Journal of Civil Engineering and Architecture 10 (2016) 452-460 doi: 10.17265/1934-7359/2016.04.008 D DAVID PUBLISHING

Comparison of Reconstruction System of the Flood and of the East Japan Great Earthquake

Hajime Inamura Department of Civil Engineering and Management, Tohoku Institute of Technology, Sendai 982-8577, Japan

Abstract: The natural disasters struck northeast between November 2010 and February 2011. The QLD (Queensland) State Government has established the Queensland Reconstruction Authority within one month. Recovery works in QLD seem to be very smooth, and transfer phase to the normal civil works is going to start. Eastern Japan also attacked by the great earthquake and following Tsunami on March 11, 2011. Japanese Government, however, established the Reconstruction Agency almost one year after the event. The reconstruction of the disaster area is still on the half way. This paper aims to find out the differences between two countries from the viewpoints of organization, planning process and financial conditions.

Key words: Disaster, earthquake, reconstruction works, international comparison, Japan and Australia.

1. Introduction 2. Outline of Disaster

The natural disasters attacked northeast Australia 2.1 Natural Disaster in Queensland, Australia between November 2010 and February 2011. The Between November 2010 and February 2011, catastrophic impacts of the flooding events devastated Queensland was struck by a series of natural disasters. central and southeast QLD (Queensland), and the Extensive flooding caused by periods of extremely destruction by Yasi saw more than 99% heavy rainfall, and destruction caused by a number of of Queensland declared as disaster affected. The QLD cells including cyclones Tasha, Anthony and State Government has established the Queensland Yasi have resulted in 99% of Queensland being Reconstruction Authority within one month. declared disaster affected. Eastern Japan also attacked by the great earthquake 37 people deceased from flood and cyclone-related and following Tsunami on March 11, 2011. Japanese events and three are still missing. 72 local government Government discussed very long time regarding the areas for disaster activated under the Natural Disaster budget and organization in charge of the reconstruction Relief and Recovery Arrangements—more than 99% works. The Reconstruction Agency has at last of Queensland. 59 rivers flooded with 12 breaking established on February 10, 2012. Although two years flood records. 19,000 kilometers of state and local has pasted from the March 11, 2011, most of roads affected. 29% of Queensland’s rail network municipalities have been making their effort only to damaged. More than $5 billion estimated for flood construct houses for residents, and their city/town restoration and reconstruction costs. Tropical cyclone centers are still in vast lands with tall grasses. Yasi was a category 5 cyclone and the first of that

magnitude to strike the Queensland coast. 54 coal

Correponding author: Hajime Inamura, Dr., professor, mines affected, amounting to 15 million tons of coal or research fields: regional planning, transportation economics, $2.5 billion loss [1]. logistics and disaster management. Comparison of Reconstruction System of the Queensland Flood and 453 of the East Japan Great Earthquake

2.2 East Japan Great Earthquake and Tsunami Fukushima Daiichi Nuclear Power Plant and a 10-km radius of the Fukushima Daini Nuclear Power Plant The 2011 earthquake off the Pacific coast of Tohoku were evacuated. was a magnitude 9.03 undersea mega thrust earthquake Early estimates placed insured losses from the that occurred at 14:46 JST (Japan Standard Time) on earthquake alone at 16.9 trillion yen (US $204 billion). March 11, 2011. It was the most powerful known The World Bank’s estimated economic cost was US earthquake ever to have hit Japan, and one of the five $235 billion, making it the costliest natural disaster in most powerful earthquakes in the world since modern world history [2]. record-keeping began in 1900. The earthquake triggered powerful tsunami waves that reached heights 3. The Queensland Reconstruction Authority of up to 40.5 meters in Tohoku’s Iwate Prefecture. On 3.1 Organization September 12, 2012, Japanese National Police Agency report confirmed 15,878 deaths, and 2,713 people still The authority (Figs. 1 and 2) was established missing, as well as 129,225 buildings totally collapsed. February 21, 2011 (tropical cyclone Yasi stroke the The earthquake and tsunami also caused extensive and Queensland coast on February 3, 2011). The severe structural damage in northeastern Japan, authority’s powers will be largely consistent with those including heavy damage to roads and railways as of the current coordinator general under State well as fires in many areas. Around 4.4 million Development and Public Works Organization Act 1971 households in northeastern Japan were left without and Sustainable Planning Act 2009. Local electricity and 1.5 million without water. The tsunami governments will retain principal responsibility for caused nuclear accidents, primarily the Level 7 local issues, including local planning policy. The meltdowns at three reactors in the Fukushima Daiichi authority will work with the state, the Commonwealth Nuclear Power Plant complex, and the associated Government, local authorities and industry and interest evacuation zones affecting hundreds of thousands of groups to plan, prioritize and get Queensland’s residents. Residents within a 20-km radius of the reconstruction moving.

