East Japan Earthquake

International Environment and Disaster Management UNESCO Bangkok Laboratory Education for Sustainable Development Graduate School of Global Environmental Studies 920 Sukhumvit Rd, Prakanong, Klongtoey and Tsunami KYOTO UNIVERSITY Bangkok 10110, Thailand Yoshida Honmachi, Sakyo-ku, Kyoto 606-8501, JAPAN Tel/ Fax: 81-75-753-5708 Tel. +6623910577 ext 221. Fax. +6623910866 Key Lessons for the Education Sector Web: http://www.iedm.ges.kyoto-u.ac.jp/ http://www.unesco.org/bangkok

Key Lessons and Issues New Role of of Schools Structure, Function and Human Effectiveness School and E-HFA Tasks Location, Educational Resources of Disaster Multi- stakeholder Layout Continuity and Training Education Dialogue of Schools Tasks1 Tasks2 E-HFA1 Tasks3 Tasks4 Tasks5 E-HFA E-HFA2 Tasks6 Tasks7 Tasks8 E-HFA3 Tasks9 Tasks10 Tasks11 Tasks12 E-HFA4 E-HFA1： Tasks13 Tasks14 Tasks15 E-HFA5 Task1～4 Tasks16 Low Performance, Need improvements Moderate Performance High Performance

an

of an Disclaimer:

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The authors are responsible for the choice and the presentation of the facts contained in this book and for the opinions expressed therein, which are not necessarily those of UNESCO Bangkok and do not commit the Organization.

Authors: Rajib Shaw Yukiko Takeuchi Kyoto University, Japan

Contacts: Rajib Shaw Associate Professor Graduate School of Global Environmental Studies KYOTO UNIVERSITY Yoshida Honmachi, Sakyo-ku, Kyoto 606-8501, JAPAN Tel/ Fax: 81-75-753-5708 Web: http://www.iedm.ges.kyoto-u.ac.jp/ E-mail: [email protected] East Japan Earthquake and Tsunami

Key Lessons in the Education Sector Contents

1. Overview of East Japan Earthquake and Tsunami ...p3 2. Role of Schools in Japan as Evacuation Centers...p6 3. Selected Cases of Impacts on Schools in the Tohoku Area...p8 4. Priority of Community and School Facilities as Evacuation Centers...p16 5. Key Lessons Learned from the Disaster and its Aftermath...p18

ii Overview of East Japan Earthquake and Tsunami 1 A massive earthquake of magnitude The earthquake was the fourth 9.0 occurred on Friday 11 March, mega earthquake known to date; off the Pacifi c coast of northeastern the other three were the Chile Japan (Tohoku Region). More than earthquake in 1960, the Alaska 15,000 people were killed and the earthquake in 1964 and Sumatra number of the missing persons is earthquake in 2004. The fi rst more than 3,500 (NPA, 2011). Table tsunami reached the Japanese 1 and 2 are the overview of the mainland 20 minutes aft er the earthquake and tsunami provided earthquake and ulti mately aff ected by JMA (2011). a 2000 km stretch of Japan’s Pacifi c

Date and Time 11 March 2011 14:46 JST (05:46 UTC) Magnitude 9.0 (interim value; the largest earthquake recorded in Japan) N38.1, E142.9 (130km ESE off Ojika Peninsula) Depth 24km (interim Hypocenter value) 7 (Max): Kurihara City of Miyagi Prefecture JMA Seismic Intensity 6+: 28 cities and towns (including Wakuya Town, Tome City, Osaki City, (refer to Figure 1) Natori City) in Miyagi, Fukushima, Ibaraki, and Tochigi Prefectures 6- or weaker: Observed nationwide from Hokkaido to Kyushu Table 1 Earthquake Details Number of Areas (Total: 66 areas) Date and Time Action Warning Warning Advisory (3m or higher) (Up to 2m) (About 0.5m) 11 March 2011 14:49 JST (05:49 UTC) Issued 3 5 15 11 March 2011 15:14 JST (06:14 UTC) Increased 6 7 23 11 March 2011 15:33 JST (06:33 UTC) Increased 10 24 11 11 March 2011 16:08 JST (07:08 UTC) Increased 17 19 17 11 March 2011 18:47 JST (09:47 UTC) Increased 17 19 18 11 March 2011 21:35 JST (12:35 UTC) Increased 17 22 19 11 March 2011 22:53 JST (13:53 UTC) Increased 18 21 19 12 March 2011 03:20 JST (18:20 UTC) Increased 18 21 27 12 March 2011 13:50 JST (04:50 UTC) Decreased 4 11 26 12 March 2011 20:20 JST (11:20 UTC) Decreased 0 4 21 13 March 2011 07:30 JST (22:30 UTC) Decreased 0 0 15 13 March 2011 17:58 JST (08:58 UTC) Lifted 0 0 0 Table 2. Tsunami warning and advisories [Source: JMA 2011]

