate of earthqu
made moremaware
e of prepara
ation for ea
arthquakes, and their houseshmusst be evalu
uated forearthquuake resistance. Efforts must alsoabe mademat thee regional level to promotepearthquuake proofin
ng of resideences as pa
art of urban planning effforts to make towns an
nd cities
safer in disasters.
h as evalua
ation for earthquake resistance,, earthquakke proof
Meanwhile, procedures suchsurate fina
ancial burdden. The national
retrofittiing, and rebuilding impose a commens
governmment has th
herefore souught to prom
mote those activities byy making acctive use of subsidy
systemss, financing
g systems, anda so on. A tax plan tot encourag
ge earthqua
ake proof retrofitting
is slatedd to be crea
ated in fisca
al 2006.
It will bee necessaryy to underta
ake these variousv
apprroaches in combinationcn. They include, forinstancee, the wid
despread awarenessaand use of hazard maps, thee developm
ment oftechniques that alllow people
e to do earrthquake prroof retrofittting of theiir residence
es whilen them, thee developme
ent of low-ccost earthq
quake prooff retrofitting
g methods, and theliving increationn of arrangements to heighten th
he asset va
alue of safe
e buildings by explainiing theirearthquuake proof qualityqat th
he time of sale. Damaage to build
dings is thee principal cause
cof
fatalitiess. It is also a causal fa
actor in the outbreak of fires, the spreadsof fiires, the creeation ofevacuees, the obsstruction off rescue acctivities, thee creation ofo rubble, aand other forms
fof
ed damage. The nation
nal and local governm
ments shouldd work toge
ether and withw localextenderesidents on earthquake-proofing buildings in a selective and focused manner. This would
be the most valuable earthquake countermeasure we could take at this time.
In view of this situation, the Central Disaster Management Council drafted the “Urgent
Countermeasures Guideline for Promoting the Earthquake-resistant construction of Houses
and Buildings” in 2005, which stipulates that earthquake-resistant construction throughout
the country should be urgently and strongly enforced in close cooperation with related
ministries as a national priority.
In line with this, the Act on Promotion of the Earthquake-proof Retrofit of Buildings wasamended to strengthen measures such as the development of a promotion plan forimproving earthquake-resistant construction by local governments. Additionally, the subsidy
system that provides financial support to promote earthquake-resistance diagnosis andretrofit has been expanded, and tax reduction measures to promote earthquake-resistantretrofit of residences and commercial buildings have been established.
The Cabinet Office has released the “Map of Weak Subsurface Layers Nationwide,”
indicating weakness against earthquake tremors in 1km2 blocks throughout Japan. It has
also summarized a method for each municipality to produce an “Earthquake Disaster Hazard
Map” that indicates subsurface layer weakness in 50m2 blocks and the danger of building
collapse, and is working on disseminating this method.
Hyogo Earthquake Engineering Research Center:
Construction of this facility began in 1999 and will be completed in 2005. Therefore, thisfacility will begin to make its contribution ten years after the Hyogoken Nanbu (Kobe)
Earthquake.

The world's largest shaking table, which can simulate high level ground motions, is taking
shape in Japan. The opportunities and challenges provided through this facility are great. It
will be a focus of full-scale testing of structures due to high-intensity earthquakes.

Emergency Response and Communication System of Osaka Gas Engineering Co. Ltd.,Japan
Osaka Gas Engineering Co. Ltd. supplies gas in Kansai region of Japan which comprises of
six prefectures namely Hyogo, Osaka, Kyoto, Nara, Wakayama and Shiga consisting of 6.3
million households/customers. The company ensures safety in areas heavily damaged byearthquakes by stopping city gas supply. The intelligent gas meters installed at eachcustomer’s location automatically shut off at 200 (gal). Furthermore, low pressure gas supply
is automatically shut off in earthquakes capable of damaging pipelines and structures by anautomatic shut-off system installed at medium pressure governor B. Moreover, in extreme
cases (widespread damage), city gas supply can be shut off remotely from the Central
Control Center and Back-Up Center. A diagrammatic presentation of the emergency shut off
system is given in the figure 5.17.