Queensland Government Federal Government Disaster Reconstruction Cabinet Committee Commonwealth National Disaster Recovery Sub-committee of Cabinet Queensland Reconstruction Authority Central Agency Steering Committee National Disaster Recovery Taskforce

Australian Government Economic—Department of Employment, Reconstruction Inspectorate Economic Development and Innovation; Environment—Department of Environment and Resource Management; Building recovery—Department of Transport and Local Government Main Roads; Local recovery committees Community liaison and communication Local government authorities —Department of the Premier and Cabinet; Human and social—Department of Communities

Fig. 1 Queensland Reconstruction Authority governance map. Source: the state plan of Operation Queenslander, page 9 [1].

454 Comparison of Reconstruction System of the Queensland Flood and of the East Japan Great Earthquake

Fig. 2 Operation Queenslander. Source: the state plan of Operation Queenslander, page 16 [1].

3.2 Resourcing of the funds allocated under the NDRRA, as well as additional funds that are provided outside those It is estimated the reconstruction of flood affected arrangements, through the state budget process; areas will cost in the order of $5 billion, with damage  Contributions by corporate and private interests, sustained from tropical cyclone Yasi estimated to not-for-profit organizations or by foreign exceed $800 million. The funds to implement this state governments—including donor matching, that are plan will be drawn from a variety of sources: outside the premier’s Disaster Relief Fund;  The Commonwealth Government will contribute  The Disaster Management Act 2003 provides the up to 75% of funds allocated under the NDRRA regal framework for response to disasters. (Natural Disaster Relief and Recovery Arrangements). 3.3 Operation Queenslander The Commonwealth Government will provide its contribution to the reconstruction of QLD by means of The state plan: The state plan is the strategic National Partnership Agreement; guidance provided to ensure that milestones across all  The QLD Government will contribute the balance lines of reconstruction are met. It provides the

Comparison of Reconstruction System of the Queensland Flood and 455 of the East Japan Great Earthquake overarching reconstruction plan, the governance  inserts map of locality; framework and assigns key tasks to state level agencies  describes the location/nature of the population and stakeholders. (socio-economic, culturally and linguistically diverse Implementation plans: Implementation plans are groups) affected; produced by the six lines of reconstruction  describes any key towns or communities within sub-committees. They provide specific details the local government area; regarding how the achievement of key tasks assigned  summaries the industry or infrastructure in the by the state plan will occur. They direct the locality; reconstruction activities to be undertaken and initiate  summaries the damage to the community, the development and implementation of projects. environment, infrastructure and local economy of the Local plans: Developed by each local community, disaster; these plans help the authority to understand the Sample contents shown in the instruction are: recovery needs and priorities of the community. They (2) Initial response: summaries the actions will provide a local roadmap to assist the community to undertaken during the immediate response; reconnect, rebuild and improve. (3) Current situation: summaries impact assessments that have been conducted and recovery 3.4 Cross-Cutting Planning completed/undertaken to date; The authority has identified that there are a number (4) Overview of the local plan may include: of inter-relationships between industries, business, the  scope; environment and communities that have been  intent; adversely affected by the disasters, where the  goals; relaxation of these impacts cuts across implementation  guiding principles; or local plans. The authority and the DEEDI  key themes and priorities; (Department of Employment, Economic Development  sub-plans; and Innovation) will initiate specific planning and  risks. actions to resolve these issues. To take this forward, A local government will write their local plan stated DEEDI and the authority will co-chair reconstruction above, and be asked to attach a project list as shown in control groups designed to bring together government, the Table 1. related bodies and other significant participants as 4. Reconstruction Agency in Japan required to clarify emerging issues across lines of reconstruction and prepare coordinated decisions and Reconstruction Agency was established on February implementation. 10, 2012, almost one year after the March 11, 2011, based on the act on establishment of Reconstruction 3.5 Local Plan Template Agency, and headed by the prime minister (Fig. 3). The The local plan template has quite precise Great East Japan Earthquake, which took place on explanations and detailed structure. A local March 11, 2011, was indeed an unprecedented national government may able to make their planning report crisis. It was also a compound disaster of earthquakes, very easily if they just follow the instructions. tsunami and a nuclear accident and had a broad impact For example, the instruction of the background of a all over the nation. local plan is as follows: The agency was expected to lead the nation in the (1) Background: reconstruction process by promoting and coordinating