Overview of East Japan Earthquake and Tsunami iii coast (Shaw and Takeuchi 2012). 200,000 people, many of whom sti ll remain in temporary housing. This disaster caused widespread human suff ering and catastrophic The tsunami hit the prefectures damage to housing and of Iwate and Miyagi at diff erent infrastructure (Table 3). According ti mes, with the closest occurring to the Nati onal Police Agency, the approximately 22 to 25 minutes death total is esti mated at 15,840 from the ti me of the earthquake, people (2011/12/9). The main and the farthest occurring cause of death was drowning, with approximately one hour aft er people more than 60 years old the earthquake. On an average, accounti ng for 65% of the dead. The there was 30-40 minutes ti me lag number of deaths was about three between the earthquake and the ti mes of that of the Great Hanshin arrival of the tsunami (illustrated in Awaji Earthquake. 120,241 houses Figure 1). were completely destroyed and 189.822 houses parti ally collapsed In the East Japan Earthquake and as of 17 November 2011. The peak Tsunami, the educati on sector number of evacuees reached to experienced massive damage,

Prefecture Population Houses Inundation Inundation Total Half Dead Missing above fl oor under fl oor collapsed collapsed level level Hokkaido 1 4 329 545 Aomori 3 1 310 851 Iwate 4665 1420 20184 4551 1761 323 Miyagi 9503 1994 77034 93568 7053 11009 Akita Yamagata 2 37 80 Fukushima 1605 222 18373 56864 62 339 Tokyo 7 11 Ibaragi 24 1 3225 23005 1609 726 Tochigi 4 264 2029 Gunma 1 7 Saitama 5 Chiba 20 2 783 9205 153 720 Kanagawa 4 38 Table 3. Damage situati on as of 2011/11/21 (Source: Nati onal Police Agency)

iv Overview of East Japan Earthquake and Tsunami along with other sectors such as Many schools and learners and housing, infrastructure, energy and educators within them were civil society. In total, 6,284 public aff ected by the disaster. One of schools received damage and 733 the key reasons for this was the school students/teachers died or proximity of the schools to the missing as a result of the 2011 coastlines. The Okawa elementary Tohoku Earthquake and Tsunami School of Ishinomaki city is one of (MEXT, 2011). MEXT classifi ed the the few schools, where the students damage each school suff ered into and teachers died in the school three levels. Figure 4 shows the building itself since they did not breakdown of school number of evacuate to higher places. However, damage levels 1-3. 193 schools not all the coastal schools suff ered belong to damage level 1, indicati ng from loss of the lives of school total destructi on rendering the children, which has been att ributed conti nued use of the school to other factors such as size and impossible. Level 2 signifi ed heavy structure of school, links with the damage, necessitati ng structural community, disaster risk reducti on repairs. Level 3 signifi ed minor educati on etc. damage, mostly non-structural.

Figure 1. Tsunami hitti ng the Iwate [above] and Miyagi [below] prefectures [Source: Nati onal Geographic 2011]