Figure-5.17: System of Emergency shutting off gas supply by Osaka Gas (Source: Osaka
Gas Co. Ltd.)In-house radio network - In order to smoothly produce and supply city gas, Osaka Gas
remotely monitors and controls city gas supply 24-hours a day. Because around-the-clock
operation is necessary as much in an earthquake as on a regular basis, Osaka Gas

introduced a radio network that works by radio waves and satellite. System of radio network
operated by the company is given in the figure 5.18.

Figure-5.18: Radio Communication System of Osaka Gas (Source: Osaka Gas)

5.4.2 Utilization Hazard Maps To Promote The Earthquake-Proofing Of Buildings:
One means of informing local residents about the risks of earthquakes that could occur is touse maps that project damage scenarios by locality. It is important for people to know what
areas face greater risks of casualties due to building collapse, or what areas are expected tobe more liable to damage from spreading fires. These maps are an effective means formaking people aware of such factors.
Examples of the creation of earthquake hazard maps at the local government level include
the cities of Tokyo and Yokohama. The creation of hazard maps has occasioned progress inearthquake proofing in Yokohama, which has a good record of performance in this regard.
National and local governments can create and publicize earthquake disaster prevention
maps that are detailed enough to allow people to identify individual neighborhoods. This is
one means of raising awareness of disaster management among residential and otherproperty owners, and it is an effective method to make the public better understand for thenecessity of earthquake-proofing. The Cabinet Office is therefore creating a manual
instructing people how to make earthquake disaster prevention maps that show the risk ofbuilding collapse in familiar locations close to home.

Figure-5.19: Example of Earthquake Disaster Management Map (Naruto City, Tokushima Prefecture)

5.4.3 Earthquake-proofing of disaster management bases (schools and otherinstitutions) and key infrastructure:
A survey by the Ministry of Education, Culture, Sports, Science and Technology showed thatapproximately 68,000 of the some 130,000 non-wooden buildings at public elementary andlower secondary schools throughout Japan had been confirmed earthquake resistant. Thatamounts to no more than approximately 52% (as of April 2005). School facilities are
expected not only to assure the safety of children and other people when disaster strikes,
but also to serve as emergency evacuation sites for local residents. As a matter ofearthquake disaster management and countermeasures, therefore, it is particularly importantthat these buildings be earthquake resistant.
Also an urgent issue is the earthquake proofing of certain key buildings and infrastructure.
Hospital facilities, for example, must hold inpatients and other people with special needs,
and also provide treatment for people who are injured in a disaster. Government offices,
local government facilities, and other public facilities must serve as centers for emergency
activity (Figure 11). The earthquake proofing of roads, airports, harbors, and other such
critical infrastructure must also be facilitated.

Figure-5.20: Status of Earthquake Proof Reinforcement of Public Facilities

5.4.4 Business continuity plans for companies
Measures for disaster management by companies are also essential in order to mitigate
damage. If companies are able to carry on their own business when disaster strikes, so thatthey keep up employment in the affected area and maintain the supply chain fromprocurement of raw materials through to marketing, then their activities will tend to mitigate
the damage to the regional economy and society.
For this reason, guidelines to support companies in formulating business continuity plans(BCP) were compiled in August 2005 (Figure 12). Business continuity measures for acompany should be seen essentially as a management strategy for protection of thatcompany. It provides for the continuation of important operations to the maximum extent
possible during a disaster, and for prompt recovery of the company's level of operation. It
also protects against the loss of clients and business to competing companies while
operation is suspended, the decrease of market share, and the decline in the company's
reputation. Specific measures include preparing backup computer systems, securing reserve
office space, assuring the ready availability of key personnel, and so on. These are all typicalapproaches. In Europe and America, companies that prepare for possible disaster in asystematic, organized manner have gradually come to be highly appreciated by theirbusiness connections and by the market.

