Asian Disaster Reduction Center

Research paper
Earthquake early warning systems
Visiting researcher 2013A in term of August 13-November 22, 2013

Prepared by
Chinbaatar LKHAMJAV
Senior officer in charge of radio communication and warning
systemEmergency Management and Warning Centerof National Emergency Management Agency
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Disclaimer

This report was compiled by an ADRC visiting researcher (VR) fromADRC member countries.
The views expressed in the report do not necessarily reflect the viewsof 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.

Final report ADRC Visiting researcher (13 August – 22 November 2013)Table of Contents
CHAPTER 1. Disaster management system in Mongolia
1. General information………………………………………………………………………………………1
1.2. Climate information…………………………………………………………………………………….2
1.4. Demographic data………………………………………………………………………………………3
2.1. Natural hazards likely to affect ………………………………………………………………………4
3. Disaster management system………………………………………………………………………….5
3.1. Legal system and framework ………………………………………………………………………...6
3.3. Earthquake disaster countermeasures …………………………………………………………….7
3.4. Dzud disaster countermeasures …………………………………………………………………….8
3.7. Improvement of environment for disaster reduction volunteer activities ……………………94. Disaster Management Strategy, Policy, Plan ……………………………………………………….10
CHAPTER 2. Disaster management system in Japan
1. General information …………………………………………………………………………………….11
2. Natural hazards in Japan……………………………………………………………………………….12
2.3. Recent major disaster in Japan……………………………………………………………………..13
2.4. Disaster management system in Japan …………………………………………………………..14
3. Progress in Disaster Management Laws and Systems……………………………………..….15-17
3.1. Establishment of Comprehensive Disaster Management System…………………………....18
3.3. Mission of the Cabinet Office ……………………………………………………………………….19
3.4. Central Disaster Management Council ……………………………………………………...….…20
3.5. Disaster Management Planning System ……………………………………………………….….21
3.6. Disaster Management Structure ……………………………………………………………….……22
3.7. Earthquake Disaster Countermeasures ……………………….………………………….……23-29
3.8 Disaster reduction awareness enhancement and disaster knowledge dissemination……….….30
3.10 Disaster reduction activities of corporations ……………………………….…………………...31
CHAPTER 3. Early warning system in Mongolia
1. Information and communication system ………………………………………………...……….32-33
2. Earthquake disaster warning system …………………………………………………..…………34-35
CHAPTER 4. Early warning system in Japan
1. Monitoring system …………………………………………………………....................................36-45
2. Earthquake and Tsunami Warnings/Information…………………………………………………..46-51
3. Information and communication system………………………………………................................52
4. Ministry of land, infrastructure, transport and tourism………..……………………...……………53
5. Japan meteorological agency…………………………………………...…………………………..54-59
6. J-alert system in Japan….…………………………………………………...……………………….60-62
7. Mobile phone distribution …………………………………………………………………………...…..63
Conclusion ………………………………………………………………………………………………...64-65

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Chapter 1. Disaster Management System in Mongolia

1.

General Information

Mongolia is located between 41° and 52°N latitude and between 87º and 120º E longitude.
Mongolia is a land area of 1,564,100 sq km. largest city, is home to about 45% of the population.
Mongolia's political system is a parliamentary republic. The capital is Ulaanbaatar. 96 percent of
2,647,545 population are the Mongolian, the rest being Kazakh, Chinese, and Russian. The country
contains very little arable land, as much of its area is covered by steppes, with mountains to the northand west and the Gobi Desert to the south. Approximately 30% of the population are nomadic orsemi-nomadic. The predominant religion in Mongolia is Tibetan Buddhism, and the majority of thestate's citizens are of Mongol ethnicity, although Kazakhs, Tuvans, and other minorities also live in the
country, especially in the west.
1.1 Geographical Data
Mongolia isalandlocked
country
in Central
Asia,
strategicallylocatedbetween China and Russia. The terrain is one of mountains and rolling plateaus, with a high degree ofrelief. Overall, the land slopes from the high Altay Mountains of the west and the north to plains anddepressions in the east and the south. The western Mongolia on the Chinese border is the highest
point (4,374 metres). The lowest is 518 metres, an otherwise undistinguished spot in the eastern
Mongolian plain. The country has an average elevation of 1,580 metres. The landscape includes oneof Asia's largest freshwater lakes (Lake Khuvsgul), many salt lakes, marshes, sand dunes, rolling
grasslands, alpine forests, and permanent mountain glaciers. Northern and western Mongolia areseismically active zones, with frequent earthquakes and many hot springs and extinct volcanoes. The
nation's closest point to any ocean is approximately 960 kilometres (600 mi) from the country's
easternmost tip bordering northern China to Chongjin in North Korea along the coastline of the Sea ofJapan.
Topography
Mongolia has three major
mountain ranges. The highest is
the Altai Mountains, which stretch
across the western and thesouthwestern regions of thecountryonanorthwest-tosoutheastaxis.
The Khangai
Mountains, mountains also trending
northwest to southeast, occupy
much of central and north-central
Mongolia. These are older, lower, and more eroded mountains, with many forests and alpine pastures.
The Khentii Mountains near the Russian border to the northeast of Ulaanbaatar, are lower still. Muchof eastern Mongolia is occupied by a plain, and the lowest area is a southwest-to-northeast trending
depression that reaches from the Gobi Desert region in the south to the eastern frontier. The rivers
drain in three directions: north to the Arctic Ocean, east to the Pacific, or into the deserts and thedepressions of Inner Asia. Rivers are most extensively developed in the north, and the country's
major river system is that of the Selenge, which drains into Lake Baikal. Some minor tributaries ofSiberia's Yenisei River also rise in the mountains of northwestern Mongolia. Rivers in northeastern
Mongolia drain into the Pacific through the Argun and Amur (Heilong Jiang) rivers, while the few
streams of southern and western Mongolia do not reach the sea but run into lakes or deserts.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

1.2 Climate information
Mongolia is high, cold, and dry. It has an extreme continental climate with long, cold wintersand short summers, during which most precipitation falls. The country averages 257 cloudless days ayear, and it is usually at the centre of a region of high atmospheric pressure. Precipitation is highest in
the north, which averages 200 to 350 millimetres (7.9 to 13.8 in) per year, and lowest in the south,
which receives 100 to 200 millimeters (3.9 to 7.9 in). The extreme south is the Gobi Desert, someregions of which receive no precipitation at all in most years. The name Gobi is a Mongol word
meaning desert, depression, salt marsh, or steppe, but which usually refers to a category of arid
rangeland with insufficient vegetation to support marmots but with enough to support camels. Mongols
distinguish Gobi from desert proper, although the distinction is not always apparent to outsiders
unfamiliar with the Mongolian landscape. Gobi rangelands are fragile and are easily destroyed byovergrazing, which results in expansion of the true desert, a stony waste where not even Bactriancamels can survive.
Average temperatures over most of the country are below freezing from November throughMarch and are about freezing in April and October. January and February averagesof −20 °C (−4 °F) are common, with winter nights of −40 °C (−40 °F) occurring most years. Summer
extremes reach as high as 38 °C (100.4 °F) in the southern Gobi region and 33 °C (91.4 °F) in
Ulaanbaatar. Most of Mongolia is covered by discontinuous permafrost (grading to continuous at highaltitudes), which makes construction, road building, and mining difficult. All rivers and freshwater lakes
freeze over in the winter, and smaller streams commonly freeze to the bottom. Ulaanbaatar lies at
1,351 meters (4,432 ft) above sea level in the valley of the Tuul River. Located in the relatively wellwatered north, it receives an annual average of 310 millimetres (12.2 in) of precipitation, almost all ofwhich falls in July and in August. Ulaanbaatar has an average annual temperatureof −2.9 °C (26.8 °F) and a frost-free period extending on the average from mid-June to late August.
1.3. Administrative system
Mongolia is divided into 22 major administrative units comprising of 21 aimags and the capital
city of Ulaanbaatar. All are governed by 'Khurals', or elected bodies. Aimag populations range
between 12,500 and 122,000 people. They also vary in size with the largest covering as much as
165.4 square kilometres of territory. An aimag consists of up to 27 'soums', including the aimag centre.
Soums in turn are comprised of 'baghs'. In Mongolia there are 331 soums and 1550 baghs. Also thecapital city,Ulaanbaatar, is subdivided into 121 districts called 'khoroos'.
In the country, the aimag centre is the administrative seat of local government, and the homeof the aimag's legal bodies, theatres, hospitals, businesses, schools and industry. Most of the aimag
population work in light industry, services and small business enterprises. Bagh populations tend towork in agricultural and animal husbandry. Baghs residents mainly lead a nomadic life. They migratewith their herds depending on the change in season and weather conditions. Typically their seasonal
camps are located within the borders of their soum and baghs, though droughts, dzuds, and othernatural disasters, can push them to different areas.
In Aimags, the capital city, Soums and Duuregs there shall be Khurals (Assemblies) ofrepresentatives of the citizens of respective territories;
In Baghs and Khoroos - general meetings of citizens.
between the sessions of the Khurals and general meetings their Presidiums shall assume
administrative functions.
Khurals of Aimags, the capital city, Soums and Duuregs enjoy considering and deciding all
problems, which do not depend on higher stage of Khurals or other organizations, in its territory. The
main form of local self-government is the Khural. In between the sessions of the Khural and general
meetings the presidiums shall assume administrative functions. The memberships of the Khurals aswell as those of aimags, the capital city, soums and duuregs, baghs and Khoroos are different. For
example: In aimags and the capital city Khurals' Presidium of Representatives of Citizens iscomposed of 5-9 members, whereas, in soums and duuregs 5-7 and in baghs and horoos 3-5
members, including the chairman and secretary respectively. Regular meeting of the Khurals of
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Aimags, the capital city, Soums and Duuregs shall be convened once every year and of the Khurals ofBaghs and Khoroos shall be convened less than twice every year.
1.4 Demographic data
Mongolia is a parliamentary republic. The president is directly elected. The people also electthe deputies in the national assembly, the State Great Khural, which chooses the prime minister, whonominates the Cabinet in consultation with the president. The Khural confirms the ministers.
Mongolia is divided into 21 provinces (aimags), which are in turn divided into 329 districts(sums). The capital Ulaanbaatar is administrated separately as a capital city (municipality) with
provincial status.

Number of population 2009-2012
Area
2009
Western
367.948
Khangai
523.554
Central439.282
Eastern188.104
Ulaanbaatar
1.172.227
Total
2.691.115

2010
361.171522.684446.814187.333
1.220.620
2.738.622

2011
356.662522.752
453.453
187.680
1.265.770
2.786.317

2012
358.587526.981461.614189.915
1.302.615
2.839.711

Nationality

noun: Mongolian(s)adjective: Mongolian

Ethnic groups

Mongol (mostly Khalkha) 94.9%, Turkic (mostly Kazakh) 5%,
other (including Chinese and Russian) 0.1% (2000)

Religions

Buddhist Lamaist 50%, Shamanist and Christian 6%, Muslim
4%, none 40% (2004)

Languages

Khalkha Mongol 90% (official), Turkic, Russian 10% (1999)
Source: National Statistics Office of Mongolia

2. Natural hazards in Mongolia
Mongolia is a country where the following natural disasters occur frequently: meteorologicalsuch as blizzard; heavy snow; dust storm; "zud"; rain water flood; dibasic flow; snow melt flow; andothers such as earthquake; wildfire; drought; and desertification.
5000
4000
3000
2000
1000
0

2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

Line 1 2377 2068 2338 2722 2659 3072 2759 2468 2976 3548 4047

Figure 2.1 Number of hazards in Mongolia /2002-2012/
Source: National Emergency Management Agency of Mongolia
Final report ADRC Visiting researcher (13 August – 22 November 2013)

A natural disaster is a natural phenomenon or phenomena occurred covering relatively large
territories and leading to human casualties or substantial damages to property and causing thereby
serious obstacles to smooth operation of the society. Whether this or that phenomenon is a natural
disaster or not depends upon not only its intensity but much more upon its socio-economic andecological consequences. In view of this, the issue of natural disaster shall be considered inassociation with the social economic situation at the level of a given country’s development, thepeople’s life styles, infrastructure development, etc. For example, the phenomenon of so called “whitezud” (severe winter conditions) when pastures are snow-drifted due to heavy snowfalls taken place inwinter-spring seasons is referred to the category of natural disaster only under the conditions of ourcountry with its transhumance cattle-breeding economy and would not be regarded as a natural
disaster in any other countries with the settled type of civilization.

2.1. Natural hazards likely to affectThe global warming and climate changes are possibly to become the following negative
influence:• Decrease the rainfall and increase the air temperature• Summer rainfall types (cloudburst, gentle and continuous rain etc.) changes slowly• The overheat will be occur during the summer season• land degradation, increase of water evaporation• Glaciers melts could cause and increase the sudden floods danger
As above mentioned, the frequency of the natural disaster increase the social existence,
further, country’s economy will still depend on environmental and climate changes.
Mongolian most populated provinces that situated near the bigger river blanks and also thenomads that move frequently around the 4 seasons, especially in fall and summer season on themount gap, dry pebbles, valley, nearby river are causing and increasing in the flood risk.
2.2. Recent major disasters¾ Flood in 2009:
Flash which occurred in 16 July 2009 in Tseel sum of Govi Altai province. 18 people killed.
¾ Dzud 2009-2010:
Dzud is the Mongolian term for a severe winter weather disaster that places livestock andpastoral livelihoods at risk. In the severe dzud of 2009-2010, around 20-30% of Mongolia's livestock
perished, affecting the livelihoods of over a quarter of the country's human population.
A dzud, an extreme winter phenomenon with temperatures -40 -47 degrees C
That was affected 80.9 % area of Mongolian total area. Perished 9.7 million livestock.
Damage is 526 billion MNT, spent 30.2 billion MNT.
More than 1.6 million people have been affected and where 100,000 homes have beendamaged.
¾ Explosive in 2012:
Gas 5 liter contain explosives in apartment Darkhan sum of
Darkhan province in 21 January 2012.
3
personinjured.Apartment
Evacuated more 100
peopleof33household.