Overview of East Japan Earthquake and Tsunami v Role of Schools in Japan as Evacuation Center 2 According to the Ministry of work of Shaw, Shiwaku, Kobayashi Educati on, Culture, Sports, Science and Kobayashi (2004) and many and Technology (MEXT), there were other publicati ons. Also, Shiwaku, about 42,000 public schools as of Fujieda, Takeuchi and Shaw (2010) Japan in 2009. The school has two describe that disaster educati on in social roles: as place of learning and school is an eff ecti ve means to raise living for children, and the core of awareness of not only students but the community for hosti ng diff erent also their family members and the community events in the schools, community (Shaw and Kobayashi such as sport festi vals. In its role 2001). as a place of learning and living for children, the Central Council According to a survey conducted by for Educati on of MEXT describes the Fire and Disaster Management schools as the following (Takeuchi Agency (FDMA) in 2008, schools and Shaw 2012): account for 60% of the public buildings used as disaster “A school should provide balanced preventi on faciliti es (Figure 2). educati on for the att ainment of Furthermore, according to the knowledge and moral and physical Nati onal Insti tute for Educati on health during the developmental Policy Research (NIER), in 2011 stage of children. In additi on, 89.3% of all public schools in Japan schools should contribute to lifelong are allocated as evacuati on sites. learning. In parti cular, focusing on Also, municipality schools account base and accidence are important for 91.8% of public schools used to enhance the academic ability and as evacuati on sites (Figure 3). make a base of learning for life. Also, Most of the elementary and junior it is fundamental to develop a good high schools are administered by heart in terms of humanity and municipaliti es in Japan. Hence, we social relati ons through communal can see that public elementary and living with friends of the same junior high schools are primarily generati on. Most importantly, it is used as evacuati on sites. essenti al to discover the strength of There are three reasons for why each child as well as enhance their schools are oft en used as evacuati on character and ability. Thus, every sites during disasters. Firstly, it is public school has course instructi on the requirement by the Japanese and daily life guidance based on the law of Disaster Management that proposal of the MEXT.” schools will be used as evacuati on Recently, schools have addressed centers. Secondly, schools have disaster educati on in additi on infrastructure and faciliti es that are to course instructi on and values well-built to cope with diff erent educati on. The importance of types of natural hazards, for disaster educati on at the school example earthquake or typhoon- level has been recognized in the resistant constructi on that can also vi Role of Schools in Japan as Evacuati on Centers withstand the impacts of other familiarity with local communiti es, natural hazards. Thirdly, schools, since they have become the center and parti cularly elementary schools, of a range of community acti viti es. have a high degree of visibility and

3.6% 3.2% 12.7% 3.2% 1.7% Facilities for social welfare 2.2% Facilities for education 8.0% Govoernment facilities Community center 4.5% Public gymnaium Facilities for medical care Facilities for people Facilities for fire department Others 60.9% Figure 2. Public faciliti es used in disaster preventi on (Source: NIER, 2008, modifi ed by Suda 2012) 230 2286

91.8% (Municipal school/ School as evacuation place *100） School as evacuation place Municipal school 30513 Prefectual high school Special-needs school 27,997 Figure 3. Number of schools used as evacuati on places Figure 2. Public faciliti es used in disaster preventi on (Source: NIER, 2011, modifi ed by Suda 2012) (Source: NIER, 2008, modifi ed by Suda 2012)

Level1 / 193 / 3%

Level2 / 747 / 13%

Total 6284 Level3 / 5064 / 84%

Figure 4 School Number of Damage Level by Tohoku Earthquake and Tsunami

Role of Schools in Japan as Evacuati on Centers vii Selected Cases of Impacts on Schools in Tohoku Area 3

This secti on provides six case studies studies. The major diff erences on how schools were aff ected by between them were whether the and responded to the 2011 East school area was damaged by the Japan earthquake and tsunami tsunami or not. Schools that were disaster, which are derived from damaged were either evacuated detailed interviews and fi eld surveys or served as evacuati on centers with school principals and municipal for other schools and the local educati on boards in various citi es community (Takeuchi and Shaw across the region. Figure 5 provides 2012). a fl ow chart on each of these case

School Area School Area Received Tsunami Did not Received Tsunami

Yes No

Move to Became Accepted Evacuation Other School Center Other School

Yes No Yes No Arahama ES Hashigami Higashi Shishiori ES Toni JHS Toni ES JHS MIyagino ES

Figure 5 Types of School Situati on

viii Selected Cases of Impacts on Schools in Tohoku Area 3.1 Arahama ES in Sendai City, Miyagi Prefecture

Arahama elementary school (ES) is a aft er the earthquake, students and public school in Sendai city. This school teacher/staff s evacuated to 4th fl oor, is located on the Sendai plain, within 200 followed by around 233 people from the meters from the coastline. Sendai plain is local community. The tsunami came at large fl at area, and the school had served around 15:55 and reached up to the 2nd as an important evacuati on centre in the fl oor. At around 17:30, the fi rst helicopter past due to its height and fl at rooft op. arrived and started rescuing the students The area was aff ected by the Chile (Figure 6, 11A). Tsunami on 27th February 2010. Aft er this tsunami, the school principal revised the Currently, Arahama ES has is temporarily disaster management plan by increasing relocated to Higashi Miyagino ES. Aft er the storing capacity of emergency food receiving the decision to move from and uti liti es and moving the evacuati on the educati on board of Sendai city, area from the gymnasium to the 3rd fl oor the school received support materials of school building. In considerati on of the from the government, NGO/NPOs, and ti me required to take shelter in another others sources, making it easier for elementary school (4 kilometers away), the school to resume classes. Aft er the it was decided that students would recommencement of schooling, students be confi ned to this school during the started to come by school bus from disaster. temporary houses or rented apartments that were spread over a vast area. This The school had 16 teacher/staff members introduced logisti cal challenges and the and 94 students on 11 March, 2011. potenti al for community dislocati on and When the earthquake happened at 14:46, breakdown issues, which have become the 1st and 2nd year students were on apparent during the recovery process. their way back to their homes, while other students were taking classes in the school building. Arahama ES’s building is 4 stories with a fl at rooft op. Immediately