Figure-5.21: Business Continuity Plan (BCP)

Certain business continuity measures require particularly urgent facilitation. These aremeasures to address a major earthquake centered in Tokyo, which is envisioned to cause
economic damage amounting to approximately 112 trillion yen. That would be 1.4 times thenational budget. Japan's core economic functions are to a very high degree centered in
metropolitan Tokyo, and if such a disaster were to occur there, the impact would not belimited just to those areas directly affected by the earthquake. The wider effects are likely toextend throughout the country, and even overseas. In the context of advancing economic
globalization, and in the interest of increasing confidence in Japan's security, among otherreasons, the public and private sectors must act together on measures that would hold such
effects to the minimum.

5.4.5 Improvement of evacuation areas
Recent disasters in general, not limited to earthquakes or storms and floods alone, havefound the majority of victims among elderly people, the disabled, foreigners, and other suchpeople with special needs. Indeed, consideration for these people with special needs has
become an important issue in disaster management. Plans have therefore been made to
improve support systems in a variety of ways, including efforts to ascertain where people
with special needs can be found under normal conditions and to formulate individual
Evacuation Support Plans for people with special needs.
It would be desirable to improve systems intended to prevent and ameliorate problems forpeople living as evacuees. This would include, for example, the early detection of any
deterioration of vital functions among evacuees, and particularly of inactive life diseases(disuse syndrome). It would also be desirable to study schools and other evacuation facilities
under normal conditions in light of actions that will enable their smooth operation asevacuation sites when disasters do occur. Measures should be taken, for instance, topromote the stockpiling not only of food, heating equipment, fuel, and so on, but also of
partitions to allow privacy among evacuees, portable toilets, eating utensils, and other such
goods that will effectively help evacuees to maintain healthy lives.
Settlements in hilly and mountainous areas and at coastal locations that are likely to become
isolated are required to build up stockpiles on an appropriate scale. These should include
water, food, and other everyday goods, medical supplies, portable toilets, fuel for emergency
generators, and so on. Power sources that can supply electricity within each settlement will
be studied for feasibility, to include solar power generation and wind power generation. It will
be necessary to study how essential services may be provided, according to thecircumstances, not on a network model but rather by the use of propane gas, joint septic
tanks, and so on, and even by the improvement of independent facilities for each household.

5.4.6 Effects of long-period seismic waves on structures:
Ocean trench earthquakes and other such enormous earthquakes have very large source
regions. For this and other reasons, the movement of such an earthquake tends to include
many seismic wave components with a rather long period of 2–20 seconds that cause
buildings to sway slowly.
In a basin like the Kanto Plain that is covered by a thick layer of sedimentary deposits, theselong-period seismic waves form as surface waves. Depending on the soil structure, theamplitude of the waves may grow even larger and their duration may also become longer.
Studies and research must therefore be conducted regarding the effects on structures, andespecially on high-rise buildings and other large structures, of these long-period seismic
waves, which are still not adequately understood. The necessity for new countermeasures
also requires study. Concrete studies of these matters are presently being carried on incoordination with the Japan Society of Civil Engineers and the Architectural Institute ofJapan.

Chapter-6: A Comparative Study of Earthquake Management System between Japanand BangladeshNo.

Parameters ofComparison

Japan

Bangladesh

1

Legal
Frameworks

Act & Laws related to:- Disaster Countermeasures Basic Act- Disaster Prevention and Preparedness- Disaster Emergency Response- Disaster Recovery and Reconstruction
Disaster Management Planning:- Basic Disaster Management Plan
- Disaster Management Operation- Local Disaster Management Plan

- Disaster Management Act- National Plan for Disaster
Management- Standing Order on Disasters
(SOD)

2

Institutional
Frameworks

Central Disaster Management Council
comprises with:- 23 Govt. ministries and agencies- 63 designated public cooperation including
independent administrative agencies, Bankof Japan, Japanese Red Cross Society, NHK,
electricity and gas companies and NTT.
Prefectural Disaster Management Council:- Designed government organization andpublic corporations in Prefecture level.
Municipal Disaster Management Council:- Designed government organization andpublic corporations in the local City, town
and village level.

