Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC
member countries.
The views expressed in the report do not necessarily reflect the views of
the ADRC. The boundaries and names shown and the designations usedon the maps in the report also do not imply official endorsement or
acceptance by the ADRC.

ASIAN DISASTER REDUCTION CENTER
Visiting Research Program FY 2013A(12 JULY 2013 – 22 NOVEMBER 2013)

A Comparative Study on Emergency Response
System (ERS) in Japan and Myanmar

Ms. Thandar Aung
Upper Divisional Clerkp
Relief and Resettlement Department
Ministry of Social Welfare, Relief and Resettlement
Myanmar

Agenda
1.
2.
3.
4.
5.

Overview of Emergency Management
Disaster Management in Japan
Current Status of Emergency Response System in Myanmar
Model Emergency Response System of Myanmar
Conclusion

1. Overview of Emergency
Management

Overview of Emergency Management• Define “Emergency Management”• Components of Emergency Response System

Overview of Emergency Management• “The managerialgfunction charged
g with creatingg the framework
within which communities reduce vulnerability to hazards andcope with disasters” defined by FEMA.
• Eight principles of emergency management; Comprehensive,
Progressive,
Risk-driven,
Integrated,
Collaborative,
C di t d Flexible
Coordinated,
Fl ibl andd Professional
P f i l• Four phases of emergency management; Mitigation/
Prevention Preparedness,
Prevention,
Preparedness Response and Recovery

Components of Emergency Response System
•

•

•

•

•

Response: the provision of emergency services and public assistance during or
immediately after a disaster in order to save lives, reduce health impacts,
ensure public safety and meet the basic subsistence needs of the people
affectedffdPublic awareness: a key factor in effective disaster risk reduction (Example:
the development and dissemination of information through media andeducational channels,
channels the establishment of information centers,
centers networks,
networks andcommunity or participation actions, and advocacy by senior public officials
and community leaders)
Early warning: the set of capacities needed to generate and disseminate timely
and meaningful warning information to enable individuals, communities andorganizations threatened by a hazard to prepare and to act appropriately and in
sufficient time to reduce the possibility of harm or loss
Contingency planning: a management process that analyses specific potential
events or emerging situations that might threaten society or the environment
and establishes arrangements in advance to enable timely, effective andappropriate responses to such events and situations
Emergency service: include agencies such as civil protection authorities,

police, fire, ambulance, paramedic and emergency medicine services,
Red Cross and Red Crescent societies,
societies and specialized emergency unitsof electricity, transportation, communications and other related services
organizations.

2. Disaster Management in Japan

Disaster Management System of Japan• Overview of Disaster Management Systemg and Institutional Framework• Legal• Public Awareness• Early Warning System• Emergency Response Management• Case study on Great East Japan Earthquake (GEJE)Overview of Disaster Management System

Legal Framework in Japan
•
•
•
•
•

•

7 Basic Acts
18 Di
Disastert P
Prevention
ti anddP
PreparednessdL
Legislations
i l ti
3Disaster Emergency Response
23 Disaster Recovery and Reconstruction and Financial Measures Acts
The learning of the 2011 Great East Japan Earthquake and Tsunami(GEJET) and nuclear disaster has been incorporated in the Disaster
C
Countermeasurest
B i Act
Basic
A t byb amending
di it ini June,J2012 andd byb makingkichanges in Basic Disaster Management Plan in December, 2011.
Japan
p subsequentlyqy revised several time with lessons learnt from disasters
and this learning is reflected in her laws, policies and plans.

Public Awareness in Japan

Early Warning System in Japan
•
•
•
•
•

Early Warning System of Japan Meteorological Agency (JMA)
Dissemination information of Forecast and Early Warning
Utilization of Earthquake Early Warning Information
J-Alert System
Integrated Disaster Management Information System

Early Warning System of Japan Meteorological Agency (JMA)

Weatherands seDisaster
Information
Dissemination
byy
JMAWeather Forecast and Warning and flow thereof

Earthquake Early Warning System

J Alert System
J-AlertInformation Management System in Japan• Earthquakeq
Disaster Information System
y((DIS))• Real Damage Analysis System by Artificial Satellite (RAS)• Disaster Information Sharing Platform (PF)Emergency Response System in Japan• Disaster Response Mechanism• Emergency Management System, Hyogo Prefecture, Japan

Disaster Response Mechanism

Emergency Management System, Hyogo Prefecture, Japan

Case Study on GEJE (March 2011)
Before Tsunami:
•

•

•
•

Japan’spnational territory
y is covered byy earlyy
warning systems for storms, torrential rains, heavy
snow, sediment disasters, tsunamis, tidal waves, highsurf, inundation and flood.” Generally, the Japanese
population followed warnings issued before andd i theduringh alerts.
lWithin 3 minutes after earthquake occurred, JMA
disseminated(tsunami) emergency warning to
NHK.
NHK transmitted immediately emergency warningon all channels and call for evacuation.
Then , TV, Radio and mobile automatically activatedby signal.