Figure 6. Arahama ES and its surrounding

Selected Cases of Impacts on Schools in Tohoku Area ix 3.2 Toni ES in Kamaishi City, Iwate Prefecture

Established in 1982, Toni Elementary hall and stayed for one night (Figure 7, School is located in the Sanriku mountain 11B). area, which is characterized by narrow valleys and steep slopes. 11m concrete The school was heavily damaged by dikes were developed along the coast, the tsunami, which reached up to and Toni ES was located near this dike. the 3rd floor of the school building. The school had 14 teacher/staff s and 68 Consequently, the school’s facilities students on 11th March 2011. At 14:46, could not be used to resume classes, and students were taking classes in the school temporary space was granted by Heita building. After the earthquake stopped, ES. After five months after the disaster, students gathered in the grounds and the education board of Kamaishi city moved to a shrine on a nearby mountain. made a plan to merge Toni ES with Toni Some voluntary fire fighters came to JHS (referred to in a later case study) school and helped in the evacuati on. This and other public community facilities. area received large tsunami waves three The school principle agreed to this plan, ti mes in this disaster. Aft er the 2nd wave, but was worried about differences that the school principle was worried that the existed between the ES and JHS, such next one may be even larger than the as diff erences in class lengths, as well as fi rst, and he moved school students and requirements of diff erent levels of safety teachers/staff to an even higher locati on measures for ES and JHS. The Toni ES is on National Route 45. After reaching currently operati ng in a temporary school Route 45, they moved to the community facility built in the Toni JHS premise.

Figure 7. Toni ES and its surrounding x Selected Cases of Impacts on Schools in Tohoku Area 3.3 Shishiori ES in Kesennuma City, Miyagi Prefecture

Shishiori ES had 135 students and 25 the children to their parents the next teachers at the schools on 11 March day. The principal returned to his school 2011. After the earthquake occurred, after four days to start the cleanup the students and teachers immediately process, even though his own house evacuated to the playground, and then had been washed away. Once it had to higher ground once the principal been cleaned, the school was instructed received information about a tsunami. to restart by the municipal education Several parents came to receive their board, and a graduation ceremony was children from the school, however, the conducted. Today, the school continues principal asked the parents to evacuate to hold special community events and with the school. Three children who left charity marathons with the school the school to evacuate with their parents children, which have served to deepen were aff ected by the tsunami on the way, its relati onship with the local community and two teachers lost their lives outside (Figure 8, 11C). the school.

As evening approached and the temperature fell, the principal decided to move the children to a nearby temple and spend the night there before handing

Figure 8. Shishiori ES and its surrounding

Selected Cases of Impacts on Schools in Tohoku Area xi 3.4 Toni JHS in Kamaishi City, Iwate Prefecture

Unlike its elementary school counterpart, damaged by the earthquake in many Toni JHS was located on high ground, and places, the school and the community thus was not directly aff ected by tsunami. were isolated had to depend on the However, the building was quite old, had locally-available resources for some ti me. suffered significant damage from the Schooling resumed one month after the earthquake, and could not be used as an disaster, beginning with graduation and evacuati on center. When the earthquake welcome ceremonies that were held happened, there were 47 students and in the gymnasium. Classes were also 11 teachers in the school, and all of conducted in the gymnasium, and in them evacuated after the earthquake January 2012, the school was relocated to as a precaution against an approaching a temporary building on the playground. tsunami. Based on an earlier simulati on, the school principal had knowledge that there would be a ti me lag of 30 minutes between the earthquake and the arrival of the tsunami. Therefore, he instructed the students to help the aged populati on from the local community to evacuate with them to Route 45.