This is a ceiling
Final report ADRC Visiting researcher (13 August – 22 November 2013)

¾

Explosion occurred in Flour factory Darkhan sum of Darkhan province in 26 January 2012.
30 meter high 500 ton contain wheat construction destroyed to explosive. One person
injured.

This is Flour factory¾

Steppe fire in 2012:

Fires occurred Bayandun soum of Dornod
province in 4 May 2012.
4 firefighters killed when they was work to
extinguish. 1 firefighter injured.

3. Disaster Management system
The
Law
on
DisasterProtectionwascreated
in
June
2003.
In the Mongolian Constitution Article 6-(4) stipulates that the State regulates the economy of thecountry with a view to ensure economic security of the nation, the development of all modes of
production, and social development of the population. There are laws on civil defense, air pollution,use of water resource, hydro-meteorology and environmental monitoring.

Chart 1. Structure of Emergency Management Service’s organization
Source: National Emergency Management Agency of Mongolia
Final report ADRC Visiting researcher (13 August – 22 November 2013)

3.1. Legal system and Framework
The Law on Disaster Protection was approved by the Parliament of Mongolia on 20 June,
2003. Following the Law on Disaster Protection, Mongolian Government established the National
Emergency Management Agency (NEMA) on 7 January, 2004. According to the Law on DisasterProtection, NEMA is responsible for implementation of the State disaster protection policy andlegislation, as well as for the professional organization of nation wide activities.
The role of the National Emergency Management Agency of Mongolia is defined primarily byfour basic laws: 1) The Law on Disaster Protection, 2) Law on Fire Safety, 3) The Law on State
Reserve. It is through these four major laws and other emergency directives that NEMA will be called
on to provide oversight, coordination and direct assistance in the event of a major catastrophe.
Amended Laws:•Law on Government of Mongolia;•Law on Management and Financing of State Agency;•Law on State service;•Law on Pension and Benefits of Military Serviceman etc.
The Earthquake Preparedness plan has been developed by the National Emergency
Management Agency of Mongolia and the National Research Center of Astronomy andGeophysics, and approved by the Government in 2010.
Legal Documents:•On implementation activities of Law on Disaster Protection•On Establishment of State Disaster Protection Service•On Approving Personnel of State Emergency commission and its activities•On Emergency service day•Program on Strategy and Structure changes of NEMA
•Rule of NEMA
•Rule of Internal Affairs of NEMA
•Regulation on Guard service of NEMA
•Regulation on Parade•Regulation on Discipline

3.2. Structure of Disaster management
The state administrative
organization in charge of disasterprotection is the organization
responsible for the implementationof the state disaster protection
policy and the legislation on
disasterprotection
andtheorganizationofnation-wide
disaster protection activities andprovision
withprofessional
management.
The disaster protection
resources shall be emergency
management institution, disasterprotection state services, entities
and enterprises and specialized
units and volunteers (from the Law
on Disaster Protection).
Source: National Emergency Management Agency of Mongolia
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Emergency resources
National emergency management agency
Totally 3299 emergency personnel (rescuers and firefighters) nationwide working in a local
emergency management divisions or departments.
• On duty Emergency Motor Depot where the emergency trucks are dispatched and repaired.
• Rescue Special Unit (SAR team’s and Firefighters)• Firefighting stations in each area
• Additional resources possibly mobilized by the Armed force in accordance with the mutual
agreements.

Source: National Emergency Management Agency of Mongolia
3.3. Earthquake disaster countermeasures
Mongolia has experienced four major earthquakes (Ms>8) and many more moderate
earthquakes (Ms 5.3-7.5) in this century. The seismic activity in Mongolia is related to its location
between the compressive structures associated with the collision of the Indian-Australian plate with
the Eurasian plate on the one hand and the extensional structure associated with the Baykal rift
system on the other. The historical records (1903 onward) of the seismicity in Mongolia show a highconcentration of seismic activity along the Mongolian-Altay and Gobi-Altay ranges and the northwestern boarder with Russia and around Mogod east of Hangay mountain

Final report ADRC Visiting researcher (13 August – 22 November 2013)

The project “Strengthening the Capacity of Earthquake Risk Reduction” is implemented by theJapan International Cooperation Agency.
This project is aiming to enhance earthquake prevention in UB city and to increase thecoordination and cooperation between government agencies as well as reinforcing the disaster
response plan and jointly implemented by the Governor’s Office of the Municipality, National
Emergency Management Agency, JICA, and 8 governmental organizations and 7 municipality
departments as well as Science Academy of Mongolia which is 16 organization in total.

3.4. Dzud disaster countermeasures
Mongolian government is now identifying effective ways to reduce the risk of dzud and bring
improvements to the animal husbandry sector. The parliament approved in 2010 the “Mongolian
National Livestock Program”, which settled relevant issues and contained a comprehensive plan for
the next 10 years.
First phase is in 2010-2015, second phase is in 2016-2021.

Source: National Agency Meteorology and Environmental Monitoring of Mongolia
3.5. Fire disaster countermeasures
In an average year occur the 50-60 forest fires and 80-100 steppe fires.
Since 1987 the Information and Computer Center of Ministry for Nature and the Environment daily
receives the AVHRR (Advances Very High Resolution Radiometer) data from NOAA meteorologicalsatellite, which can be used to detect and monitor the forest and steppe fire over whole territory ofMongolia.
Fire monitoring in Mongolia is essential for all kind of land-use planning and forest management. To
detect and monitor wildfires and to support fire management activities with real time information onfire events is of high priority.

3.6. Disaster reduction awareness enhancement and disaster knowledge dissemination
National emergency management agency organized many kind of training. For example:- "International Fire Forum" organized in cooperation with NEMA and FDMA, Japan in 2011
- "Incident Command System" training organized by the USA Forest Service in 2012.
- NEMA and Forest Unit joint training “Accident management system” in Bulgan province in2013.
"10th Meeting on Regional Consultative Committee on Disaster Management" organized in2013 in cooperation with NEMA and ADPC

Final report ADRC Visiting researcher (13 August – 22 November 2013)

3.7. Improvement of environment for disaster reduction volunteer activities”Transferring Earthquake Preparedness Measures of Japan and Conducting Evacuation
Drills” project implemented in National emergency management agency in 2010-2011.
Project activities:
1. Preliminary Meeting in Mongolia
2. Study Tour in Japan for the official of NEMA, the implementing agency
3. Trainings and Workshops in Mongolia¾ Training for officials of National emergency management agency (NEMA) “Basicknowledge of earthquake & disaster management”¾ Training for school teachers “Basic knowledge for earthquake preparedness education”¾ Lectures for students “Basic knowledge for earthquake preparedness”¾ Evacuation Drill¾ Disaster Management Exercise with Fun “Iza! Kaeru Caraban!”

3.8. Disaster reduction activities of corporations“Strengthening the Disaster Mitigation and Management System in Mongolia” is a project coimplemented by UNDP and the National Emergency Management Agency (NEMA) in 2002-2011.
The overall project goal is to contribute to the sustainability of the country’s development gains
by reducing risks and vulnerabilities through enhanced government capacity, and wider partnerships
with other sectors and regions.
The “Strengthening the Disaster Mitigation and Management System in Mongolia” Phase 3(April 2008-December 2011) is the successor of Phase 2 (2005-2007; US $ 900,000) and Phase 1(2002-2005; US $ 725,000).
Phase 3 aimed to consolidate and expand the results from Phases 1 and 2. The overall goal
was to contribute to sustaining development gains of the country by reducing risks and vulnerabilities
through enhanced government capacity and wider partnerships with other sectors, and regions. The
principal objectives were:
1) Support implementation of the long-term strategy of Mongolia for disaster risk management
to minimize vulnerability and improve preparedness;
2) Enhance institutional capacity for disaster management and emergency response;
3) Assist in adapting to climate change that adversely affects sustainable development of thecountry, especially those in the rural environments. Phase 3 covered NEMA’s national structure
including 21 aimag (province) and 9 Ulaanbaatar district branches. The number of sums involved
increased from 8 to 12 representing 6 aimags (up from 4). Two districts in Ulaanbaatar were selected
to pilot novel urban disaster risk management efforts.
Self-Help Groups are for Mongolia a new kind of voluntary organization of motivated citizens
supported by the project in the form of a paid coordinator/facilitator and training, e.g., about risk
mapping and assessment, first aid, search and rescue, firefighting, early warning, organizational
development, financial management. The groups also received some equipment and materials for
firefighting, communication, and public awareness raising, and one small grant to begin one or moredisaster risk reduction activities according to a well-elaborated plan.
4. Disaster Management Strategy, Policy, Plan
Strategic Goal 1
A risk management policy of disaster and natural environment is reflected in the program of
implementation of the government established as a result of the election and also integrated into theGovernor’s action of plan in the local level, as well as the 5 year term of “Comprehensive National
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Development Strategy of Mongolia”, which the program of implementation is revised annually.
In particular, there are more than 10 articles are included in the program of implementation of thegovernment which is focused to reinforce the implementation of disaster prevention, risk reduction,
preparedness and reducing vulnerabilities.
Strategic Goal 2
Considering the importance of strengthening the capacity of overcoming the natural andmanmade disasters at the local level, the emergency management branches in each 21 aimags/administrative unit/ are functioning for disaster mitigation and also obliged to organize the activities
such as disaster prevention, post-disaster early recovery, risk and vulnerability reduction, analyzing
the overall disaster response operation after the disaster. The emergency management branch
operates with the status of implementing agency under the local governor’s office, and is state funded.
In order to protect the vulnerable groups of the population and to improve the livelihood /animalhusbandry and agriculture/ of the population, and to strengthen the capacity of disaster response at
the local level, the Government of Mongolia is creating partnership groups through coordinating theefforts of herder households.
In the framework of implementing the community based disaster management activities, over 40
herder partnership groups established aiming to reduce the disaster risk which involved 600 herders
from 300 herder households and as a result of funding the herders with issuing the micro-loan,
herders have established there own joint disaster relief fund, which strengthened their capacity of
responding to disaster phenomena and livelihood is increased 10-50 percent.
Strategic Goal 3
The capacity to cope with disasters is being enhanced at the national and local levels by
establishing disaster risk reduction funds with a certain amount of government investment that are to
be used for recovery measure in case a major disaster hits.
Government issued rules about “Disaster early warning”, “Evacuation”, “Mobilization” in 2011.
Ikh hural adopted “State Disaster Protection policy”, “State Programme on Strengthening theDisaster Protection Capacity” in 2011.
- State Disaster Protection policy is based on Mongolia Constitution and National Security
abidance principle Mongolia legislation and International contract adherence qualified basic document.
- State Disaster Protection policy more focus on strengthening disaster management system,
train public on safety living education and reduce disaster vulnerability, support efficient participationof Disaster Protection activities through local governance, agencies, private sector and local citizen,
improve preparedness, in order to ensure sustainable development of country’s socio-economic.
Government of Mongolia adopted resolution about Disaster protection strategy, policy andplan /in 2012-2020/.
•
This plan included 5 groups:
1. Community Participation in Disaster Risk Mitigation
2. Risk assessment, analysis and disaster risk mitigation
3. Legal system upgrade
4. Early warning system upgrade
5. Disaster protection capacity strengthen•
National second plan for Community Participation in Disaster Risk Mitigation•
Government adopted to reform Disaster protection national 13 services in 2012.
Added Mining and Population and social protection services

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Chapter 2. Disaster Management System in Japan

1. General Information
Japan is an island nation in East Asia. Located in the
Pacific Ocean, it lies to the east of the Sea of Japan, People's
Republic of China, North Korea, South Korea and Russia,
stretching from the Sea of Okhotsk in the north to the East China
Sea and Taiwan in the south. The characters that make up
Japan's name mean "sun-origin", which is why Japan issometimes referred to as the "Land of the Rising Sun".
Japan consists of forty-seven prefectures, each overseen by
an elected governor, legislature and administrative bureaucracy.
Each prefecture is further divided into cities, towns and villages.
Japan has a total of 6,852 islands extending along the
Pacific coast of Asia. The main islands, from north to south, are
Hokkaidō, Honshū, Shikoku and Kyūshū. The Ryūkyū Islands,
including Okinawa, are a chain to the south of Kyūshū. Together
they are often known as the Japanese Archipelago. About 73 percent of Japan is forested,
mountainous, and unsuitable for agricultural, industrial, or residential use. As a result, the habitablezones, mainly located in coastal areas, have extremely high population densities. Japan is one of themost densely populated countries in the world.
The islands of Japan are located in a volcanic zone on the Pacific Ring of Fire. They are primarily
the result of large oceanic movements occurring over hundreds of millions of years from the midSilurian to the Pleistocene as a result of the subduction of the Philippine Sea Plate beneath thecontinental Amurian Plate and Okinawa Plate to the south, and subduction of the Pacific Plate under
the Okhotsk Plate to the north. Japan was originally attached to the eastern coast of the Eurasiancontinent. The subducting plates pulled Japan eastward, opening the Sea of Japan around 15 million
years ago. Japan has 108 active volcanoes. Destructive earthquakes, often resulting in tsunami,
occur several times each century. The 1923 Tokyo earthquake killed over 140,000 people. Morerecent major quakes are the 1995 Great Hanshin earthquake and the 2011 Tōhoku earthquake, a 9.0magnitude quake which hit Japan on March 11, 2011, and triggered a large tsunami.
A major feature of Japan’s climate is the clear-cut temperature changes between the four
seasons. In spite of its rather small area, the climate differs in regions from a subarctic climate to a
subtropical climate. The side of the country which faces the Sea of Japan has a climate with muchsnow in winter by seasonal winds from the Siberia. Most of the areas have damp rainy season from
May to July by seasonal winds from the Pacific Ocean. Japan is frequently visited by typhoons from
July to September.