National Disaster Management
Council (NDMC):Headed by Prime Minister with 15
ministries and armed forces.
Inter-Ministerial Disaster
Management Co-ordination
Committee (IMDMCC): 31
ministries and Govt. agencies.
District Disaster Management
Committee: With district level all
govt. and local govt. organizations.
Disaster Management Committees
in the Upazilla, Union, City
Corporation, Paurashava andVillage level comprises withrespective govt. and non-govt.
organizations.

3

Earthquake
Observations

No system for earthquake
observation4

Early Warning To monitor earthquakes, JMA operates anearthquake observation network with 200
seismographs and 600 seismic intensity
meters. It also collects data from over 3,600
seismic intensity meters managed by local
governments and the National ResearchInstitute for Earth Science and Disaster
Prevention (NIED).
 Estimation of Earthquake P-Wave and SWave.
According to the Meteorological Services
Act: Japan Meteorological Agency (JMA)
issues EEW information to mitigate thedamage by stopping trains and elevators,
extinguishing flames or crawling under tables
and get opportunity to take immediate safetymeasures by people.
 Introduction of J-Alert System.
 Earthquake of intensity 5 or greater isdisseminated by Forecast and EW by JMA.

5

Information & When an earthquake occurs: JMA

After shock, Bangladesh

No system for Early warning

Communications

immediately issues information on its
hypocenter, magnitude and observed
seismic intensity.
 JMA maintains direct communication links
with meteorological offices andcentral/local governments.

Meteorological Department
disseminate the magnitude.

 JMA disseminates weather information andwarnings via various channels togovernment disaster prevention agencies,
local governments, the mass media and the
public.
 J-Alert System - J-Alert is the system to
immediately transmit emergency
information such as Emergency Earthquake
information.

6

Emergency
Response Introduction of Information Network for
Disaster Prevention (INDiP).
An emergency team composed of thedirector generals of the respective ministries
and agencies During large scale disaster tograsp and analyze the disaster situation, andreport the results to the Prime Minister.
Inter-ministerial meetings are held to decidebasic response policies.
A government investigation team may bedispatched.
Wide-area support mechanisms aremobilized by:- the National Police Agency (Interprefectural Emergency Rescue Unit)- Fire and Disaster Management Agency(Emergency Fire Rescue Team)- Japan Coast Guard.
The Self-Defence Forces can be dispatched
for emergency response activities uponrequest from the governor of the affected
prefectural government.
The disaster medical assistance teams(DMATS) are dispatched to provide Widearea medical-transport services.
SAR Operations: Fire and Disaster
Management Agency (FDMA) is responsible
for SAR operations in Japan. SAR operations
begin at the local level, conducted mainly byfire services, both professional and volunteer
fire fighting fighters, and the police.
Japan Disaster Relief (JDR) Search andRescue Team.

According to Standing Orders on
Disaster, Department of Disaster
Management is responsible toemergency response by Civil
Defence and Fire Service and
Urban Volunteers.
Capacity Building Programme for
Search & Rescue.

7

Building &Infrastructures

8

Recovery &Rehabilitation

9

Education &Research

10

Community

Act & Laws related to:- Building Standard Law- Housing Quality Assurance Act.
- Act for Execution of Defect Warranty
Liability under Housing Quality Assurance
Act.
- Act on Promotion of the Earthquake-proof
Retrofit of Buildings.
Assistance Scheme for Building Quake
Proofing:- Tax deduction for Residential Building
Quake Proofing- Tax exemption for commercial building
quake.
- Public School Quake-proofing.
- Hospital Quake-proofing.
- Earthquake Insurance System.
Emergency Response and Communication
System by Life line infrastructures like
Osaka Gas Engineering Co. Ltd.
Disaster Recovery Project: The recovery ofdamaged public infrastructure, educational,
welfare, agricultural, forestry and fisheryfacilities.
Disaster Relief Loans: Persons engaged in the
agriculture, forestry or fishery industries,
small and medium enterprises and lowincome people
Disaster Compensation and Insurance:
Affected persons can obtain compensation
Earthquake insurance for disaster losses.
Tax Reduction or Exemption for affected
persons.
Tax Allocation to Local Governments andLocal Bonds: For affected local governments.
Financial Support for the Livelihood
Recovery of Disaster Victims.
Basic Education on Disaster:- Guide book and Sub Text book
- Video for disaster risk education- Instruction based on manuals- Lesson and experiment by experts ofdisaster prevention- Earthquake experience by utilizing special
cars- Drill for disaster prevention- Student’s activities on Skill improvement,
survival at camping, Volunteerism etc.
- First aid in time of disaster- Visit to disaster prevention centre and firestationHighly Prioritise Scientific and TechnologicalResearch in Disaster Reduction.
High quality educational and training
institutions.
Utilization Hazard Maps to Promote The