The students spent the night together with the local community in a construction site office near Route 45, and were received by their parents on the next day. Since the route 45 was heavily

Figure 9. Shishiori ES and its surrounding xii Selected Cases of Impacts on Schools in Tohoku Area 3.5 Hashigami JHS in Kesennuma City, Miyagi Prefecture

Hashigami JHS was locally renowned for There was no damage to the school its involvement in disaster risk reducti on building due to the earthquake or educati on before the disaster. The school tsunami, and so the school’s gymnasium had conducted several disaster educati on hosted around 800 people from the local and ESD (Educati on for Sustainable community for several nights following Development) programs with the local the disaster. Many of these people communiti es in the past. On 11 March, lost their homes to the tsunami, and 2011, there were 167 students and 24 conti nued to shelter in the gymnasium teachers in the school. The 1-2 year for the next 8 months unti l temporary students were busy preparing for the housing was constructed (Figure 10, 11E), graduati on ceremony, which was to be which had a signifi cant impact upon the held the next day. When the earthquake school’s conti nued operati on To some occurred, students and teachers extent, this impact conti nues do to the immediately evacuated to the playground fact that some of the temporary housing of the school. As the school is located in has been built upon the school grounds. a relati vely higher area near Route 45, more than 2,000 people evacuated to the school aft er the earthquake, including both the local community as well as the passersby from Route 45.

Figure 10. Hashigami JHS, temporary housing and its surrounding

Selected Cases of Impacts on Schools in Tohoku Area xiii 3.6 Higashi Miyagino ES in Sendai City, Miyagi Prefecture

Higashi Miyagino elementary school the numbers of the students were less is located in the Sendai city, and did than the number of the classrooms. The not experience any major damages in Arahama elementary school was able the current disaster. The school had to use a separate wing for their classes, several vacant classrooms, which were without disturbing the educati on of the later used by Arahama elementary Higashi Miyagino ES. Therefore, it was school. There was no major confl ict like two diff erent schools in one large between the students and teachers of building. each schools. Rather, both the schools conducted joint outi ng programs for the Figure 11 explains with illustrati on the students, and other acti viti es related situati on of each school. Table 4 shows to the communiti es. This was possible the summary of the observati ons in each because the school had two wings and school.

Damage of During Tsunami After 3.11 Current Situation Building Rescued by 320 people helicopter or Tsunami reach to evacuate school Temporary usage in Arahama ES move to other second fl oor building over 4th Higashi Miyagino ES evacuation place fl oor by oneself Temporary usage in Heita Tsunami reach to Move to height Stay one day in Toni ES ES. Temporary school 3rd fl oor area community hall building was developed. Tsunami reach to Mover to some Stay three days Shishiori ES Can use all own facility fi rst fl oor places in temple Established Evacuation Can use own facility. But Many people center for over Hashigami without ground. Because, No Damage evacuate to 8 month and JHS temporary house build on school developed the ground temporary house in ground

Temporary usage if Building broken Move to height Stay three days gymnasium. Temporary Toni JHS by Earthquake area in company offi ce school building was developed.

Higashi Accepted temporary No Damage Miyagino ES usage

Table 4 Summary of case study school conditi on xiv Selected Cases of Impacts on Schools in Tohoku Area Figure 11. Situation of each school

Selected Cases of Impacts on Schools in Tohoku Area xv Priority of Community and School Facility and Evacuation Center 4 Aft er experiencing a disaster of important public facility in the this magnitude, the recovery and community, communiti es have reconstructi on process of local recently been challenged by the social and physical infrastructure rapidly aging populati on and has been extremely challenging. decreasing number of school-going In the areas that were aff ected kids. by the tsunami, factors such as the limited availability of suitable From the above-menti oned land has made the constructi on of case studies, the following key houses under the town recovery observati ons can be made in the plan diffi cult. While schools aft ermath of the disaster. have traditi onally been the most

In the Arahama area, the old school building served as an important evacuation area due to the fl atness of the surrounding terrain and the building’s height. Therefore, it is important that the new school building be able to withstand future earthquakes, should have a fl at roof [for people to evacuate to the rooftop], to be constructed away from the coast, and to be kept stocked with emergency food, water and utilities and etc. Since the disaster, a large proportion of the local community has relocated elsewhere, due to a lack of jobs, adequate housing, or infrastructure. It is unlikely that the school will be able to be reconstructed in the absence of these things.

In the Toni area, both the Elementary and Junior High Schools require reconstruction- however, it is diffi cult to justify the construction of a new school of the same size, because of the smaller number of children due to increasing number of aged population. Therefore, a joint building will be developed housing the elementary school, junior high school, and other public community facilities. The safety of school children also needs to be ensured given that the school building will be shared with the general public.

From Shishiori ES, the school was not located on the coastline but was reached by the tsunami as it moved upstream along the river. While it only reached the schools ground fl oor, the school was nonetheless evacuated as there was no way of telling whether the upper level would be affected or not.