2. Natural hazards in Japan
Japan is located in the circum-Pacific mobile zone where seismic and volcanic activities occur
constantly. The number of earthquakes and distribution of active volcanoes is quite high. The
geological formation with plate boundaries of the Pacific plate, the Philippine Sea plate, the Eurasianplate, and the North American plate make Japan an earthquake-prone country. Also because of its
geographical, topographical, and meteorological conditions, it is subject to other frequent natural
disasters such as typhoons, torrential rains, and heavy snow.
However, with the progress of society’s capabilities to address disasters and the mitigation ofvulnerabilities to disasters by developing disaster management systems, promoting national land
Final report ADRC Visiting researcher (13 August – 22 November 2013)

conservation, improving weather forecasting technologies, and upgrading disaster information
communications systems, disaster damage has shown remarkable declining tendency.
The disaster management system has been developed and strengthened following the bitter
experiences of large-scale natural disasters and accidents.

Figure 2.1. The Number of People Killed or Missed by Natural Disasters

2.2. Death Toll by Natural Hazard Type (1900 - present) Source:Lecture of disaster management in Japan

Final report ADRC Visiting researcher (13 August – 22 November 2013)

2.3 Recent Major Disasters in Japan
2.3.1 Great Hanshin-Awaji Earthquake (January 1995)

The Great Hanshin earthquake occurred on
Tuesday, January 17, 1995, at 05:46 JST (January 16
at 20:46 UTC) in the southern part of Hyogo
Prefecture, Japan. It measured 6.8 on the moment
magnitude scale (USGS) and Mj7.3 (adjusted from
7.2) on JMA magnitude scale. The tremors lasted forapproximately 20 seconds. The focus of theearthquake was located 16 km beneath its epicenteron the northern end of Awaji Island, 20 km away fromthe city of Kobe.
It killed 6,434 people; injured 43,792; destroyed 104,906 houses; half destroyed 144,274
houses; and partially destroyed 390,506 houses. The fires that broke out because of the earthquake
burned down an area of 835,858 square meters.
2.3.2 Great East Japan Earthquake/ Tsunami (March 2011)
The 2011 earthquake off the Pacific coast of
Tohoku, also known as the 2011 Tohoku earthquakeor the Great East Japan Earthquake, was a magnitude
9.0 (Mw) undersea megathrust earthquake off thecoast of Japan that occurred at 14:46 JST (05:46
UTC) on Friday, 11 March 2011, with the epicenter
approximately 70 kilometers (43 mi) east of the Oshika
Peninsula of Tohoku and the hypocenter at anunderwater depth of approximately 30 km (19 mi). It
was the most powerful known earthquake ever to have
hit Japan, and one of the five most powerfulearthquakes in the world overall since modern recordkeeping began in 1900. The earthquake triggered
powerful tsunami waves, which reached heights of up
to 40.5 meters (133 ft) in Miyako in Tōhoku's Iwate Prefecture, and which in the Sendai area travelled
up to 10 km (6 mi) inland. In addition to loss of life and destruction of infrastructure, the tsunami
caused a number of nuclear accidents, primarily the ongoing level 7 meltdowns at three reactors in
the Fukushima I Nuclear Power Plant complex, and the associated evacuation zones affecting
hundreds of thousands of residents.
2.3.3 Typhoon No. 23 (TOKAGE) (October 2004)
Japan is an island nation, surrounded by water. Typhoons are extreme storms that can ravage
the islands with high winds and storm surge.
On 20 October 2004, Typhoon No. 23 landed on Japan and caused floods and landslides
triggered by record-breaking torrential rain and high wave. Ninety-five (95) people were killed; 555
injured; 909 houses were totally destroyed; more than 18,000 houses were damaged; and about
55,000 were inundated.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

2.4 Disaster Management System in Japan
Disaster management in Japan is carried out at every stage of disaster prevention, emergency
response to disaster, and recovery and reconstruction following disaster. A special board of inquiry of
the Central Disaster Management Council has studied large-scale earthquakes such as the Tokai
Earthquake, Tonankai and Nankai Earthquakes, major earthquakes centered in Tokyo, and ocean
trench earthquakes occurring in the vicinity of the Japan Trench and Chishima Trench. It is to be
hoped that the entire nation will join in the work of disaster preparation.

Figure 2.3. Outline of disaster management planning system
Source: Book of disaster management in japan

Figure 2.4. Organization of National Government

Source: Cabinet Office of Japan

Final report ADRC Visiting researcher (13 August – 22 November 2013)

3. Progress in Disaster Management Laws and Systems
In Japan, the disaster management system has been developed and strengthened following thebitter experiences of large-scale disasters and accidents.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Figure 3.1. The experiences of large-scale natural disasters and accidents
Source: Book of disaster management in Japan
Disaster countermeasures are taken based on the Disaster Countermeasures Basic Act andvarious disaster management related laws.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Basic Acts
1) Disaster countermeasures Basic Act (1961)
2) Act on Prevention of Marine Pollution and Maritime Disaster (1970)
3) Act on Disaster Prevention in Petroleum Industrial Complexes and other Petroleum Facilities(1975)
4) Act on Special Measures for Large-scale Earthquakes (1978)
5) Act on Special Measures for Nuclear Disasters (1999)
6) Act on Special Measures for Promotion of Tonankai and Nankai Earthquake Disaster
Management (2002)
7) Act on Special Measures for Promotion of Disaster Management for Trench-type Earthquake
in the Vicinity of the Japan and Chishima Trenches (2004)
Disaster Prevention and Preparedness
1) Erosion Control Act (1897)
2) Building Standard Law (1950)
3) Forest Act (1951)
4) 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)
Disaster Emergency Response
1) Disaster Relief Act (1947)
2) Fire and Disaster Management Organization Act (1947)
3) Japan Coast Guard Act (1948)
4) Fire Services Act (1948)
4) Flood Control Act (1949)
3) Police Act (1954)
3) Self-Defense Forces Act (1954)
Disaster Recovery and Reconstruction
1)
Forest National Insurance Act (1937)
2)
Act on Temporary Treatment of Rental Land and Housing in Cities (1946)
3)
Agriculture Disaster Compensation Act (1947)4)
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)
Final report ADRC Visiting researcher (13 August – 22 November 2013)

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
for Disasters Mitigation (1972)18)
Act on Payment of Solatia for Disasters (1973)19)
Act on Special Measures for Reconstruction of Disaster-stricken Urban Areas(1995)
20)
Act on Special Financial Measures for Reconstruction of Jointly Owned
Buildings in Disaster-stricken Areas (1995)
21)
Act on Special Financial Measures for Preservation of Rights and Profits ofVictims of Specified Disasters (1996)
22)
Act on Support for Livelihood Recovery of Disaster Victims (1998)
23)
The Japan Finance Corporation Act (2007)

3.1 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 to the enactment of theDisaster 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-scale disasters 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 disaster countermeasures.
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

3.2 Basic Legal Frameworks of Disaster Management in Japan
In applying to all of the disaster phases of prevention, mitigation and preparedness, emergency
response as well as recovery and rehabilitation, relevant laws and regulations were enacted
including Disaster Countermeasures Basic Act (1961) which is the cornerstone of legislation ofdisaster management which set out the basic for measures for disaster risk reduction, emergency
response, post-disaster recovery and reconstruction. It was formulated in 1961, after the happeningof Typhoon Ise-wan in 1959 that caused more than 5,000 fatalities. Following acts are the otherrelevant acts associated with disaster countermeasures Basic Act (1961);
Erosion Control Act (1897), Disaster Relief Act (1947), Building Standard Law(1950)
Landslide Prevention Act (1958), River Act (1964), and Act on Special
Measures for Large-scale Earthquakes (1978).
Final report ADRC Visiting researcher (13 August – 22 November 2013)

(1)Erosion Control Act 1897:
To clearly define the responsibilities of the national and local governments and other publicorganizations to take necessary measures for preventing sediment-related disaster from thegeneration and discharge of unstable sediment due to natural events, such as heavy-rain
induced landslides and river-bed erosion, to ensure a sound environment and maintain thefunction of river in flood control and water use, and thus to contribute to the conservation of thenational land and the stability of the people‘s livelihood.
(2)
Disaster Relief Act 1947:
The purpose of this law is to allow the national government to take necessary emergency
relief measures in case of disaster in cooperation with local municipal governments, the JapanRed Cross, and other relevant organizations. Distribution of foods and drinking water, Supply ofclothing, bedding, and other basic necessities, Medical and natal care, Rescue of disastervictim , Emergency repairs of housing subject to disaster, Distribution and/ or loan of funding,equipment, and materials required to maintain livelihoods, Distribution of school supplies , Interment
and other matters as specified by government ordinance.
(3)
Building Standard Law 1950:
In Article 39 of the law, the municipal government is allowed to designate the area withconsiderable risk due to tsunami, storm surge, and flood and so on as disaster prone areaǁ by its local
ordinance. And it shall be determined in the above ordinance that necessary items for disaster
Prevention in the disaster prone area such as prohibition against building a residence or
restriction concerning to build a building.
(4)Land slide Control Act 1958:
To provide the measures for preventing landslides or slag heap collapses to avoid or mitigate
damage from those hazards, and thus to contribute to the conservation of the national land and thestability of the people‘s livelihood.
(5)River Act 1896:
The law is to clearly define the responsibilities of the national and local governments and otherpublic organizations to take necessary measures for comprehensive river management, throughwhich disaster due to floods and storm surges will be prevented, rivers will be in proper use,
the regular functions of river water will be maintained, and river environment will be improvedand conserved, which will contribute to the conservation and development of the national land,
and thus ultimately to enhance public welfare. This law specifies the administration’s
responsibilities about river management.

3.3 Mission of the Cabinet OfficeAlong with a series of reforms of the central government system in 2001, the post of Minister ofState 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 forsecuring cooperation and collaboration among related government organizations in wide-ranging
issues, the Director-General for Disaster Management is mandated to undertake the planning of basic
disaster management policies and response to large-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 the appointment of the Deputy Chief
Cabinet Secretary for Crisis Management and the establishment of the Cabinet Information Collection
Center, to strengthen risk management functions to address emergencies such as large-scaledisasters and serious accidents. Thereby, the Cabinet Office has a role in supporting the Cabinet
Secretariat regarding disaster management matters.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Figure 3.2. Organization of National Government and Cabinet Office (Disaster management)
Source: Cabinet Office, Government of Japan

3.4 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 BasicAct. The council consists of the Prime Minister, who is the chairperson, 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 3.3. Structure of Central Disaster Management Council
Source: Cabinet Office, Government of Japan
Final report ADRC Visiting researcher (13 August – 22 November 2013)

3.5 Disaster Management Planning System
Disaster Management Planning System
1) Basic Disaster Management Plan: This plan is a basis for disaster reduction activities and isprepared by the Central Disaster Management Council based on the Disaster Countermeasures BasicAct.
2) Disaster Management Operation: This is a plan made by each designated governmentorganization and designated public corporation based on the Basic Disaster Management Plan.
3) Local Disaster Management Plan: This is a plan made by each prefectural and municipal
disaster management council, subject to local circumstances and based on the Basic Disaster
Management Plan.
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 andappropriate disaster recovery and rehabilitation, as well as scientific and technical research.
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 3.4 Structure of basic disaster management plan
Source: Book of disaster management in Japan

Final report ADRC Visiting researcher (13 August – 22 November 2013)