National Building Code.

Providing of Disaster relief for
affected person:- Financial grants.
- CI Sheet- Vulnerable Group Feeding
Programme- Blanket

 Earthquake education has
incorporated into the curriculumfor school children.
 Supplementary books forprimary and secondary educationlevel.
 Research on Earthquake has
been prioritising for grants in thehigher education institutes.

 Try to develop community

Awareness andPreparedness

11

Geo-databases &
Maps

12

BudgetEarthquake-Proofing Of Buildings.
Integrated Disaster Management
Information System.
Earthquake-Proofing of disastermanagement bases (schools and otherinstitutions) and key infrastructure.
Issuing of Evacuation Order and Instruction.
Disaster Reduction Drills and Exercises: theCentral Disaster Management Council sets
forth an annual Disaster Reduction Drills Plan
which stipulates the basic principles for
executing the drills and outlines thecomprehensive disaster reduction drills
carried out by the national and local
governments and relevant organizations.
Countermeasures against Large-scale
Earthquakes.
Improvement of evacuation areas
Business continuity plans for companies.
 Geo-database on Earthquakes parameters.
 Seismic Intensity Mapping.
 Vulnerability Mapping.
 Risk Mapping.
 Models and Integrations related toearthquakes.
 Hazard Mapping.
 Remote sensing using satellite image.
 Early damage assessment function using
artificial satellites.
The National Budget for disastermanagement is approximately 1.2 trillion
yen (Initial Budget 2010FY).

participation and awareness to
reduce the vulnerability.
 About 18000 urban volunteers.
 Earthquake Drills and Activities:
earthquake drills at 70,000
primary and secondary schools
twice a year.
 Community awareness throughmedia campaign, workshop andseminar.

Earthquake Vulnerability,
Mapping, Risk Mapping andSeismic Hazard Mapping underComprehensive Disaster
Management Programme (CDMP).

National Budget for Disastermanagement is about 625 million
USD.

Chapter-7: Observation and Findings of the research:

Key Factors
Preparedness
and response

Communicating
the risk

Sustainable
Structure

Observations
The nation of Japan
organizes a massive,
speedy response.
The Japanese people
demonstrated a “cultureof preparedness.
Japan relied heavily on
formal early warning
systems, evacuationplans, and alerts to limit
loss of life.

Japan ensures
enforcement of legal
framework to develop
sustainable structure.

Findings
Robust catastrophic
planning, preparedness,and mitigation make asociety more resilient todisaster.
Communications that
effectively identify risks tothe public by promoting
measures and behaviours
that avoid, minimize,
prepare for, or respond to
threats.
Developed methods andcapabilities to ensuresustainable structure.

Chapter-8: Recommendations


Incorporation of earthquake countermeasures acts in the Legal frameworks to
enforce structural sustainability.

Establish Emergency Disaster Management Force under Ministry of Disaster
Management and Relief for professionalizing the search and rescue operation.

To ensure integrated disaster management system in the city planning.



To develop contingency plan for earthquake prevention by Ward level.

To raise massive public awareness through mass media and community campaign.



Monitor and ensure enforcement of building code and soil testingEnhancement of response capacities of the responsible departments



Arrange training on first aid, search and rescue for community people.

To strengthen more effective public–private partnerships to build the business
continuity plan for earthquake prevention.



To develop sufficient open spaces in the cluster level for emergency
evacuation.

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