From Hashigami JHS, the school had been used as an evacuation center for 10 months following the disaster, and is still being used as the location of temporary housing. However, since the school gymnasium was not able to be used for 10 months, the quality of education that students of the school received was affected.

xvi Priority of Community and School Facility and Evacuati on Center Figure 12 summarizes the needs temporary schools, followed by site and issues of school recovery. It is selecti on and constructi on of new important to keep the balance of schools which require signifi cant the expected roles of schools in resources. Populati on drain,aging general ti me and in recovery ti me. populati on and decreasing number There are three elements linked of children are some of the to the school: the school needs to challenging issues which need to be be a safe building since it hosts the kept in mind for the reconstructi on children. It needs to ensure the of the new schools in the aff ected conti nuity of the educati on during areas. emergency ti me in the schools. And, schools also need to serve as In many schools, due to death of the an evacuati on center. school teachers, there is a shortage of the school teachers, which also In the context of the East Japan poses a challenge for the conti nuity Earthquake and Tsunami, there are of the educati on in the aff ected several challenges for the recovery region. Finally, the mental care of of the educati on sector: budget school children suff ering from PTSD related to the school constructi on [Post Traumati c Stress Disorder] is an important issue. There need is also an important issue for the to be an allocated budget for school recovery.

Figure 12. Needs and Issues of School Recovery

Priority of Community and School Facility and Evacuati on Center xvii

Key Lessons Learned from the Disaster and its Aftermath 5 The enormous impact that the 2011 categorized into: East Japan earthquake and tsunami disaster had on the educati on sector ・Structure, Location, Layout warrants an in-depth examinati on of schools: Locati on of school of lessons learned from the disaster building is a crucial issue. In most in order to reduce the risk of future cases, the buildings are located disasters. School damages in the in close proximity of the coast aff ected areas need further detailed [within 100 to 200 m from the investi gati ons to understand the coast line]. In most cases, the reasons for the damages and their new schools have slated roof, potenti al future remedy. which prohibited the children and communiti es to take shelter Broadly, key lessons can be on the roof. The slanted roof is

Priority 1: Developing institutional basis for disaster risk reduction (DRR) in education Task 1. Engage in multi-stakeholder dialogue to establish a foundation for DRR education Task 2. Create or strengthen mechanisms for the systematic coordination of DRR education Task 3. Assess and develop an institutional basis for DRR education Task 4. Prioritize DRR and allocate appropriate resources for DRR education Priority 2: Identifying, assessing, and monitoring disaster risks in the education sector Task 5. Establish risk assessments for the education sector Task 6. Strengthen early warning in the education sector through effective communication and dissemination mechanisms. Priority 3: Building a culture of safety through DRR education Task 7. Develop program to raise public awareness of DRR Task 8. Include DRR in the education system Task 9. Develop DRR training and learning at the school and community Task 10. Enhance dissemination of DRR information Priority 4: Reducing the underlying risk factors in the education sector Task 11. Environment: Understand sustainable ecosystem, environment, and natural resources management Task 12. Establish measures to incorporate DRR in urban and land-use planning Task 13. Structures: Strengthen mechanisms for improved building safety and protection of critical facilities in the education sector Task 14. Disaster recovery: Develop a recovery planning process that incorporates DRR Priority 5: Preparing for effective emergency response and recovery in education Task 15. Build on disaster preparedness capacities and mechanisms in the education sector Task 16. Assess disaster response preparedness capacities and mechanisms through strengthened planning Table 4. Sixteen Tasks Relevant to the Educati on Sector (Source: Gwee et al, 2011) xviii Key Lessons Learned from the Disaster and its Aft ermath

made to avoid water logging and has aff ected the conti nuity of structural decay. Also, it has been educati on. Students from the observed that schools which were educati on faculty from local aligned parallel to the coast have universiti es have tried to fi ll higher damage than thos which this gap; however, this also lay perpendicular to the coast. needs to be incorporated in the educati onal conti nuity planning in ・Function of schools and post disaster situati ons. Educational Continuity: While schools were used as evacuati on ・Effectiveness of Disaster center, in several schools, people Education: As exemplifi ed in the from local communiti es remained Kamaishi experiences, disaster for more than 5 to 6 months. This educati on played an important had serious implicati ons to the role in the students’ evacuati on educati onal conti nuity in the post behavior. In the secondary disaster environment. This needs schools, the children evacuated to be incorporated in the future along with the elementary school school level conti ngency planning. children. The role of teachers in implementi ng disaster educati on ・Human Resources and in schools needs to be highlighted. Training: At the aft ermath of the disaster, the schools face ・New role of school and multi- a shortage of teachers, which stakeholder dialogue: In the