3.6 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), anddesignated public cooperation (63 organizations including independent administrative agencies, Bankof Japan, Japanese Red Cross Society, NHK, electricity and gas companies and NTT). In thisconnection, the national council is responsible for formulation 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 in local. The
prefectural council will conjunctionally work with the mentioned designed agencies to formulate andpromote the implementation of Local Disaster Management Plan.
3) Municipal Level: In this level, the Mayor of City, Town and Village is the commander, as thesame of Governor in prefectural level, will take function through Municipal Disaster Management
Council to formulate and promote the implementation of Local Disaster Management Plan.
3.7 Earthquake Disaster Countermeasures(1) Earthquake Disasters in Japan
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 theworld’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 causedby plate movements (such as the Great Hanshin-Awaji Earthquake of 1995)(2) Observation system
Source: Japan Meteorological Agency
In order to constantly monitor seismic activity,
the Japan Meteorological Agency ((JMA) and otherrelevantorganizations
installandmaintainseismometers that are used for estimating thelocation of the epicenter and magnitude of anearthquake as well as for tsunami warnings, andseismic intensity meters that measure the intensity ofground 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 of intensity 5 orgreater 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, andwithin about five minutes issues an earthquake
information report indicating the epicenter andmagnitude of the earthquake and the seismic intensity
in the municipalities where strong shaking wasobserved.
To monitor earthquakes, JMA operates anearthquake observation network comprised of about
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 Research Institute for Earth Science andDisaster Prevention (NIED).
When an earthquake occurs, JMA immediately issues information on its hypocenter, magnitude
and observed seismic intensity.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Regarding trench-type earthquakes, based on the related laws and regulations, appropriate
actions where various countermeasures need to be strengthened, the reinforcement of observation
systems, and the formulation of a plan of action by relevant government organizations and private
corporations. In addition, preparations such as improvements in evacuation 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, theCentral Disaster Management Council has conducted examinations to clarify the characteristics of theearthquake, 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,” amaster plan that includes a range of activities from preventive measures to post-disaster response
and recovery; the “Earthquake Disaster Reduction Strategy, ”to determine an overarching goal ofdamage mitigation and strategic targets based on the damage estimation; and the “Guidelines for
Emergency Response Activities,” which describes the actions to be taken by related organizations.
It is necessary to keep working on countermeasures nationwide, as has been witnessed by theexamples of the major earthquakes of Hanshin-Awaji and Niigata-ken-Chuetsu, because such adisaster can occur anywhere in Japan. Committee on Earthquake Disaster Reduction in Local Cities
is examining possible countermeasures.
(4) Countermeasures against Tokai Earthquake
Strain on the earth's crust along the Suruga Trough has been building up for approximately
160 years, ever since the Ansei-Tokai Earthquake in 1854. Therefore, it is believed that there is a highpossibility of a Tokai Earthquake occurring.
A Tokai Earthquake is the only earthquake at present with a possibility of being predicted justbefore it occurs. The areas for intensified measures against earthquakes (160 municipalities in eight
prefectures as of April 2010) were designated under the Act on Special Measures for Large-scale
Earthquakes, where the observation system has been reinforced and the earthquake response
system in the case of a prediction report being announced has been developed.
Data presumed to be eﬀective for earthquake prediction are monitored in real-time by the Japan
Meteorological Agency. Upon detecting any abnormality in the data, observation, caution andprediction information regarding an earthquake in the Tokai region will be announced. The Prime
Minister will then issue a warning declaration based on the earthquake prediction report andimplement necessary measures including establishment of the Earthquake Disaster Warning
Headquarters.
The Central Disaster Management Council drew up the "Earthquake Countermeasures Basic
Plan" containing basic policies for actions to be taken in response to a warning declaration based on
the act, and relevant organizations have their own plans accordingly. When relevant local
governments carry out urgent projects to improve facilities for mitigating possible damage caused by
the Tokai Earthquake based on their own plans, special measures will be taken such as increasing
national government subsidies and fiscal measures for the local governments based on the Act on
Special Financial Measures for Urgent Earthquake Countermeasure Improvement Projects in
Areas for Intensified Measures."
Regarding countermeasures against Tokai Earthquake, the Central Disaster Management
Council reviewed the probable epicenter area in 2001, and the areas forintensified measures wereexpanded in 2002, based on various observation data and scientific expertise accumulated over the
past quarter of a century following the enactment of the Act on Special Measures for Large- scale
Earthquakes.
Furthermore, the Central Disaster Management Council published the outcome of its damage
estimation in 2003, which made it clear that there may be extreme and wide-area damage including
about 9,200 people killed in the case of no forewarning.
In the same year, the council also decided the "Policy Framework for Tokai Earthquake,"containing such main issues as implementation of urgent earthquake-resistant construction measures,
reinforcement of community capabilities against disasters, and establishment of a tangible disastermanagement system in the case of a warning declaration.
Based on this policy framework, the Tokai Earthquake Disaster Reduction Strategy wasformulated in 2005. These guidelines set clear goals: a 50% reduction in the number of deaths andthe value of economic losses from earthquakes in the region and an increase in the number ofearthquake-resistant homes to 90% of the housing stock, within 10 years.
Furthermore, the "Guidelines for Tokai Earthquake Emergency Response Activities" were
formulated in 2003 (revised in 2006), and the activities of each disaster management related
Final report ADRC Visiting researcher (13 August – 22 November 2013)

organization were determined in terms of each level, such as at the time of caution information,
warning, declaration and disaster occurrence. Based on these guidelines, a detailed plan of action
was formulated for units engaged in search and rescue, firefighting and medical activities when awarning declaration is made or an earthquake suddenly occurs.

Source: Book of disaster management in Japan(5) Countermeasures against Tonankai and Nankai Earthquakes
Tonankai and Nankai Earthquakes with a magnitude of 8 or greater have occurred at intervalsof 100 to 150 years. Most recently, the Tonankai Earthquake and Nankai Earthquake occurred in1944 and 1946, respectively, and therefore it is anticipated that the next ones will occur in the first halfof this century. The Central Disaster Management Council announced a damage estimate in 2003
after examining the possible epicenter zone, strength of tremors and distribution of tsunami wave
height. It said that the maximum number of deaths could be approximately 18,000, of which about
8,600 may be attributable to tsunamis.
In the same year, the council established the "Policy Framework for Tonankai and Nankai
Earthquakes," the contents of which included establishing the tsunami disaster management system
and wide-area disaster management support system, and promoting the planned urgent prevention
countermeasures as the main items.
Additionally, based on the Act on Special Measures for Promotion of Tonankai and Nankai
Earthquake Disaster Management, the countermeasures promotion areas for the Tonankai andNankai Earthquakes were designated in 2003 (21 prefectures and 403 municipalities as of April
Final report ADRC Visiting researcher (13 August – 22 November 2013)

2006) . The" Tonankai and Nankai Earthquake Countermeasures Basic Plan" was also drafted in
2004.
The relevant organizations have their own plans accordingly.
In 2005, the Central Disaster Management Council drafted the "Tonankai and Nankai
Earthquake Disaster Reduction Strategy," which sets forth an overarching goal of halving theestimated deaths and economic loss within a 10-year period, as well as the strategic targets to createa tsunami hazard map in all the relevant municipalities in the same period. In 2006, the "Guidelines
for Tonankai and Nankai Earthquake Emergency Response Activities" were drafted. In 2007, aplan was drafted to decide specific details of such activities, based on the 2006 Guidelines.
(6) Countermeasures against Trench-type Earthquakes in the Vicinity of the Japan andChishima Trenches
There have been many large-scale earthquakes of M7 or M8 scale occurring in the vicinity of
the Japan Trench, extending in the oceanic areas from oﬀ of Eastern Chiba to Sanriku, and in thevicinity of the Chishima Trench, extending from the areas off Sanriku, Tokachi and Etorofu Island.
There are many types of earthquakes in this area, such as the Meiji-Sanriku Earthquake Tsunami in
1889, which caused enormous damage from a giant tsunami, and the Miyagi-ken-oki Earthquake,
which occurs at intervals of approximately 40 years. The Central Disaster Management Council choseeight of these earthquakes as subject matter for strengthening disaster countermeasures andexamined the strength of tremors and distribution of tsunami wave height, and announced theestimated damage in 2006. In the same year, the council established the "Policy Framework for
Trench-type Earthquakes in the Vicinity of the Japan and Chishima Trenches," focusing on
issues such as the promotion of tsunami disaster countermeasures, the construction of towns capableof withstanding tremors, and addressing problems unique to snowy or cold areas. Additionally, basedon the Act on Special Measures for Promotion of Disaster Management for Trench-type
Earthquakes in the Vicinity of the Japan and Chishima Trenches, the countermeasures
promotion areas for these earthquakes were established (5 prefectures and 119 municipalities
included as of April 2006), and the "Countermeasures Basic Plan for Trench-type Earthquakes inthe Vicinity of the Japan and Chishima Trenches" was drafted. The relevant organizations havetheir own plans based on the basic plan.
These measures were followed by the drafting of the “Guidelines for Emergency Response
Activities in the Countermeasures for Trench-type Earthquakes in the Vicinity of the Japan andChishima Trenches” in 2007 and the “Disaster Management Strategy for Trench-type
Earthquakes in the Vicinity of the Japan and Chishima Trenches” in 2008.
(7) Countermeasures against Tokyo Inland Earthquakes
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 event in the first half of this century
has been pointed out.
Many types of Tokyo Inland Earthquakes are assumed due to various possible epicenters andthe complicated mechanism of the occurrence. The Central Disaster Management Council has carriedout damage estimations for 18 types of Tokyo Inland Earthquakes, and assumed extensive damage
including a death toll of approximately 11,000 people, total collapse of 85,000 buildings and amaximum economic loss of 112 trillion yen in the earthquake with an epicenter in the northern part ofTokyo Bay (assumed scale of M7.3).
In 2005, the Council established the Policy Framework for Tokyo Inland Earthquakes, with themain 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 measures to handle
large numbers of evacuees or travelers unable to return to their homes. Additionally, in 2006, thecouncil drafted the Tokyo Inland Earthquake Disaster Reduction Strategy, with general goals ofhalving the death toll and reducing the economic loss by 40%, as well as strategic goals such asincreasing 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.
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 thebasis of these guidelines.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Book of disaster management in Japan(8) Countermeasures against Chubu and Kinki regions inland earthquakes
It is thought highly probable that earthquakes will strike the Tonankai and Nankai regions in
the first half of this century. Seismologists believe a broad area of central Japan from Chubu to Kinki
has entered an active period, raising the risk of increased seismic activity. Based on past examples,
seismic activity in inland western Japan regions tend to both presage and follow earthquakes in the
Tonankai and Nankai regions.
In the Chubu and Kinki regions, which are densely urbanized, the damage from a large-scale
earthquake would be extremely extensive. When the Central Disaster Management Council drafted
estimates of probable damage from five types of earthquake in the Chubu region and eight in Kinki, it
concluded that an earthquake in the Uemachi fault zone would cause horrific devastation: an
estimated 42,000 deaths, almost a million collapsed buildings and economic damage of 74 trillion yen.
The toll from a major tremor in the Sanage- Takahama fault zone could reach 11,000 dead, 300,000
collapsed buildings and economic damage of 33 trillion yen.
To prepare for such a disaster, in 2009 the Central Disaster Management Council launched the
Chubu and Kinki regions Inland Earthquake Countermeasures Basic Plan. This scheme seeks
chiefly to grapple with the unique challenges of minimizing harm in the event of a major quake in
Chubu or Kinki, including disaster countermeasures in areas of dense concentrations of wooden
homes and steps to minimize damage to cultural assets.
(9) Earthquake-proofing of Houses and Buildings
More than 80% of the casualties in the Great Hanshin-Awaji Earthquake were caused bybuilding collapse. Similarly, damage estimates assume that building collapse will be the cause of alarge number of deaths in future large-scale earthquakes. Unfortunately, it is estimated that some
21% of existing residences are insufficiently earthquake-resistant, as they were built before 1981,
when stricter earthquake-resistant building codes were introduced. Also, about 30% of schools and
40% of hospitals lack adequate earthquake-resistant construction.
In view of this situation, the Central Disaster Management Council drafted the “Urgent
Countermeasures Guideline for Promoting the Earthquake-resistant construction of Houses andBuildings” in 2005, which stipulates that earthquake-resistant construction throughout the country
Final report ADRC Visiting researcher (13 August – 22 November 2013)

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 was amended
to strengthen measures such as the development of a promotion plan for improving earthquakeresistant construction by local governments. Additionally, the subsidy system that provides financial
support to promote earthquake-resistance diagnosis and retrofit has been expanded, and tax
reduction measures to promote earthquake-resistant retrofit 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 amethod for each municipality to produce an “Earthquake Disaster Hazard Map” that indicatessubsurface 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 thisfacility began in 1999 and willbecompletedin2005.
Therefore, this facility will begin
to make its contribution ten
years after the Hyogoken
Nanbu (Kobe) Earthquake.
The world's largest
shaking table, which cansimulate high level groundmotions, is taking shape inJapan. The opportunities andchallenges provided throughthis facility are great. It will be afocus of full-scale testing ofstructures due to high-intensity
earthquakes.
Source: Hyogo Earthquake Engineering Research Center(10) Tsunami Countermeasures
Surrounded by water on all sides with long andcomplex coastlines, Japan is highly vulnerable toearthquake-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).
In addition to local tsunamis generated by earthquakes near the coast, Japan has also sufferedmajor damage from the onslaught of distant tsunamis generated by open-sea earthquakes. In 1960, atsunami generated by the Chile Earthquake crossed the Pacific Ocean and reached the shores ofJapan about 22 hours later, killing 142 people.
When a tsunami is expected to cause coastal damage, the Japan Meteorological Agency issues
a tsunami warning or advisory within 2-3 minutes after the earthquake and then follows up withannouncements about the estimated height and arrival time of the tsunami. The information istransmitted immediately to disaster management organizations and media outlets, and further
forwarded to residents and maritime vessels.
Tsunami countermeasures, such as expediting the announcement/transmission of tsunami
forecasts and improving coastal embankments (tidal embankments) and tide prevention gates, havebeen carried out. The Cabinet Office, in cooperation with relevant ministries has prepared guidelines
for the creation of a tsunami hazard map and the designation/development of tsunami evacuationbuildings by local governments, and is working on disseminating the guidelines.
(11) Volcano Disaster Countermeasures(1) Volcano Disasters in Japan
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 thisFinal report ADRC Visiting researcher (13 August – 22 November 2013)

volcanic activity, JMA deploys seismographs and related observation instruments in the vicinity of 47
volcanoes that are remarkably active.