After Disaster:

•
•
•
•
•
•
•
•

•

11 March 2011 at 14:46 JST (5:46GMT)
9.0 Magnitude
15.534 people - Dead
7,092 people - Missing
111,044 buildings - Damage
400, 000 buildings - Destroyedg y responsep
team.
Government established emergency
To serve quickly relief work, organize andcoordinate over 300 organization including
government offices, non-governmental agencies, andcivil society organizations.
Social media such as Twitter, Face Book, Mixi, Web
pages or Blogs, etc. were used extensively during the
GEJE for various purposes, such as search, rescue,and fundraising.

After Disaster:•Ministryy of Information and Communication ((MIC))
distributed 10,000 portable radio receivers to evacuation
shelters, and requested equipment manufacturers such as
Panasonic and Sony, to distribute over 40,000 portableradio receivers.
•Emergency FM radio also played a crucial role inproviding information to local residents.
•FM radio provided locally customized information,such as information about aftershocks,, or the availabilityyof local services and activities related to people’s
everyday needs.
•Google Person Finder is an important tool to help
reconnect ppeoplep after a disaster event.

Weaknesses•Although JMA and other channels transmitted (tsunami)
emergency warning
i
after
ft
earthquake,th k
b d tibroadcasting
companies including NHK, local operators as well as bothcommunication announcement system with loud speakerand mobile system were interrupted.
•Alth•Althoughh every person havehttsunamii knowledgekl d likelik “If atsunami comes, run to safety, don’t go to find others”.
During the Great East Japan Earthquake, there wereseveral cases where people ignored this, going back tohelp elderly
elderl residents or familyfamil members evacuate.
e ac ate

Case Study on GEJE (March 2011)

Opinions on Disaster Management in Japan•••

Not only a leadership country among countries that are carried out for disaster risk
reduction but also a country that practically distribute disaster knowledge into othercountries
Di t management,
Disastert disasterdi t policies
li i andd practicesti
are more effective
ff ti than
th otherthcountries
Main best elements of that DRM system in Japan are:– Investments in structural measures (such as reinforced buildings and seawalls),
cutting-edge risk assessments, early-warning systems, and hazard mapping- allsupported by sophisticated technology for data collection, simulation,
information, and communication, and by scenario building to assess risks andto plan responses (such as evacuations) to hazards– A culture of preparedness, where training and evacuation drills are
systematically practiced at the local and community levels and in schools andworkplaces– Stakeholder involvement, where the national and local government,
communities, NGOs, and the private sector all know their role
– Effective legislation, regulation, and enforcement—for example, of building
p current
codes that have been kept
– The use of sophisticated instrumentation to underpin planning and assessment
operations.

3. Current Status of Emergency
3
Response System in Myanmar

Emergency Response System in Myanmar• Legal and Institutional Framework• Organization of Emergency Response Mechanism• Public Awareness• Emergency Services• Early Warning System• Case Study on Nargis Cyclone

Legal and Institutional Framework in
Myanmar• Rehabilitation Board Act (41/1950)
p
Affairs Act ((11/1993))• Board of Development• Epidemic Diseases Prevention Act (1/1995)• Implementation of Insurance Act (6/1996)• Fire Services Act (1/1997)• Disaster Management law (7/2013 - enacted)

Institutional Framework for Disaster Management at National Level
National Disaster Preparedness Central Committee
Chairman : Vice-President 2
National Disaster Preparedness Management Working Committee
Ch i
Chairman: UnionU i Minister
Mi i t (MoSWRR)(M SWRR)

Ten Sub-Committee
Information & Education Sub-Committee
Emergency Communication SubCommittee

Clearing Ways & Transportation SubCommittee
Mitigation & Establishing of Emergency
Shelter Sub-Committee
Sub Committee

Search & Rescue Sub-Committee
Health Care Sub-Committee
Information of Losses & Emergency
Assistance Sub-Committee
Assessment of Losses Sub-Committee

Rehabilitation & Reconstruction SubCommittee
Security Sub-Committee

Mechanism of Disaster Response in Myanmar
NDPCC

Subcommittees

State/RegionDPC

MoSWRR

UN
INGOs
LNGOs

RRD
District/Township
DPC

Local community

Planning, Decision making

Coordination

SupplyEmergency Services in Myanmar
•

•

•
•

Ambulance Service - run by multiple agencies such as Red Cross, healthdepartment, private health care organizations, charitable organizations, civil
defence, etc.
Fire Services – emergency search and rescue teams including Myanmar
Red Cross Society in whole country have 72 teams. One team includes 100
people Total are 7200 people.
people.
people
FSD consists of 4778 fire personnel and the strength of voluntary firemenconsists of over 249,324.
Emergency phone number of FSD in Myanmar is 191.