Figure 13: Layout of school buildings contributi ng to damages

Key Lessons Learned from the Disaster and its Aft ermath xix changing demographic conditi on, shelter on the rooft op. The curved schools need to play increasing roofs were promoted to reduce role in the community as a water logging in heavy rainfall community facility. Therefore, areas, but they became a barrier the reconstructi on of the school to evacuati on during the tsunami, building needs interacti ons exemplifying the need for multi - with a diversity of stakeholders, hazard assessment when engaging including community members. in DRR. The other important factor relati ng to school building design Gwee, Shaw and Takeuchi (2011) within the context of the disaster identi fi ed and adapted 16 of the is layout. It was found that schools original 22 tasks suggested for positi oned perpendicularly to the the implementati on of the Hyogo coastline were not damaged as Framework for Acti on (HFA) for badly as those lying parallel to use in the educati on sector. The the coastline, such as those in the 16 tasks are referred to as E-HFA Sanriku area, which received the or Educati on in the HFA as shown full force of the tsunami along their in Table 5. The following analysis enti re length (Figure 13). att empts to link lessons learned from the disaster to the E-HFA The locati on of the school was framework. another crucial issue. Many of the most heavily damaged schools In several school buildings, were located within 100-200 structural design was a criti cal factor meters of the coastline [e.g., the in whether a school building was Arahama elementary school, Toni able to withstand the earthquake elementary school etc.], relevant and tsunami or not. Despite the to both Priority 2 [Task 5, in terms magnitude 9 earthquake, few of of risk assessment] and Priority the school buildings highlighted in 4 [Task 12, in terms of land use the case studies parti ally or totally planning]. Schools, being essenti al collapsed, att ributed to their being social infrastructure, need their retrofi tt ed for seismic safety, as risk assessed appropriately, an in- part of nati onal and prefecture-led depth understanding of underlying programs. This shows a high level risk factors, and proper land use of educati on governance, linked planning. to the E-HFA Priority 1 [Task 3]. However, the damage as a result Schools can have a life-saving of the tsunami was observed to be functi on during emergency periods, widespread, and in many cases, as exemplifi ed by E-HFA priority 5 multi -hazard approaches were not [Task 15 and 16]. They can provide incorporated, which is linked to accessible and safe evacuati on E-HFA priority 4 [Task 13]. centers and later provide temporary housing for evacuees when In terms of structure, many of undamaged, as Hashikami JHS did the school buildings had curved for several months. However, it is roofs instead of fl at roofs, which important to recognize that this prevented the students and may have a negati ve impact upon community members from taking the quality of educati on delivered

xx Key Lessons Learned from the Disaster and its Aft ermath by the school aft er the disaster has evacuati ons without the availability ended. In the case of Arahama ES, of clear informati on on the tsunami students and local communiti es ti ming and height. Although were required to sleep in the evacuati on sites were identi fi ed in school building, exemplifying the emergency manuals, teachers also importance of the provision of had to make decisions based on their emergency goods and food, as per local situati on, and in some cases, E-HFA Priority 5 [task 16, emergency moved with the students to four response capacity]. or fi ve diff erent places in the face of uncertainty[such as the case of Human resources, teacher Shishiori ES]. This underscores the trainings, and emergency manuals need for teacher training in decision were other key factors. In most making during emergencies. This cases, school principals had to is related to E-HFA Priority 3 [Task spearhead the evacuati on of the 9: training]. Also, the development students, and were forced to make of a proper management plan for criti cally important decisions over educati on in emergency is required,

Key Lessons and Issues New role of Structre, Function and Human Effectiveness school and multi- E-HFA Tasks locaion, Educational Resources of Disaster stakeholder layout Continuity and Training Education dialogue Tasks1 Tasks2 E-HFA1 Tasks3 Tasks4 Tasks5 E-HFA2 Tasks6 Tasks7 Tasks8 E-HFA3 Tasks9 Tasks10 Tasks11 Tasks12 E-HFA4 Tasks13 Tasks14 Tasks15 E-HFA5 Tasks16