Source: Japan Meteorological Agency
2) Continuous Monitoring of Volcanoes and Broadcasting of Eruption Alert
JMA deploys a network of seismometers, telephoto cameras and angle meters ranged around 47
volcanoes throughout Japan (selected by the Coordinating Committee for Prediction of Volcanic
Eruptions, an organization of academics and related government agencies), and monitors thevolcanoes continuously, 24 hours a day. If an eruption affecting the caldera periphery or populatedareas is predicted, an eruption warning is issued. For a group of 29 of these volcanoes (as ofFebruary 2011) that are especially close to populated areas, five volcano alert levels are assigned
according to the status of volcano activity, each clearly connected to a specific set of disastercountermeasures: Evacuate; Prepare to Evacuate; Entry Restricted, and so on.
(3) Volcano Disaster Management Councils, Volcano Hazard Maps, Evacuation Plans
Based on the Policy on Volcano Management Related to Evacuation in the Event of Eruption,compiled in March 2008 by the Cabinet Oﬃce, the following actions are being taken.
1) Volcano Disaster Management Councils, a wide-area coordinating framework consisting ofvarious volcano- related government agencies, are established at 24 volcanoes. Core groups,
consisting of prefectural and local government officials, meteorological observatory personnel, theSabo (Soil Erosion Control) Department, and volcanologists, lead the activities of the Volcano
Disaster Management Councils.
2) Based on a variety of eruption scenarios, the Volcano Disaster Management Councils draft
volcano hazard maps pointing out areas at risk of dangerous eruption phenomena for 40 volcanoes.
3) The Volcano Disaster Management Councils promote the drafting of specific and practicalevacuation plans. These plans specify when to begin evacuation, areas likely to require evacuation,and evacuation routes and methods.
(12) Storm and Flood Countermeasures(1) Storm and Flood Disasters in Japan
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 and active weatherfront systems and geographical conditions such as precipitous terrains and steep rivers, as well as
Final report ADRC Visiting researcher (13 August – 22 November 2013)

settlement conditions in which many of the cities are built on river plains. One-half of the population isconcentrated in possible inundation areas, which account for about 10% of the national land.
Although there has been a large reduction in the area inundated by floods owing to soil
conservation and flood control projects over many years, the amount of general assets damaged inflooded areas has increased in recent years. Additionally, as a long-term trend, there is an increasing
tendency of downpours throughout the country.
(2) Observation System
The Japan Meteorological Agency observes meteorological phenomena that cause storm andflood disasters using the Automated Meteorological Data Acquisition System (AMeDAS), which
automatically measures rainfall, air temperature and wind direction/speed, weather radar, andgeostationary meteorological satellites. These are used to announce forecasts and warnings to
prepare against disasters (weather warnings and advisories for individual municipalities began in May
2010).
The rainfall and the water levels in rivers are observed by the Ministry of Land, Infrastructure,
Transport and Tourism and prefectural governments utilizing visual observation methods, mechanicalobservation equipment, and a wireless telemeter system that transmits automatically observed datafrom remote locations. Flood forecasts and water level information are provided utilizing theInternet and mobile phones.
(3) Comprehensive Storm and Flood Countermeasures
In order to reduce damage caused by severe weather disasters, structural measures such as
improving rivers, dams and sewage systems, and non-structural measures such as preparing hazard
maps and providing disaster information, must be promoted in an integral manner.
As non-structural countermeasures, the warning and evacuation systems of the possible
inundation areas and landslide prone areas have been developed in accordance with the FloodControl Act and the Act on Promotion of Sediment Disaster Countermeasures for Sediment
Disaster Prone Areas. Both laws were amended in 2005 to intensify measures including thefamiliarization of hazard maps and the identification of a method to disseminate disaster information tofacilities caring for those who require assistance at the time of a disaster like elderly people in themunicipal disaster management plans.
Based on the Flood Control Act, some 368 rivers subject to flood warning and 1,488 rivers
subject to water-level notifications are designated. Of these, inundation risk areas are currently
designated and published for 1,768 rivers and streams (as of February 2010). Moreover,municipalities that include such areas are encouraged to prepare and disseminate flood hazard maps.
Currently some 1,137 municipalities are doing so (as of February 2010).
(4) Countermeasures against Large-scale Floods
In light of a rising trend in heavy downpours in recent years, a strong need exists to fortify
measures for rapid, effective evacuation and relief, in anticipation of large-scale flood disasters. The
Central Disaster Management Council published a series of disaster scenarios in 2008, detailing the
anticipated damage in the event of a number of possible cases. These included heavy downpourscausing destruction of the fortified weirs along the banks of the Tonegawa and Arakawa Rivers in theTokyo metropolitan area. At worst, such a catastrophe could leave up to 2,600 people dead andanother 1.1 million people stranded. To minimize the damage in such an event, the Central Disaster
Management Council is moving forward with the formation of a network for countermeasures against
flood disasters.
(13) Snow Disaster Countermeasures(1) Storm and Flood Damage in Japan
Japan is a bow-shaped archipelago filled with steep mountain ranges. When cold winds blow infrom 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, and obstruction 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 from their roofs, whileothers were pinned by snow falling from rooftops or even by collapsing roofs. The death toll reached
Final report ADRC Visiting researcher (13 August – 22 November 2013)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.
(2) Outline of Snow Disaster Countermeasures
Measures are being taken to prevent accidents that result in injury, improve the avalanche
warning system, and remove snow for securing road traffic networks at the time of heavy snowfall.
Against avalanches, comprehensive measures including avalanche prevention projects forprotecting communities, risk communication efforts about dangerous locations among residents, andimprovement of the warning and evacuation system, are taken.
Furthermore, as heavy snowfall areas account for approximately half of the national land, basedon the Act of Special Measures for Heavy Snowfall Areas, measures have been introduced to secure
traffic and communications, protect agricultural and forestry industries, and improve living
environmental facilities and national land conservation facilities.
In recent years deaths from snow removal operations, especially removal of snow from roofs,
have grown numerous, and a disproportionate number of the fatalities have been people 65 years andover. The Cabinet Oﬃce has responded by advising on how to avoid accidents while clearing snow,
and conducting public-awareness campaigns through various related organizations and agencies,
particularly municipal governments.

3.8 Disaster reduction awareness enhancement and disaster knowledge dissemination(1) Promotion of Eﬀorts for Disaster Reduction
In order to reduce disaster damage, there must be close combination of self‒help efforts rooted in
the awareness of people and companies; mutual-help eﬀorts of various community-based
stakeholders; and public-help eﬀorts made by the national and local governments.
To deploy efforts wherein individuals, families, communities, corporations and other various
groups and entities participate in continuous activities and investments for mitigating disaster damage,in 2006 the Central Disaster Management Council published a Basic Framework for a Nationwide Movement for Disaster Reduction - Actions with Added Value to Security and Safety.
(2) Disaster Reduction Week Campaign
The national government has designated September 1st of each year as Disaster Reduction Day,and the period from August 30th to September 5th as Disaster Reduction Week. A variety of events
such as the Disaster Reduction Fair, various seminars, disaster reduction drills and exercises, anddisaster management poster contests are held throughout the country to disseminate disasterknowledge.
（3）Disaster Education
Disaster education in schools is important for learning necessary disaster knowledge fromchildhood. It is therefore taught in various school curriculums. Social education at community level
including town-watching and hazard-mapping programmes in which residents participate are also
important. The Cabinet Office promotes disaster education including through sharing good examples
of disaster education programs.

3.9 Improvement of environment for disaster reduction volunteer activities
The Great Hanshin-Awaji Earthquake launched an enormous outpouring of volunteer assistanceactivity, from both within and outside the afflicted areas. In the following disasters, large numbers ofvolunteers have rushed to aid and comfort the victims and assist in the reconstruction and restorationof disaster-stricken regions.
The government has designated each January 17 “Disaster Reduction and Volunteer Day,”and
the week from January 15 to January 21“Disaster Reduction and Volunteer Week.”During this oneweek period, seminars, lectures, exhibitions and other events are held to promote the spread ofvolunteer and autonomous disaster reduction activities when disasters occur. These events takeplace throughout Japan, with the close cooperation of local governments and other related entities.
To provide a supportive environment for disaster reduction volunteer activities, the Cabinet Oﬃce
provides information volunteers can use in their eﬀorts, as well as facilities for the exchange of
Final report ADRC Visiting researcher (13 August – 22 November 2013)

information and views. The Cabinet Oﬃce also provides local government receiving volunteer
assistance with information and expertise, and promotes wide-area collaboration among disastermanagement volunteer activities when disasters strike.

3.10 Disaster reduction activities of corporations
In response to disasters, corporations are required to secure the safety of their customers andemployees, and continue their business activities which contribute to mitigate social and economic
difficulties in disaster situation. The Cabinet Oﬃce promotes the enhancement of disaster reduction
activities of corporations.
(1) Promotion of Business Continuity Plans of Corporations
When earthquakes and other disasters cause enterprise activity to stagnate, the impact aﬀects
not only individual companies, but also employment levels and the overall economy of the stricken region.
Through trade and commerce with businesses in other areas, the economic damage can aﬀect otherregions as well. In this context, promoting the drafting and implementation of business continuity plans(BCPs) is extremely vital. By outlining a management strategy for ensuring the continuation of businessin the event of a disaster, BCPs can ensure the stability of Japan’s society and economy while
creating an image of reliability for Japanese companies abroad.
In 2005 the Japanese government, through a special committee of the Central Disaster
Management Council, drew up and began circulating a set of “business continuity guidelines.”The
government set a target of convincing “virtually all large companies and 50% of medium-sizedcompanies” to draft BCPs (as stipulated in Earthquake Disaster Management Strategies and Newgrowth Strategy and Plans). In this way Japan's central government has played a critical role inencouraging the drafting and implementation of BCPs in the private sector.
(2) Encouraging the Evaluation of Corporate Disaster Reduction Activities
For private enterprises, recognizing the role of companies in the event of a disaster (ensuring thesafety and security of employees, preventing secondary disasters, maintaining business continuity,contributing to and living in harmony with local communities) and working to promote disastermanagement activities is of crucial importance.
To encourage companies to engage in disaster management activities, markets and local
communities must give appropriate recognition to enterprises that take an active part in these
activities.
The government is disseminating information for this purpose. It has prepared a self-evaluationtable entitled“Business Measures for Disaster management,” as well as “Disclosure on Disastermanagement Measures: Explanations with Examples.” Using an evaluation system based on theitems in the self-evaluation table, the Development Bank of Japan (DBJ) has developed a lending
facility with a rating system for operations that promote disaster management. The DBJ is
implementing this system as an incentive to encourage companies to conduct disaster management
activities.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Chapter 3. Early Warning System in Mongolia
1. Information and communication system
The information and communications technology sector of Mongolia is comprised oftelecommunications, information technology, radio and television broadcasting and postal services.
National fiber optic network of Mongolia is extended to reach all 21 province centers and over
151 soums. The telecommunication sector has been subject to reforms since the end of 1990.
1.
Fixed line communication: Still play a role in improving information and communications
service. "Telecom Mongolia" is the national telecommunications company of Mongolia that provides awide range of telecommunication product offerings such as internet services, cable TV networks,
radio and TV broadcasting to Mongolian customers. In 1995, Telecom Mongolia was partiallyprivatized and opened to foreign investment. The company has telecommunication lines and networks
in every corner of Mongolia including 21 provinces, 315 soums and UB city.
Main activities:- Traditional telecommunication- Next-generation network telecommunication- F-zone wirless telecommunication- Internet service provider
Area
2009
2010
2011
2012
Western
9.357
8,146
6,533
6,465
Khangai
15,80014,63012,96911,748Central18,59917,864
15,92815,502Eastern
4,221
3,686
3,239
2,979
Ulaanbaatar
94,88598,867
93,135
112,696
Total
142,862
143,193
131,804
149,390
Figure 1.1 Number of telecommunication points
Source: National Statistics Office of Mongolia
2.
Mobile communication: Two GSM system operators /Mobicom and Unitel LLC/ and two CDMAsystem operators /Skytel LLC and G-Mobile LLC/ are providing mobile communications services in
Mongolia.

4000000
3500000
3000000
2500000
2000000
1500000
1000000
50000002942000

3489000

2510000

22490002009

3426000

2010

2011

2012

2013

Figure 1.2 Total mobile users in 2009-2013 Source: National Statistics Office of Mongolia
Mobicom Corporation is the largest mobile phone operator in Mongolia. It was established
as a joint Mongolian-Japanese venture on 18th March of 1996, to be the first Mongolian cell phoneservice.
Skytel Group was founded in 1999 and was a joint venture between private Mongolian and
Korean firms until December 2010 when it became a 100% national enterprise with equalshareholders of Altai Holding and Shunkhlai Group.
Unitel is a Mongolian Corporate Group of ICT companies. It was founded on December 23,
2005 as BSB consortium as GSM mobile phone operator, and began operations on June 26, 2006.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

G-Mobile LLC is, as of 2008, Mongolian's newest mobile phone operator. It is focusing its
operations in rural areas. It uses CDMA2000 at 450 MHz and provides internet services with cell
phones as modem or proper modem.
3.
Internet service: The first Internet Service Provider (ISP) started providing Internet services in
Mongolia in 1996 with 64kbps through VSAT technology. The internet was first brought to Mongolia by
DataCom in January 1996. Since then, various internet-based services such as e-mail, internet
connections, internet faxing, internet telephone, e-accounts, e-shopping, and internet cafe areavailable to users in Mongolia. Main Internet service providers in Mongolia such as Magicnet,
Datacom, MiComand BodicomputerCo.,Ltd. Also, the number of internet cafes has reached 80.
For Internet, Mongolia relies on fiber optic communications with its Chinese and Russian neighbors.
4.
Postal service: In the Mongolian postal service market, currently 51 licensed postal operators
are running postal service business. There is one state owned company (designated operator)
Mongol Post LLC and another 50 private companies.
5.
FM radio: Mongolia has a domestic radio service, both wireless and wire, as well as television.
Besides the domestic radio service, there is also an international shortwave service.
The two programs of the National Public Radio Broadcaster (NPRB) are transmitted throughout the
territory of Mongolia, covering all aimags and soum centers. As it can be seen from the below figure,there are six major coverage areas: in the east in Choibalsan, in the south in Dalanzadgad, in thenorth in Honhor, in the mid-west in Murun and Altai and in the west in Ulgii.