456 Comparison of Reconstruction System of the Queensland Flood and of the East Japan Great Earthquake

Table 1 Local plan template. Priority 1 2 3 4 Issue or need Short description of the issue or need that must be addressed Short description of the project or initiative Project or initiative to address need Is the project a repair or betterment activity? Who supports the project? Support What parts of the community and how many? Funding secured? Yes/no Has funding been secured? Yes/no

Estimated cost If yes, what source? Estimated cost Who will implement the project Who will be responsible for implementing the project Community Who and how many will it benefit? What are the community benefits? Accessed benefits Economy What are the economic benefits? How many will it help? Environment What are the environmental benefits? Other supporting information including the address/location of the project, Supporting assistance needed, work already commenced, estimated start and end dates, information involved stakeholders, involved recovery subcommittees Source: Queensland Reconstruction Authority, Operation Queenslander—local plan (website attachment with the name of Annex A—local template for councils [3]).

Reconstruction Agency: headquarters in response to the Great East Japan Earthquake

Head: prime minister Iwate Response Office (Morioka City): Deputy head: minister in charge of paarliamentary vice-minister for minister of land, reconstruction: chief cabinet secretary Members: infrastructure, transport and tourism All cabinet ministers Miyagi Response Office (Sendai City): Deputy chief cabinet secretary paarliamentary vice-minister for minister of cabinet office

Reconstruction Design Council in Response to Fukushima Response Office (Fukushima City): the Great East Japan Earthquake Chairman: Makoto Iokibe, president of the paarliamentary vice-minister for National Defense Academy of Japan minister of finance

Fig. 3 Reconstruction Agency of Japan [4]. the policies and measures of the government as well as university person and/or a vooluntary architect. They do supporting reconstruction projects to be implemented not have any guideline and/or template like by the local municipalities. Queensland. The agency, however, is too small to handle these Ministry of Land, Infrastructure, and Transportation activities. The agency has quite limited staff members has 2,000 expert engineers and planners in their who were picked up from related ministries of central Tohoku branch in Sendai where is the center of disaster government. Miyagi response office, for example, has area. However, no governmental experts in the above only 24 staff members. They cannot do anything but to organization helped a local government because acts check budget request documents of reconstruction plan and the guide for reconstruction work have limited the from municipalities. Local municipalities do not have area of their activities in order to protect autonomy of a enough staff, enough knowledge and experience to local government. Roles of prefectures have also been make a reconstruction plan. They totally relied on a very limited. The second article of the guideline is as