Low Performance, Need improvements Moderate Performance High Performance

Table 6. Key initi al lessons of EJET educati on sectors in terms of E-HFA

Key Lessons Learned from the Disaster and its Aft ermath xxi as per E-HFA 5 [Task 15: disaster stakeholder dialogues with the local response capacity]. community leaders, PTA, school In several citi es, disaster educati on principles. and educati on boards. helped respond eff ecti vely to This process has been supported the earthquake and tsunami by MEXT through the initi ati on of in accordance with evacuati on the concept of “school-centered procedures, including those who resilient community development” were not inside the school at the in the aff ected areas. Therefore ti me of the disaster. A classic E-HFA priority 1 [Task 1: multi - example of this is the “Kamaishi stakeholder dialogue] has had Miracle,” where many students strong signifi cance and importance. spontaneously and independently Table 6 shows a tentati ve evaluati on evacuated during the earthquake of the key lessons and issues from in line with their DRR educati on. the current disaster. During the evacuati on, the Kamaishi Higashi JHS took with them the Fernandez, Shaw and Takeuchi Unotsumai ES students, both of (2012) have made an analysis the schools were located nearby from 25 specifi c cases of school each other on the coastline, and damage from 11 diff erent Asian which had jointly conducted had countries and 6 hazard scenarios. DRR educati on and emergency In these cases, the most commonly drills. Thus, E-HFA Priority 3 implemented recovery acti ons [Task 8: include DRR in educati on relate to Task 14 (disaster recovery), system] was found to be extremely Task 7 (public awareness of DRR), important. Task 13 (physical structures, i.e., building codes, retrofi tti ng, protecti on of criti cal faciliti es, etc.), During the school recovery Task 15 (disaster preparedness, programs, in several citi es, multi - i.e., drills, standby funds, etc.), and stakeholder collaborati on was Task 12 (land-use planning, i.e., safe established in cooperati on with locati on for schools). Tasks under local residenti al associati ons, Priority 4 (reducing underlying risks) school principals, educati on were performed in about half of boards, academics and other these cases, however neither of the related stakeholders. As outlined four tasks in Priority 1 (insti tuti onal above, there is an increasingly basis for DRR in educati on) were aging populati on across much carried out in any of the 25 cases, of the aff ected area, and the including Task 6 (early warning) number of school going children and Task 16 (assessment of disaster are gradually decreasing. This preparedness). The case study has necessitated schools to form lessons, categorized in accordance close relati onships with local with the E-HFA priority area they communiti es so that schools can belong to, are then plott ed on be also used as a community a graph and compared with the faciliti es. Thus, the community results reported in the 2011 Global needs and prioriti es are now Assessment Report on Disaster Risk refl ected in new and reconstructed Reducti on (GAR 2011). schools, in accordance with multi -

xxii Key Lessons Learned from the Disaster and its Aft ermath According to the GAR 2011, whereas analysis from the current cases of substanti al progress is being made school damages in the 2011 East globally against the HFA priority Japan earthquake and tsunami targets in early warning, disaster disaster shows that all the E-HFA preparedness, and emergency prioriti es have been treated with response, many countries are sti ll equal importance, although in struggling to address underlying risk reality they should be performed drivers (Figure 14). Interesti ngly, at diff erent levels by diff erent sets the lessons refl ected in the 25 of stakeholders in accordance with case studies shows almost the their own contexts. opposite tendency (Figure 15), in that Prioriti es 4 and 3 were The role of the school goes performed on more occasions than beyond that of a provider of the other prioriti es. Figure 15 seems educati on. Damage to the school to suggest that perspecti ves on is not restricted to the educati on disaster risk tend to change aft er sector. School is directly linked to one has experienced a disaster, the community, and thus school hence the diff erence in prioriti es. recovery is linked to community It is interesti ng that although the recovery. When considering cases are more on post-disaster disaster risk reducti on (DRR) response and recovery, HFA 4, which educati on, it should not be limited focuses on underlying risk factors, to the educati on curriculum only, is incorporated into the recovery but should also include related process. This is signifi cant in the issues such as structural and sense that it encompasses the non-structural safety measures; future risk reducti on perspecti ves. legislati ve measures supporti ng the For obvious reasons, the educati on integrati on, implementati on, as well system is focused on and has as funding of DRR in the educati on given more emphasis to HFA 3. sector; risk assessments and early It should also be noted that the warning systems; DRR training examples presented here are rather for school staff , etc. An integrated randomly selected from diff erent approach is necessary and the E-HFA Asian countries on diff erent types tasks can help cover the various of disasters. A more systemati c important issues that need to be analysis may provide more insight addressed. in the progress of E-HFA. The

Average score of progress 3.5 2007-2009

3.4 2009-2011

3.3 50% 3.2

3.1 40%

3.0 30% 2.9

2.8 20% 2.7

10% Governance Risk Identification Knowledge Underlying Preparedness and Institutional and and risk and arrangements early warning education response 0 HFA Priority Areas Priority1 Priority2 Priority3 Priority4 Priority5 Figure 14. Global progress against the HFA Figure 15. Classification of the Asian Case Studies Source: UNISDR, 2011 According to E-HFA [Source: IEDM 2012, Fernandez, Shaw, Takeuchi 2012]

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