Figure 1.3 Location of FM broadcasting stations
Source: Information Technology, Post and Telecommunication Authority of Mongolia
6.
TV broadcasting in Mongolia started in 1967, when the first national television program wasaired in Mongolia. There are 99 companies and organizations, which have television broadcasting
licenses, including 70 companies to provide cable TV services.

Figure 1.4 Development of TV broadcasters in Mongolia
Source: Information Technology, Post and Telecommunication Authority of Mongolia
Final report ADRC Visiting researcher (13 August – 22 November 2013)

2. Earthquake disaster warning system
Mongolian government co-implementing South Korean communications provider KT project ofEarthquake Disaster Warning System (EDWS) in 2012-2014. The system will gather, process, anddistribute information when disasters occur using wireless or wired connections. National emergency
management agency will also be able to send emergency SMS messages nationwide.

Figure 2.1 General structure of Earthquake disaster warning system
Source: National Emergency Management Agency of Mongolia
Earthquake disaster warning system:– Cell broadcasting service– Disaster notification board system– TV disaster warning broadcasting system
1) CBS (Cell Broadcasting Service) phone disaster notification broadcasting system- The mobile communication technology that broadcast disaster message to mobile-phone users atbase station transceiver subsystem, who have special receivable ID.
- Disaster message transmission to nation-wide or specific area resident users simultaneously at
once.

Figure 2.2 Structure of Cell broadcasting service
Source: National Emergency Management Agency of Mongolia
Final report ADRC Visiting researcher (13 August – 22 November 2013)

2) Disaster notification board system
Preparing immediate response system towarddisaster by notifying and broadcasting rapidly thedisaster situation through blowing siren and board
messaging, at the normal times, performing national
propagation of awareness toward disaster, etc.

3) TV disaster warning broadcasting system
Broadcasting the urgent disaster situation in the form of screen, sound, or screen messages by
forcibly automatic turning on TV or changing to disaster warn channel with volume-up through thebroadcasting station’s casting-equipment

3. Emergency management and warning center
Emergency management and warning centre was established in 5 January 2013 by decisionof Government. A total of 20 staff are working.
General duties of EMWC:EMWC is responsible for end-to-end multi-hazards including earthquake
1) Receiving data
2) Analysis
3) Dissemination of warning message4) Coordinating and planning5) Supervising the preparedness and response, and the recovery.

Figure 3.1 Structure of Emergency management and warning center
Source: National Emergency Management Agency of Mongolia

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Chapter 4. Early Warning System in Japan
1. Monitoring system in Japan
Distant Earthquake Information and International Tsunami Advisories
JMA monitors seismic activity not only around Japan but also worldwide. If a tsunami
generated by a distant earthquake is expected to hit the Japanese coast and possibly cause
disastrous conditions, JMA issues Tsunami Warnings/Advisories in the same way as for local
tsunamis. When a major earthquake occurs somewhere far from Japan, the Agency issues Distant
Earthquake Information to the public.
Tsunamis spread ocean-wide regardless of the borders of countries, and can cause serious
damage in multiple coastal areas. In order to protect human life and property against tsunami hazards,
we must work together with overseas related organizations. Within a worldwide framework for atsunami warning system, countries exchange observational data and information to enable
earthquake/tsunami detection and measures against expected tsunamis as early as possible. Japan
has a wealth of experience and knowledge on tsunamis, and JMA, in such an international
partnership role, plays a major part in contributing to tsunami disaster management measures in othercountries. When a large earthquake occurs in the Sea of Japan, the northwestern Pacific region or the
Indian Ocean, the Agency analyzes the related observation data and quickly provides International
Tsunami Advisories to the countries in each region. These advisories contain information on theearthquake and the possibility of tsunamis, and are used in the recipient countries for the
implementation of emergency action such as nationwide tsunami warnings and official evacuation.

Source: Japan Meteorological Agency
Earthquake and Tsunami Monitoring
JMA collects real-time data from seismometers, seismic intensity meters, gauge stations
and other instruments to monitor earthquakes and tsunamis around the clock. When an earthquake
causes serious damage, the Agency dispatches the JMA Mobile Observation Team (JMA-MOT) toassess the situation.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Seismometer Network
When an earthquake occurs, it is important to know its location and magnitude. To achievethis, we need to observe its waves and analyze its hypocenter and magnitude; an instrument used toobserve earthquake waves is called a seismometer.
JMA operates a seismic network consisting of about 200 seismometers and collects seismic
waveform data in real time around the clock. The Agency also uses seismometers belonging to the
National Research Institute for Earth Science and Disaster Prevention (NIED), and issues Earthquake
Early Warnings, Tsunami Warnings / Advisories and Earthquake Information.
JMA also collects and analyzes seismic data from NIED, universities and related institutes inorder to conduct comprehensive assessment of seismic activity for the promotion of research
activities in cooperation with the Ministry of Education, Culture, Sports, Science and Technology(MEXT). The products of this analysis are shared with the relevant organizations.

Source: Japan Meteorological Agency
Seismic Intensity Network
A seismic intensity meter is an
instrument that measures and records
the seismic intensity of ground motion.
JMA has installed about 600 seismic
intensity meters throughout the country,
and also collects seismic intensity datafrom another 3,600 stations (as of Apr. 1,2009) operated by local governments
and the National Research Institute for
Earth Science and Disaster Prevention(NIED). These data are used for
Earthquake Information issued by JMA.

Source: Japan Meteorological Agency
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Tsunami Monitoring Network
When tsunamis are observed, JMA issues tsunami observation information including
observation points, tsunami heights and expected times of arrival. The Agency operates about 70 tidal
gauge stations and also collects real-time sea-level data from stations operated by the Ports andHarbors Bureau (Ministry of Land, Infrastructure, Transport and Tourism), the Geographical Survey
Institute and the Japan Coast Guard. Currently, JMA issues tsunami information using data fromabout 170 stations.

Source: Japan Meteorological Agency
Observation systems for the Tokai Earthquake
Various kinds of instruments, including seismometers, strainmeters and GPS equipment,
are installed in and around the assumed focal region of Tokai Earthquake (see the figure below). The
observational data in collaboration with related institutes are continuously transmitted to JMA.
Strainmeters play an important role in detecting potential pre-slip movement that may be a precursor
to the Tokai Earthquake. They measure very minute expansions and contractions in underground rock.
A cylindrical sensor is set at the bottom of a borehole several hundred meters in depth. A strainmetercan detect a relative change of one part in a billion of crustal expansion or contraction. This isequivalent to measuring the volume change caused by a glass marble in a swimming pool.

Source: Japan Meteorological Agency

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency
A Data Collection and Processing System for Assured Communication
JMA monitors seismic activity and issues Warnings/Advisories and information on a 24-hourbasis. To provide these resources urgently and precisely, JMA needs to collect various seismic data
and analyze them quickly. To this end, the Agency operates a comprehensive system called EPOS
(the Earthquake Phenomena Observation System). This is responsible for issuing Earthquake Early
Warnings, Tsunami Warnings/Advisories, Earthquake Information and Information on the Tokai
Earthquake.
Warnings/Advisories and information issued by JMA are transmitted to disaster management
authorities, local governments and the broadcasting media over a nationwide computer network
immediately. Disaster management authorities and local governments take action to mitigate
disasters based on these resources. Such action is also announced to the public through the media
and the Internet.

Source: Japan Meteorological Agency
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Basic knowledge about earthquake and tsunami
Earthquakes and Shaking
What is an earthquake? When people feel the ground shake, they exclaim, "It's anearthquake!" Strictly speaking, what they are feeling is ground motion caused by an earthquake. As atechnical term, ground motion is used to distinguish this movement from the earthquake itself. An
earthquake is a destructive slip movement inside a rock plate deep under the ground. We call theplane of this movement a fault , and the point at which a destructive slip movement starts is called the
hypocenter.
Such destructive slip movements cause vibration that propagates in every direction. Since
vibration travels in a wave formation, its movement is called a seismic wave. When the vibration
reaches the ground surface, people become aware of earthquake motion. Thus, not all places on thesurface of the ground shake at the same time. Locations closer to the hypocenter shake first, while
distant areas shake later.
Seismic waves
Seismic waves can be either primary waves (P-waves) or secondary waves (S-waves). Swaves propagate more slowly than P-waves, but have a high amplitude and cause damage. P-waves
travel at about 7 km/s (25,200 km/h), while S-waves move at about 4 km/s (14,400 km/h). At a point
50 km from the hypocenter, for example, a P-wave will arrive at about 7 seconds after the start of thequake, and an S-wave will arrive at about the 13-second point.
Catching seismic waves
How can we find out where an earthquake occurs ? Vibration propagates as a wave, so thefarther a point is from the hypocenter,the later the wave arrives. As a result, if we can pinpoint where
earthquake motion appears first among many monitoring sites (seismometers),the hypocenter can beassumed to near that site. In fact, hypocenters are located by considering the subterranean structure(i.e., the structure of the earth s crust) and comparing diﬀerences in the appearance times of P-waves
and S-waves.
Seismic Intensity and Magnitude
Seismic intensity andmagnitude are easily confused
because both have similarvalues. In this section, we
explain the diﬀerence between
them.
Seismic
intensity
describes the scale of theground motion at a particularlocation. It varies with the
distance from the epicenter andthe surface geology at eachpoint. JMA s seismic intensity
scale has 10 degrees (0(imperceptible), 1, 2, 3, 4, 5lower, 5-upper, 6-lower, 6-upper,7). Magnitude is a numericalvalue that represents the scaleof a fault slip underground. Largeearthquakes
have
high
magnitude.

Source: Japan Meteorological Agency
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Principle of Earthquake Early Warnings
Earthquake Early Warnings (EEWs) are issued slightly after an earthquake occurs. They
are not earthquake predictions which tell us occurrence of earthquake in advance.
As soon as an earthquake occurs, the EEW system uses seismometers located near the
epicenter to calculate the hypocenter, magnitude and P-wave data detected by the area that will be
subjected to strong shaking, and provides a first announcement. EEWs are transmitted promptly. A
sophisticated observation system to detect seismic waves quickly, technology that enables
forecasting from very weak shaking and communication technology for prompt dissemination are theelements that enable JMA to issue EEWs.

Source: Japan Meteorological Agency
Tsunamis
When large earthquakes occur in ocean areas, the sea floor rises or sinks. Accordingly,
massive amounts of water on the sea floor also move up or down, and this movement spreads out inall directions in the ocean. The resulting waves are called tsunamis. Tsunami waves become slower
as the sea becomes shallower. As a result, trailing waves catch up with those ahead near the coast,and the tsunami grows much higher. Even if a tsunami does not seem very high in oﬀshore areas, it
can turn into a big wave near the coast. If you feel an earthquake in a coastal area or if a Tsunami
Warning is issued, evacuate immediately to high ground. Under no circumstances should you go to
the seashore to see the tsunami.
Method of Tsunami Warning
When a large earthquake occurs in a sea area, JMA issues a Tsunami Warning/Advisory. A
numerical simulation technique is used to estimate tsunami potential and propagation. After anearthquake occurs, Tsunami
Warnings/Advisories must be
issued immediately to enableevacuation before the wave
strikes coastal areas.
To enable immediate
issuanceofTsunamiWarnings/Advisories, JMA has
conducted computer simulationof tsunamis with earthquake
scenarios involving various
locations and magnitudes, andthe resulting information ontsunami arrival times andheights is stored on a database.
If a large earthquake occurs,
the operation system quickly
calculates its hypocenter andmagnitude,
searchesthetsunami database referring toFinal report ADRC Visiting researcher (13 August – 22 November 2013)

these calculations, and selects the closest-matching results from the database. Using the estimatedheight of the tsunami for each coastal region, JMA issues a Tsunami Warning/Advisory.

Source: Japan Meteorological Agency
Earthquakes around Japan
Around Japan, oceanic plates called the Pacific Plate and the Philippine Sea Plate subductbeneath the continental plates (the North American Plate and the Eurasian Plate) several centimeters
annually. These plate movements cause forces to act in various directions around the country, whichis the reason behind the extremely high seismic activity in the area. Around Japan, therefore, oceanic
plates subduct beneath continental plates. These continental plates are dragged down as a result,and strain energy is accumulated. When this strain exceeds a certain level, it causes the continental
plates to jump up, and tremors known as interplate earthquakes occur. Conversely, tremors
generated by strain forces within a plate are called intraplate earthquakes. They occur in subducting
plates and shallow underground areas of continental plates. Compared to interpolate earthquakes,
intraplate earthquake occurring in shallow underground areas are relatively small, but can cause
serious damage if they occur directly below populous areas.

Source: Japan Meteorological Agency
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency
The Tokai Earthquake
The Tokai Earthquake is expected to occur in the near future along the trench near Suruga
Bay, and is considered to be as large as M8-class. Large earthquakes of this magnitude haveoccurred historically every 100 ‒150 years in the area from the Suruga Trough in Suruga Bay to thetrough oﬀ Shikoku Island, and are known as Tonankai/Nankai Earthquakes. However, when the lastTonankai Earthquake (1944, M7.9) and Nankai
Earthquake (1946, M8.0) occurred, the crust along the Suruga Trough did not move. Since
the trough (in region E of the figure below) has remained motionless for more than 150 years, theTokai Earthquake is widely expected to occur in the near future.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency
How is it possible to predict the Tokai Earthquake?
In relation to the Tokai Earthquake, a pre-slip phenomenon (see the figure below) is
expected just before the quake itself, and observation systems are in place to detect this slip. If it
actually takes place and is successfully detected, JMA will issue warning information on the Tokai
Earthquake. However, there is a possibility that the pre-slip could be too slight to be detected by thesensors, so it cannot be said with certainty that the Tokai Earthquake will be predicted.
Why it is thought possible to predict the Tokai Earthquake scientifically●It is expected to be accompanied by precursory phenomena.
●Observation systems are in place to detect these phenomena.
●There are guidelines on deciding based on the pre-slip model whether detected anomalous
phenomena are precursory in nature or not.