Emergency Services in Myanmar
•
•
•

•

Myanmar Red Cross Society - one of the few organizations in Myanmar that offer a certified
First Aid training course to the general public.
Red Cross Volunteers (RCVs) work day and night to respond to some of Myanmar’s worst
disasters and are always the first responders to any emergency, small and large.
In 2011, a total of 3,528 Red Cross Volunteers were involved in various activities – by serving
as blood donors, relief operations, and providing emergency health and care. Approximately
54 341 people have benefited from these services.
54,341
services
MRCS’s Disaster Preparedness & Response initiatives focus on reducing deaths, injuries, andimpacts from natural disasters. MRCS prepares for emergency situations through thefollowing activities:– Strengthening logistics, particularly warehouse capacity– Establishing emergency response teams– Strengthening communication and early warning systems– Promoting coordination and collaboration with partners and authority– Disseminating contingency plan and standard operating procedures– Establishing and scaling up emergency management funds– Enhancing MRCS branch organizational preparedness for disasters– Improving township-level branches’ capacities
MRCS’ss improved positioning in country context– Advocating and ensuring MRCS
– Encouraging sustainable volunteer-based recovery operations

Public Awareness in Myanmar
No

State/ Division

Opening Total

Population

1

Kachin State

8

8

2

Kayah State

5

5

3

Kayin State

8

8

4

Chin State

4

4

Wall Sheets and Posters

Pamphlets

44

5

S
Sagaingi Division
Di i i6

66

Taninthary Division

9

9

7

g Division
Bago

8

8

8

Magway Division

9

9

9

Mandalay Division

6

6

10

Mon State

10

10

11

Rakhine State

15

15

12

Shan State

9

9

13

Yangon Division

14

14

14

Ayeyarwady Division

20

20

Total

131

131

Development of IEC materials for Public Awareness(in English)

Seven Components of MAPDRR

45Development of IEC materials for Public Awareness(in Myanmar)
42

Seven Components of MAPDRREarly Warning System in Myanmar••

DMH) is responsible for all tasks related to the works for mitigation and preventionof natural disasters including earthquakes monitoring and sea level observations toestablish a Multi-Hazard Early Warning System.
DMH forecasts– (1) Daily Weather Forecast;– (2) 10-day and Monthly Weather Forecast;– (3) Sea Route Forecast;– (4) Aviation Forecast;– ((5)) Specialp
Weather Forecast;;– (6) Water-level Forecast;– (7) Lowest Water-level Forecast;– (8) Water-levelW t l l Bulletin;
B ll ti– (9) General Forecast for Southwest Monsoon;– (10) Pre-, Mid- and Post- monsoon Weather Forecast;– (11) Analysis of Pre-, Mid- and Post-monsoon Rainfall Condition;– (12) Hydrologic Summary;– (13) Special Weather Condition;– (14) Technical Report for Southwest Monsoon; and– (15) Seismological News.

Early Warning System in Myanmar••

DMH releases the followingg warnings:g– (1) Storm Warning;– (2) Storm Surge Warning;– (3) Strong Wind Warning;– (4) Port Warning;– (5) Heavy Rainfall Warning;– (6) Untimely Rainfall Warning;– ((7)) Flood Warning;g;– (8) Significant Weather Report for Aircraft;– (9) Special Weather Report for the Airport (SPECI);– (10) Fog Warning; and– (11) Tsunami Warning.
In accordance with the meteorological law,
law the above forecasts andwarnings are disseminated by DMH to Government authorities; local
authorities; UN Offices, NGOs and other relevant organizations; nationalmedia
di andd theth generall public
bli throughthh telephone;
t l h
f
fax;
mobilebil phone;hInternet (website and e-mail); VHF; port wireless; AFTN (aviation) andRadio/TV and print media.