Comparison of Reconstruction System of the Queensland Flood and 457 of the East Japan Great Earthquake follows: “The prefectures shall implement necessary (4) Ports: measures targeting wide area and play a role of liaison 11 ports were affected. All ports were recovered by and coordination among the municipalities as well as December 2011; of supplement to municipalities’ administrative (5) Private houses: functions, when needed, upon capabilities of relevant Small numbers of houses were washed out. Some municipalities in the disaster affected areas” [5]. It 28,000 houses were submerged; means that a prefecture does not need to help the (5) Insurance: municipalities under their governmental area. It was Because insurance includes various kinds of claims, apparently wrong decision. Many disorganized plans it is very difficult to identify the personal houses were submitted that ignored the effects, benefits and related. According to various reports, however, about the cost of project, even feasibility of the projects. 60% of disaster insurance was private property related. 5. Current Situation of Reconstruction In a report in April 2012, a total of 131,935 insurance Works in Both Countries claimed had been made as a result of the floods and cyclone Yasi. The updated total estimated reserved 5.1 Queensland value was $3.78 billion. On March 28, 2012, an The reconstruction works of Queensland are shown estimated $2.81 billion had been paid. as follows: 5.2 Japan (1) State-wide pipeline of works: The state-wide reconciliation indicates that: The reconstruction works of Japan are shown  $951 million of works is in “works under below: assessment”; (1) Debris:  $3.5 billion of works is in “works in market”; Total amount of debris produced by disaster was  $6.1 billion of works is in “works in progress or 27.58 million tons, 27% or 7.45 tons has treated and delivered”. remaining by November 2012;  It means that more than 90% of works have been (2) Coast embankment: finished or are going to be finish; 471 coastal embankments were damaged. 26% or (2) Progress of lines of reconstruction: 121 sites have started recovery works; Status of progress to complete on for all key tasks (3) National highway: activated as a result of the 2010~2011 and 2011~2012 1,126.6 km of national highway was damaged. 97% events for the six lines of reconstruction are or 1,161 km of highway have already reconstructed by demonstrated in Fig. 4. It shows the disaster events in July 2012. Some 862 km of new highway for year 2010~2011 and 2011~2012. Regarding the reconstruction of disaster region has planned. 56% or events in year 2010~2011, almost all key tasks have 553 km of highway has completed or under been finished or are going to be finish. The slowest construction by mid November 2012; recovery can be seen in environment line. However, it (4) Railway: even shows 86% of completion rate; 2,309.8 km of railway was damaged. 89% or 2,046.6 (3) Road and railway: km have already reopened by July 2012; Department of TMR (Transport and Main Roads) (5) Ports: recovered 8,482 km of main road out of affected 101 important port facilities were damaged. 78% or 9,170 km. And 4,596 km of railway has been 79 facilities have started recovery works by August recovered out of 4,748 km in one year; 2012;

458 Comparison of Reconstruction System of the Queensland Flood and of the East Japan Great Earthquake

Fig. 4 Status of progress to complete on for all key tasks activated for the six lines of reconstruction. Source: Queensland Reconstruction Authority, monthly report [6].

(6) Private houses: implementation of the six lines of reconstruction, while 397,390 private houses were completely destroyed Japanese Government asks municipalities to plan and or non-livable, and another 731,680 houses were implement reconstruction works, and the authority partially destroyed. Some 21,000 houses have only takes a role of valuation and adjustment of planned to construct by local government. 27% or projects. The six lines of reconstruction are fully 5,651 houses have started construction works by supported by each related department of the state November 2012. 253 residential sites have newly government, then adjustment of projects and allocation planned to develop. Only 3% or seven sites have started of budgets seems to be very smooth. to develop. Third, the Department of Local Government and Planning will support local governments to prepare and 6. Conclusions implement local plans. However, Japan does not have First, the head of reconstruction such a system. The authority is working with regionally organization—Reconstruction Authority, in Japan, is based informal planning assistance teams established the prime minister—Noda Y., while the chair of to provide assistance to local governments for the Queensland Reconstruction Authority is the major development of their local plan. This assistance team is general of QLD—Mick Slater. An organization must just the same as a system in Japan. However, the local be near-by the disaster area which can easily plan of QLD stated that these teams are composed of understand the situation of the area and be well regional staff from the DLGP (Department of Local understood by the people in the affected area. Government and Planning), DoC (Department of Second, the Queensland Reconstruction Authority Communities), DEEDI (Department of Employment, drives forward reconstruction plans and the Economic Development and Innovation) and DERM

Comparison of Reconstruction System of the Queensland Flood and 459 of the East Japan Great Earthquake