Tokai Earthquake Generation Scenario
The Tokai Earthquake is expected to occur with the following sequence:Accumulation ofstrain, Deceleration of subsidence, Pre-slip, Occurrence of Tokai Earthquake. Pre-slip is aphenomenon where part of the hypocentral region (the hard bonded plate boundary in the case of theTokai Earthquake) peels oﬀ and begins to slip.
The key to predicting the Tokai Earthquake is the detection of signs of pre-slip. JMA
monitors unusual movement that may accompany pre-slip using strainmeters to predict its occurrence.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency

What is an Earthquake Early Warning? (緊急地震速報 (Kinkyu Jishin Sokuho) inJapanese)
The Earthquake Early Warning system provides advance announcement of the estimated seismic
intensities and expected arrival time of principal motion. These estimations are based on prompt
analysis of the focus and magnitude of the earthquake using wave form data observed byseismographs near the epicenter. The Earthquake Early Warning is aimed at mitigating earthquakerelated damage by allowing countermeasures such as promptly slowing down trains, controlling
elevators to avoid danger and enabling people to quickly protect themselves in various environments
such as factories, offices, houses and near cliffs.
The Earthquake Early Warning system provides advance announcement of the estimated seismic
intensities and expected arrival time of principal motion.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

When a major earthquake occurs, the following information is broadcasted throughwireless loudspeaker:

Source: Japan Meteorological Agency

2. Earthquake and Tsunami Warnings/Information in Japan:
When JMA anticipates damage from an earthquake, it issues warnings and forecasts using
observed data.
JMA has two kinds of warnings on earthquakes: one is an Earthquake Early Warning, which
predicts strong motion, and the other is a Tsunami Warning, which predicts tsunamis. The Agency
also issues public advisories and forecasts if the expected level of damage is below the criteria forthese warnings to be issued.
1) Earthquake Early Warnings
Earthquake Early Warnings (EEWs) are warnings (or forecasts) of strong motion to beissued several seconds to several tens of seconds before its arrival.
If the estimated seismic intensity is above 5-lower, an EEW is issued to areas where theestimated seismic intensity is 4 or greater through media such as TV and radio.
The main benefit of EEW is that they are issued before the arrival of strong shaking. Strong
tremors caused by earthquakes strike suddenly. However, notice of their arrival several seconds toseveral tens of seconds in advance allows people to take action to protect themselves, such as
promptly moving away from windows and shelves or taking cover under a sturdy table. As there are
only a few moments before strong tremors arrive, after the issuance of EEW there may be no time toconsider how to react on hearing EEW; this makes it important to carry out emergency response drills
so that appropriate action can be taken as soon as a warning is given. In areas close to the focus of
the earthquake, however, an EEW may not be transmitted before the tremors hit and errors of ±1 or
so may be included in the estimated scismic intencity of EEW.
It should be noted that there are such limits to the accuracy of EEW.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency

2) Tsunami Warnings/Advisories and Tsunami Information
Tsunamis are one of damaging phenomena caused by earthquakes. If a tsunami strikes acoastal area, it can cause death or serious injury to people and damage to buildings.
When an earthquake occurs, JMA estimates whether a tsunami has been generated. If adisastrous tsunami is expected in coastal regions, JMA issues a Tsunami Warning/Advisory for eachregion (66 individual regions are defined to cover all coastal areas of the country).
Tsunami Warnings/Advisories are categorized into three levels ‒ Tsunami Warning (Major
Tsunami), Tsunami Warning (Tsunami) and Tsunami Advisory ‒according to the estimated tsunami
height. JMA also issues information on tsunami details such as estimated arrival time and height. If nodamage is expected, a Tsunami Forecast is issued.
Warnings/Advisories may be changed or updated based on observed tsunami heights.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

JMA issues various warnings to alert people to possible catastrophes caused by extraordinary
natural phenomena such as heavy rain, earthquakes, tsunami and storm surges. In addition to suchwarnings, advisories and other bulletins, JMA started issuing Emergency Warnings to alert people tothe significant likelihood of catastrophes if phenomena are expected to be of a scale that will far
exceed the warning criteria.
The criteria for Emergency Warning issuance were determined in response to the views of
local governments in charge of disaster management for their own areas. In regard to earthquakes,
tsunami and volcanic eruptions, JMA maintains the system of warning nomenclature used until 29
August, 2013 but issues messages in the new classification of Emergency Warnings for high-risk
conditions. These include Major Tsunami Warnings, Volcanic Warnings (Level 4 or more) and
Earthquake Early Warnings (incorporating prediction of tremors measuring 6-lower or more on JMA's
seismic intensity scale).
3) Earthquake Information
JMA issues predictive information such as Tsunami Warnings/Advisories and Earthquake
Early Warnings as well as earthquake information based on the results of observations.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Seismic Intensity Information and Information on seismic intensity at each site
When seismic intensity is 3 or greater, JMA issues Seismic Intensity Information within two
minutes to allow emergency action to be taken.
The seismic intensities are disseminated to disaster management organizations and areused as a trigger for their emergency operation. They are also broadcast to the public by TV, radio
and other media. For example, the Cabinet Secretariat will call a meeting of the designatedemergency response team in the event of a quake with seismic intensity of 6-lower or greater.

Source: Japan Meteorological Agency

Shake Map (Estimated Seismic Intensity Distribution Map
To enable prompt emergency measures to be taken by disastermanagement authorities, JMA analyzes seismic intensity taking into account thesurface geology for each grid space, and draws an Estimated Seismic Intensity
Distribution Map that shows estimated seismic intensity in places without seismic
intensity meters. As the analyzed values have a margin of error, users should
focus on the extent and distribution of strong ground motion areas rather than therespective estimated value for each grid.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency4)Tokai Earthquake Prediction and Information
Information about Tokai Earthquake
In Japan, a large-scale earthquake with a magnitude of around 8 (referred to as the Tokai
Earthquake) is widely expected to hit the Tokai region in the near future. In order to predict theoccurrence of the Tokai earthquake, JMA has developed a seismic and crustal deformation
observation network throughout the region in conjunction with related organizations, and observes
data coming from them on around-the-clock basis (see p.16). If anomalous data are detected, JMA
issues Information on the Tokai Earthquake bulletins to allow preparatory action and emergency
measures for earthquake disaster prevention. These are categorized into three types:Tokai
Earthquake Report, Tokai Earthquake Advisory, and Tokai Earthquake Warning .
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency5) The earthquake early warning system during the Tohoku earthquake
At 14:46:23 JST (Japan standard time) on March 11th, 2011, a 9.0 magnitude earthquake witha maximum seismic intensity of 7 occurred on the north eastern Pacific coast of Honshu, Japan. The
seismograph station at Ouri in Ishinomaki City was the first of over 380 seismic stations across Japanto record seismic movement at 14:46:40.2 JST. As shown in table 1, the first earthquake forecast wasissued to advanced users 5.4 seconds after the initial detection of p-waves. An earthquake warning
was issued to the general public was issued 3.2 seconds after this forecast. A total of 15 forecasts,
warnings, and updates were issued within the two minutes of the initial seismic detection. The firstwarning issued to the public was broadcasted to the Sendai area in central Miyagi prefecture andpredicted an earthquake of magnitude 7.2 and seismic intensity of 5-lower. This warning arrived 15
seconds prior to the s-waves arrival in Sendai, which is located 129km west of the earthquake’s
epicenter. Tokyo, located 373km southwest from the epicenter, received 65.1 seconds of warning
before the ground began to shake.

Final report ADRC Visiting researcher (13 August – 22 November 2013)Table 1. Dessimination time
Source: Japan Meteorological Agency
These warnings were broadcasted to the general public using television and radio networks
andwere also sent to approximately 52 million people on their cellular devices.
For instance, forecasts sent to East Japan Railway Company caused eleven Tohoku
Shinkansen bullet trains to automatically come to a halt seconds before the ground began to shake.
Other companies like Otis, an elevator manufacturing company was also able to shut down 16,700
elevators in affected areas as soon as the earthquake forecast was received. In addition, 40 of the 42
elevators in Tokyo’s Metropolitan Government Building buildings, which range from 41-243 meters inheight, also automatically stopped at the nearest available floor and shutdown to allow for evacuation
as a result of JMA’s earthquake warnings.

3. Information and communication system
The development of a quick and accurate communications systems is essential for theeffective use of disaster early warning information. For this purpose an online system has been built,
linking the Japan meteorological agency with disaster management organizations of the national andlocal governments and media organizations.
Disaster management organizations have also been developing radio communications
networks exclusively for disasters: the Central Disaster Management Radio communications System,
which connects national organizations; the Fire Disaster Management Radio Communications
System, which connects firefighting organizations across the country; and prefectural and municipal
disaster management radio communications systems, which connect local disaster management
organizations and residents.
The Cabinet Office has established the Central Disaster Management Radio Communications
System to link with designated government organizations, designated public corporations and local
disaster management organizations, providing communications by telephone, fax, data transmission,
TV conferencing and transmission of pictures of disaster 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.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Simultaneous wireless communications systems using outdoor loudspeakers and indoor radio
receivers are used to disseminate disaster information to residents. Tsunami and severe weather
warnings are widely provided to citizens via TV and radio broadcasts.

Figure 1.1 The Outline of Central Disaster Management Radio Communications System
Source: Cabinet Office, Government of Japan� � � � � � � � � � �

3.1. Ministry of land, infrastructure, transport and tourism
The Ministry of Land, Infrastructure, Transport and Tourism (MLIT) conducts disastermanagement policy at national level in relation to flood and sediment disasters as well as town
development with regard to safety for both natural and man-made disasters. Alongside with otherphases of emergency management the ministry also actively involved in response phase and to thisend Disaster Prevention Center was established.
Disaster Prevention Center established in the MLIT performs the following functions:z Mobilizing leaders, staff members and related department membersz Observing and distributing meteorological information, site images, etc.
z Collecting and sharing information (integrating damage information)z Exchanging information with ministers' offices, other ministries and agencies, local departments,
etc.
z Providing information to the public
z Regional assistance, assistance to local governments
In order to achieve the "zero victim" goal in the face of increasingly intense floods andlocalized heavy rains caused by climate change, flood forecast centers (provisional name) will beestablished in regional development bureaus to strengthen risk management measures in, forexample, monitoring floods and providing information to municipal governments, the mass media, etc.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Flood forecast centers are to perform such tasks as climate change monitoring, flood risk evaluationand the development of an advanced flood prediction system. To the end following activities are
implemented:
 Collection of point data (e.g. rainfall amounts, water levels and water quality)
Rain observation by ground gauges and telemetry system – the data obtained by telemeters
are consolidated in one site, such as a regional bureau and a prefectural office, through the linking
station. Then, they are sent to each office to update the real-time flood prediction calculations.
 Collection of area data (rainfall amounts)
Radar rain gauges have been installed at 26 locations throughout the country. The information of 1km mesh resolution is updated every half an hour and available on the Internet. The radar data are
calibrated using the ground data.
 Collection of image data.
CCTV Network - MLIT Regional Development Bureaus and River Offices have real-timeaccess to 3,900 CCTV images available on IP (Internet protocol) network. CCTV images are used fordeveloping disaster control plans. Fiber-optic network - River Bureau and Road Bureau have jointly
laid fiber optics network lines with the total length of 12046 km (as of 2006).
River information systems developed by individual regional development bureaus have been
integrated into a national river information system. Regional development bureaus can customize thesystem according to their requirements.

3.2. Japan Meteorological Agency
Japan Meteorological agency is the key body in prediction major natural hazards such as
earthquakes, tsunamis, typhoons and volcano eruptions while MLIT is for flood and sedimentdisasters and cooperation with them is essential for municipalities and other disaster responseorganizations. It must be noted that application of latest technologies for disaster warning andcommunication by JMA had greatly improved disaster response system in Japan. In addition, state
lifeline agencies, railway companies, NHK has established quick information sharing with JMA andother relevant bodies as well as response mechanism within respective fields of activity.
Massive numbers of voluntary response organizations and people involved in voluntarydisaster response shows high level of disaster awareness and social responsibility for disaster
reduction in the country. During disaster times acting in collaboration with the professional responders,voluntary teams demonstrate remarkable efforts in psychological support of the affected people andprovided basic utilities.
The existing Early warning system, although, has been form during relatively short time period
put in place sophisticated mechanism which enables Japan to mobilize forces and resources andrespond in a comprehensive manner any large-scale disasters promptly, considerably decreasing
damage and loss. Comprehensively elaborated coordination enables to relevant bodies takeconcerted actions to increases response efficiency. In turn hierarchical supervision granting response
bodies with great independence keeps accountability of them high.
JMA is semi-autonomous agency of the MLIT. Besides, function as central weather service
agency of Japan, the agency has established comprehensive surveillance and awareness providing
mechanism with regard to earthquake, typhoon and volcano hazards. Regarding flood forecast
Director-General of JMA In the event of the imminence of a flood or storm surge, the Director-Generalof JMA informs the Minister of Land, Infrastructure, Transport and Tourism and the prefectural
governors concerned of the present state.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Symbol of JMA

Figure 3.1 The role JMA in Disaster Management System of Japan
Source: Japan Meteorological Agency

MLIT informs, jointly with the Director-General of JMA, for a class A river (excluding designatedsections), the prefectural governors concerned of water level or discharge if the possibility of flooding is deemed high or water level or discharge, or the flood hazard area and the flood water depth if flooding has
already occurred.
Prefectural governors communicate the information received as described above to the flood
protection managers and stage gauge managers.