Early Warning System in Myanmar

Sea Level Tide Gauge at Sittwe and Sea Level Tide Gauge at Mawlamyine

Early Warning System in Myanmar

Case Study on Nargis Cyclone
Before Disaster:•

The warnings by DMH were sent to: Prime
Minister Office; Secretary of State Office;National Disaster ManagementgCommittee;;National Disaster Risk Committee; Ministry of
Defence (Central Headquarters); Ministry ofTransport; Ministry of Home Affairs; Ministry ofSocial Welfare,, Relief and Resettlement;; andother relevant Ministries (34 Ministries in total);
Naval Headquarters; Air Force Headquarters;
Chairman Offices in Rakhine State andAyeyarwadyy yy and YangongDivisions;; Naval
Commander Office at Heingyi; Local Authorities(in Rakhine, Ayeyarwady, Yangon); NGOs, UN
Offices, other relevant organizations; national
media ((Newspapers,
p p , TVs ((4 channels),), Radios(MRTV and City FM)); and four phone line
services for public information.
All the authorities/organizations immediately
carried out necessary actions (e.g.,(e g rerouting
flights, relocation of UN workers in the field tosafer places, closing ports, etc.) were taken basedon warnings and information provided by DMH.

•

After Disaster:
84537 people - dead
53836 people - missing
19359 people - injured
450000 houses - totally damaged
350000 houses - partially damaged
4000 schools – Damaged
Government carried out emergency relief
activities which consist of meetingi
immediate
di t food,f d clothingl thi
andd medical
di lneeds of the cyclone victims and getting
them under shelter speedily
Carried out emergency search and rescue ,and assistance without delay in townships
and rural areas that suffered extensive
damages due to the cyclone Nargis inaccordance with the instruction of theState, the National Disaster Preparedness
Committee headed by the Prime Minister.

•
•
•
•
•
•

•

•

Case Study on Nargis Cyclone
After Disaster:
•

•

•

•

Played a role for emergency search and rescue
Fire Service Department, Tatmadaw (Army) and
MRCS.
Rear, mid-point and forward relief camps were
set up systematically and the strength of theGovernment, the public and the Tatmadaw(Army) were combined and cyclone relief andassistance activities were carried out in harmony
enthusiastically.
Doctors and nurses from the Defense Services
Medical Corps and Ministry of Health also
provided emergencypg y medical care in the affectedareas
The Air Force has placed its helicopters at thedisposal of the relief operation for ferrying andevacuating to and from the affected areas.
areas

Weaknesses••

The frequent power shortage disrupted theoperational services of DMH and the blackout
after the landfall of Nargis significantly affected
its services. All communications were broken
down in Yangon from 20:00 MST on 2 May to
17:00
7:00 MST
S oon 3 May
ay 2008.
008.
Only the communication between NMC Yangon
and coastline observing stations were made by
SSBs.

Weaknesses
•

•
•

•

•
•

Required effective multi-hazard early warning
system and effective equipments that canforecast for operation tropical cyclones, riverflooding, tsunami and other coastal hazards.
Coordination and cooperation with other relevant
ministries and academia need to be strengthen.
The linkages and communication system
between townshipp level to villagegandcommunity level need to be strengthened.
People’s lack of knowledge on the necessary
actions for preparedness (many local people
were aware of the warning 48 hours in advance,
advancebut they thought that staying at home and notgoing out was enough for storm preparedness),planning and what people would do with thewarning was not quite understood at community
level.
Myanmar had not experienced such a cyclone(moving along the coast) for a long time.
Al h
Althoughh muchh off theh communities
i i hadh d received
i dsome sort of warning at their communal levels,
both local authorities and people’s lack ofknowledge, public awareness towards thewarning,ili it d shelters
limitedh lt
andd highhi h ground,d anddpoor mobility (only waterways along small
canals by boats are available) made themvulnerable in a large way.

4. Model Emergency Response
System of Myanmar

Model Emergency Response System of Myanmar
•
•
•
•
•

Legal and Institutional Framework
Effective Early Warning System and Information Dissemination
Public Awareness Raising
Emergency Services
IASC (Inter-Agency Standing Committee) Contingency Plan and EOC

Legal and Institutional Framework
•

•

•

•
•
•

In DRR budget allocation,
allocation State budget should have separately
allocate/mention DRR component and the consolidation efforts among
ministries and capacity development / institutional strengthening should be
reinforced The same needs to be ensured at the ministerial levels.
reinforced.
levels Plans
have been drafted at all administrative levels, but need for more detailed
activities and implementation.
Coordination and cooperation with other relevant ministries and academia
needs to be strengthened. In addition, the integration of technical researchworks into ppolicyy makingg and implementationpin ppractical p
problem solvingg
should be made.
Need to change the system for monitoring, maintaining the data ofdepartments concerned with effective modern equipments instead aging
and obsolete equipment.
Financial and technical support as well as coordination among different
stakeholders need to be improved.
A specific institution or department needs to be established for better
coordination and standardization
Need to add effective facts of Disaster Countermeasures Basic Act among 7
basic acts in Japan into legal system in Myanmar

Effective Early Warning System and Information
Dissemination
•

•
•
•

•

Need to be strengthen the linkages and communication system between
township level to village and community levels by providing
communication facilities as well as capacity building for the stakeholders at
community level.
M bil service
Mobilei forf hazardhd andd earlyl warning
i information
i f
ti is
i needed.
d d
For Emergency Early Warning Dissemination in Emergency Situations,radio network system needs.
Government must made to get internet access throughout country. Even not
get internet access throughout country, radio communication system should
have
have.
Different ministries, organizations and stakeholders are providing DRR
information and building capacity at different levels but more co-ordination
i neededisd d to reachh public
bli ini a regularl andd sustainablei bl wayPublic Awareness Raising
•
•
•
•

•

Radio,di TV, andd otherh channelshl should
h ld beb showedhd disasterdimoviesi andd On-Air
O Ai
programs to improve disaster awareness among public.
In addition, disaster drills should be held cooperation with other agencies
Need to enhance “soft measures,” such as community awareness and effective risk
communications because of a more decisive role in saving lives.
governments can create and ppublicize earthquakeqdisasterNational and local g
prevention maps that are detailed enough to allow people to identify individual
neighborhoods.
amongg residential
This is one means of raising
g awareness of disaster managementgand other property owners, and it is an effective method for making the public
better understands the necessity of disaster-proofing.

Emergency Services
•
•

•

•

Fire services needs to strengthen to make more effective emergency searchand rescue.
Urgentgneed to convert and equipq p the fire services all over the country
y as
multi-hazard response force by strengthening, revamping, training andequipping.
The Home Guards should also be trained in fire-fighting
fire fighting besides training
them in other aspects of emergency response such as search and rescue,
medical first aid, management of relief, etc.
And also Myanmar Red Cross Society need to have enough RCVs like Fire
Services.

IASC (Inter-Agency Standing Committee)
Contingency Plan and EOC
•
•
•

•

IASC including UN organizations, INGO, NGOs and various government
agencies as a platform for coordination should be set
set-upup and strengthened.
Required for effective planning, coordination and execution over the issues
pertaining to DRR, disaster preparedness and response.
IASC would also promote sharing of best practices, tools & techniques anddifferent types of resources among the stakeholder organizations forenhance solution exchange among stakeholders.
To become more effective EOC:
– GIS technology, more detailed country information for making country
map video
ideo conferencing ssystem
stem for coordination mechanism.
mechanismmap,– Emergency Relief Headquarter Control Room needs and should equipwith Phoenix System which provides the latest information on disasterdamage.
– Need a cooperative organization staff room which is used by staff who
deals with Defence Forces,
Forces the police,
police fire-fighting authorities,
authorities lifelinecompanies and other entities involved in damage prevention when adisaster occurs.

Conclusion
•
•

•
•

•

The Republic of the Union of Myanmar is striving for peaceful, modern
and developed nation.
Although current status of Emergency Response System in Myanmar has
some weakness by viewing foregoing discussions, national government ispdisaster managementgfor disaster risk reduction byycarried out to improverevising Myanmar Action Plan on Disaster Risk Reduction (MAPDRR)
and by re-enacting Disaster Management Law.
But
ut ttheseese pplansa s aaree needed
eeded to ca
carryy out ppracticallyact ca y by coope
cooperating
at g national
at o agovernment and non-government organizations.
If we must add and apply the best facts from numerous effective models
and system on the world like Japan and other disaster leader countries toimprove our disaster management system, Disaster Management
Mechanism of Myanmar must more and more enhance in future.
If so,
so we must create a system which saves lives and reduces losses at theminimum possible cost.

Future Plans
•

•

•

•

Report and discuss together with our Minister and our Director General
about disaster knowledge and experiences that are getting during stay inJapan
Carry out to improve disaster awareness raising between public bycooperation with our organization (RRD), disaster related governmentorganizations and non-government organizations
Wh disasters
Whendioccur, local
l l people
l are firstfi respondersdso try to extendd
teachings Disaster Management Course (DMC), awareness activities not
only local administrators but also local people.
Our organization is carried out to open Disaster Management Institute.
When this Institute is finished, I have plans to share my disaster knowledge
and experiences that are getting during stay in Japan.
Japan