Figure 3.2 Joint flood warning by MLIT and JMA
Source: Japan Meteorological Agency
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Figure 3.3 Forecasting dissemination
Source: Japan Meteorological Agency
Japan Meteorological Agency is playing the major role in forecasting natural hazard throughits advanced monitoring network including satellites. The whole role of activities implements with thefollowing goals in compliance with the Act of Ministry and meteorological services act,
• Prevention and mitigation of natural disasters.
• Safety of transport.
• Development and prosperity of industry.
• Improvement of public welfare.

Framework of Forecast Operation (JMA)

National Forecast Center

Regional Forecast
Centres(11)Local MeteorologicalObservatories(47)Source: Japan Meteorological Agency
JMA’s Meteorological Services
1. Space-based Observation
2. Upper-air Observation
3. Radar Observation
4. Surface Observation
5. Ocean Observation
6. International Data Exchange
Final report ADRC Visiting researcher (13 August – 22 November 2013)

Local meteorological observatory is responsible for issuance of information on weather
disaster prevention such as warnings/advisories for each prefecture.
Main Objective of Local Meteorological Observatories:
Disaster Forecasting to save lives– Collecting weather and EQ data
– Analysis and Prediction of Weather– Issuing Warnings and Meteorological 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 (the principal shock)of the earthquake and seismic intensity in each area. This information is made possible by detecting
the P-wave near the epicenter and immediately processing the data since there is a difference in the
speed of the P-wave, which arrives faster, and the principal shock, 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 of seconds) between the issuance of the
EEW information and the start of severe shaking (when the S-wave arrives). This can be a criticaltime to be used for mitigating damage by stopping trains and elevators, extinguishing flames orcrawling under tables.

Source: Japan Meteorological Agency

The issuance of EEW information by the Japan Meteorological Agency (JMA) began in
October 2007. The JMA initiated the service to provide earthquake warning as mandated under a2007 revision of the Meteorological Service Act.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Figure 3.4 Outline of Earthquake Early Warning Information
Source: Cabinet Office, Government of Japan

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 ofresidents and response activities of disaster management organizations, and thereby reducing
disaster damage. Organizations involved in disaster reduction, especially the JMA, use 24-hoursystems 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 earthquake-generated tsunamis andsevere weather events such as heavy rain.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Figure 3.5 The Outline of Early Warning Systems
Source: Cabinet Office, Government of Japan

How to use warnings and Information for disaster prevention:
Japan is one of the most earthquake-prone countries in the world, and has repeatedly
suﬀered serious damage caused by earthquakes and tsunamis.
What would happen if there were no earthquake/tsunami information when a tremor hits? The
absence of information on areas that are at risk of tsunami strikes or subject to strong shaking would
delay evacuation and emergency response by disaster prevention agencies, and may result in
extensive damage.
JMA promptly issues warnings and information on earthquakes and tsunamis to mitigate
disasters and protect life and property.
Examples:●In the event of large earthquakes, JMA announces earthquake alerts before strong tremors
arrive (Earthquake Early Warnings).
●In the event of large earthquakes in ocean areas, JMA announces estimated tsunami heights
and their arrival times in advance (Tsunami Warnings/Advisories).
●In the event of earthquakes, JMA announces hypocenter, magnitude and where strong
shaking has been felt (Earthquake Information).
To utilize above information, it is very important to understand the announcements made by
JMA and to have a certain level of awareness in regard to earthquakes and tsunamis.There isbrochure explained about various types of information and warnings and outlines JMA's monitoring
network. Basic facts about earthquakes and tsunamis are also included.
The resource aims to help people understand the various types of information issued by JMA
to prevent and mitigate disasters caused by earthquakes and tsunamis.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: Japan Meteorological Agency

4. J-ALERT system in Japan
This system is a nationwide warning system in Japan launched in February 2007. It is
designed to quickly inform the public of various threats. The system was developed in the hope thatearly warnings would speed up evacuation times and help coordinate emergency response.
1. Outline
J-ALERTis the system to immediately transmit emergency information such as Emergency
Earthquake information, tsunami warning, information of ballistic missiles, which people have noenough time to deal with, is transmitted to the municipalities by using satellite (via the Fire andDisaster Management Agency, the Cabinet Secretariat, and JMA)
2. Development
09 February 2007: Commenced operation of the system
01 October 2007: Started sending the emergency earthquake information
As of March 1 2010, 344 municipalities have introduced a system. (among them, automatic activation
system of radio broadcasting and community FM have been introduced to 282 municipalities)
2. Current Initiatives
FY 2009 budget (approximately 900 million yen) was prepared for more sophisticated system,
such as audio broadcast of the content, software updates, proper operation management.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Source: http://www.centurysys.co.jp/jalert/

J-ALERT is a satellite based system that allows authorities to quickly broadcast alerts tolocal media and to citizens directly via a system of loudspeakers. According to Japanese officials it
takes about 1 second to inform local officials, and between 4 and 20 seconds to relay the message tocitizens. All warnings, except for severe weather warnings, are broadcast in five languages: Japanese,
English, Mandarin, Korean and Portuguese.
The warnings were broadcast in these languages during the 11th March 2011 earthquake andtsunami. The severe weather warnings are only broadcast in Japanese.
J-ALERT broadcasts via the Superbird-B2 communication satellite of JSAT corporation.
The J-ALERT, all country instant alarm system that is promoting the development is Fire andDisaster Management Agency. If a disaster urgent occurs, and then transfer the information disasterdisaster prevention radio system such as municipalities, and to disaster information delivery system toresidents
directly
from
the
Fire
Departmentusingacommunication
satellite.
Broadcast radio automatic start equipment has been tested and found to allows us to perform thestart-up control for disaster information transmission system to the residents of the municipality
disaster prevention wireless systems, etc., to the loudspeaker voice message.

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Figure 4.1 Outline of J-ALERT system
Source: http://www.centurysys.co.jp/jalert/
1) Satellite data distribution system
Systems designed to distribute information simultaneously to many sites, They are adopted asnation-wide simultaneous alert systems (J-ALERT) to distribute citizen protection information, weather
information, earthquake information, etc. across Japan.
2) Disaster prevention and mitigation system
A wide range of disaster prevention and mitigation systems are available to local governments,
including those integrated with J-ALERT, a FWA (fixed wireless access) system, and/or an integrated
system for delivering emergency alert emails.
3) Mail distribution service
This is a service of distributing email magazines available to local governments. Under thisservice, unique email magazines are created and distributed to various terminal devices (such as cell
phones, smartphones and personal computers) of local people in regions. Further, information
distributed by the nationwide instantaneous warning system (J-ALERT) such as the information
related to civil protection, earthquakes and weather conditions is automatically distributed. Besides
distribution in Japanese, distribution in English, Chinese, Korean, Spanish and Portuguese is alsoavailable, and staff-gathering emails which are useful at the time disaster occurrence can also be
available as an option.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

4) Multicast content delivery system
Multimedia content such as digital signage, e-learning, digital cinema, and videos can bedelivered all at once. Any transmission errors can be recovered automatically. Various features suchas grouped delivery, scheduled delivery, delivery confirmation, and resending are also supported.
When satellite communications are used, an easy-to-set-up compact receiver is available.

5. Mobile phone distribution
KDDI corporation provides three services, “Disaster message board service”, “Emergency
email service” and “Disaster voice message” in the event that a disaster occurs to help confirm thesafety of users.
Disaster message board service: This service becomes available when disasters occur,
including earthquakes measured a lower 6 or greater on JMA seismic intensity scale. Customers in
the disaster stricken area can register their safety information. Registered safety information can beviewed on the internet from all over Japan. Safety information can also be checked from au mobile
phones, other carriers mobile phones and PCs. Registrations to disaster message board can be sent
to email addresses specified in advance.
Emergency email service: This service broadcasts disaster information to the stricken area.
When an earthquake with estimated maximum intensity of 5 or greater is expected, this warning isissued to areas that expected to experience shocks of 4 or greater. Sends evacuation advisories andorders from national and local public organizations in the event of natural disasters such as
earthquakes and typhoons and other information relating to the safety of residents. Issued to the area
where the highest tsunami waves are expected to be approximately 1 m or greater.
Disaster voice message: This service is for delivering a voice message recorded with an
iPhone to your loved ones in the event of large scale disaster, letting them know that you safe. As thisservice uses packet communications, you can confirm the safety of your family and friends even when
voice communication networks are congested in the event of a large scale disaster.

Source: http://www.au.kddi.com

Final report ADRC Visiting researcher (13 August – 22 November 2013)

Chapter 5. Conclusion
People-centered early warning systems empower communities to prepare for and confront thepower of natural hazards. However, the efficiency of such systems is to be measured in terms of lives
saved and reduction in losses, which is directly related to the execution of an anticipated response by
the people and institutions once a warning is issued.
The four elements of people centered Early Warning Systems
A complete and effective, people-centered early warning system comprises four inter-related
elements, spanning knowledge of hazards and vulnerabilities through to preparedness and capacity torespond. Good governance is encouraged by robust legal and regulatory frameworks and supported
by long term political commitment and integrated institutional arrangements. Major players concernedwith the different elements should meet regularly to ensure that they understand all of the othercomponents and what other parties need from them.
Effective early warning systems require strong technical foundations and good knowledge ofthe risks. But they must be strongly people centered – with clear messages, dissemination systems
that reach those at risk, and practiced and knowledgeable responses by risk managers and the public.
Public awareness and education are critical; in addition, many sectors must be involved. Effective
early warning systems must be embedded in an understandable manner and relevant to thecommunities which they serve.
Risk Knowledge. Risk assessment and mapping will help to set priorities among early
warning system needs and to guide preparations for response and disaster prevention activities.
Warning Service. A sound scientific basis for predicting potentially catastrophic events isrequired. Constant monitoring of possible disaster precursors is necessary to generate accurate
warnings on time.
Communication and Dissemination. Clear understandable warnings must reach those atrisk. For people to understand the warnings they must contain clear, useful information that enables
proper responses. National and community level communication channels must be identified inadvance and one authoritative voice established.
Response Capability. It is essential that communities understand their risks; they must
respect the warning service and should know how to react. Building up a prepared community
requires the participation of formal and informal education sector.
JAPAN
As one of the public corporations designated for disaster management under the Disastercountermeasure basic act, NHK plays the key role in disaster broadcasting and emergency .JMA is
the key body in prediction major natural hazards such as earthquakes, tsunamis, typhoons andvolcano eruptions while MLIT is for flood and sediment disasters and cooperation with them isessential for municipalities and other disaster response organizations. It must be noted thatapplication of latest technologies for disaster warning and communication by JMA had greatly
improved disaster response system in Japan. In addition, state lifeline agencies, railway companies,
NHK has established quick information sharing with JMA and other relevant bodies as well as
response mechanism within respective fields of activity.
- Crucial collaboration with JMA and MLIT - JMA is the key body in prediction major natural
hazards such as earthquakes, tsunamis, typhoons and volcano eruptions while MLIT is for flood andsediment disasters and cooperation with them is essential for municipalities and other disaster
response organizations.
- Comprehensive mechanism of emergency broadcasting by national television –Close
collaboration with JMA and established automated emergency warning, huge facilities andequipments in its disposal NHK plays central role in disaster broadcasting and emergency warning.
Final report ADRC Visiting researcher (13 August – 22 November 2013)

- Massive numbers of voluntary response organizations and people involved in voluntarydisaster response shows high level of disaster awareness and social responsibility for disaster
reduction in the country. During disaster times acting in collaboration with the professional responders,voluntary teams demonstrate remarkable efforts in psychological support of the affected people andprovided basic utilities.
- The existing Early warning system although has been form during relatively short time period
put in place sophisticated mechanism which enables Japan to mobilize forces and resources andrespond in a comprehensive manner any large-scale disasters promptly, considerably decreasing
damage and loss. Comprehensively elaborated coordination enables to relevant bodies takeconcerted actions to increases response efficiency. In turn hierarchical supervision granting response
bodies with great independence keeps accountability of them high.
-Changes and advancements driven by previous large-scale disasters -based on the lessonsof previous national disasters system has undergone both organizational changes and enhancements.
Large-scale natural disasters in recent decades, such as, Isewan Typhoon, Great Hanshin-Awaji
Earthquake, Great East Japan Earthquake have influenced currents disaster response system inJapan.
- Multilevel emergency response – Depending on the scale of disaster emergency response isconducted on local, prefectural and national levels.
- Effective lifeline crisis management system – recent disasters provided high level of
emergency response preparedness and capabilities by lifeline – electricity and gas – providers.
Integration of advanced technologies for disaster prediction, control and resilience andcomprehensive collaboration with other relevant bodies are the key reasons
MONGOLIA
Provinces and local governments also have emergency management departments. The
provincial department of disaster prevention and mitigation is responsible for emergency management
at the provincial level.
Mongolia was use in 1970-1980 Civil Ddefence’s early warning system with analogy system.
Now early warning devices with analogy system disconnect from network, out of date and do not work.
The causes for Early warning problem are1) Inadequate political commitment.
3) Lack of public awareness and lack of public participation in the development andoperation of early warning systems.
4) Lack of decision support systems that could help to avoid overcautious and inefficient crosschecking of data.
5) The need for real time connections rather than reliance on the internet.
6) Insufficient budget allocation of disaster risk reduction.
7) One way communication of early warning, no feedback evaluation from community
8) Warning Message understood and trusted but do not know how to respond.
Disaster risk management is a multi-sectorial and cross-cutting issue. Early warning as an
essential element of risk management can be successful if all related sectors in local, national,
regional and global level work together effectively. Working together requires common objectives andvision, strategic directions, integrated and harmonized approach, and commitment by all actors.

Final report ADRC Visiting researcher (13 August – 22 November 2013)