(Department of Environment and Resource and able to be revised if necessary. The guidelines for Management). This point is quite different from Japan. reconstruction of Japan and other related documents do The basic guidelines for reconstruction of Japan not have any such a guide at all. The local plans of stated below: In principle, the main administrative municipalities are completely different one by one actors accountable for reconstruction shall be even in style of document. The plans do not mention municipalities, as the municipalities are closest to local about priority of a project, effects/benefits of a project residents and best understand characteristics of the and rationality of the budget. regions. It means that the upper organization such as a Postscript prefecture and branches of the central government cannot officially help the municipalities’ work (the It is very obvious the organization and system of central government worries about an excess guidance reconstruction from the disaster in QLD is much better to force policies of the upper organization). than those of Japan. It does not mean Japanese is Municipalities, therefore, have to do everything by inferior to Australian in this aspect. The reasons behind themselves. There is no direct help from other were pointed out as follows: organization as well as prefectures’ government. A Different administration system: Australia has six municipality often visits the local branch of central states and two major mainland territories. A state has government such as the Tohoku Regional Bureau of the power to have own laws, has enough staffs with MLIT (Ministry of Land, Infrastructure, Transport and their specialties. The prefectures in Japan are deeply Tourism) and consults some related projects with them. depended on the central government who do not have It is very inefficient manner. enough staffs to build the plans, to design facilities and Fourth, cross-cutting planning stated the above. The to implement the reconstruction projects. DEEDI and the authority will co-chair reconstruction Acknowledgements control groups to clarify emerging issues across lines of reconstruction and prepare coordinated decisions and We have got most of information in this paper implementation. There is no such an adjustment or through the internet. The Queensland Reconstruction coordination system among adversely affected Authority, in particular, provides very precise and reconstruction projects. detailed information on their web pages which includes Fifth, the state plan stated that the authority will more than 1,000 pages of documents, figures, and finish their reconstruction works by 2013 and the tables. We still had many questions and wanted to get remaining tasks will be transferred to normal additional information about it. The authors made a trip government business. The resident believed the ordinal to and in Queensland, and talked with staffs of QLD Government will take over everything the officers in concern. They were very friendly and after the operation end. The reconstruction agency in gave us further information and documents. They are Japan does not have such a regulation, then, no one as follows: knows who will be in charge of after projects. Queensland Reconstruction Authority: Richard Sixth, the biggest difference can be observed in the Wilson: chairman; Mike Shapland: regional director, instructions to formulate various reconstruction south eastern region, Emergency Management of projects by local government. The QLD authority Queensland, Department of Community Safety; Mark prepared a set of instruction of project formulation Drew: director, NDRRA compliance of Project Contro; including a very precise template. The table of contents Vas Katsigiannis: senior reporting officer, reporting seems to be brief and complete, easily accessed, clear team; Jo Beadle: director, Community Recovery,

460 Comparison of Reconstruction System of the Queensland Flood and of the East Japan Great Earthquake

Community Recovery Branch Operations Division, -queenslander-state-plan-full.pdf. [2] Ministry of Economy, Trade and Industry. 2012. “Japan’s Department of Communities, Child Safety and Challenges Towards Recovery.” Ministry of Economy, Disability Services; Michele Robinson: director, Trade and Industry. Accessed March 10, 2016. operations and project delivery; Graeme Milligan: http://www.meti.go.jp/english/earthquake/nuclear/japan-c general manager, environment liaison. hallenges/pdf/japan-challenges_full.pdf. [3] Queensland Reconstruction Authority. 2011. “Operation The University of Queensland: Dr. John Minnery, Queenslander—Local Plan.” Queensland Reconstruction associate professor of planning, School of Geography, Authority. Accessed March 10, 2016. Planning and Environmental Management; Dr. Iraphne http://www.qldreconstruction.org.au/publications-guides/ Childs, lecturer, School of Geography, Planning and reconstruction-plans/local-plan. [4] Reconstruction Agency of Japan. 2012. “The Environmental Management; Dr. Iderlina B. Reconstruction Agency—the ‘Control Tower’.” Mateo-Babiano, lecturer of planning, School of Reconstruction Agency of Japan. Accessed March 10, Geography, Planning and Environmental Management. 2016. http://www.reconstruction.go.jp/english/topics/Ab Authors would like to extend heartfelt thanks to all out_us/. [5] Reconstruction Agency of Japan. 2011. “Policies and of the persons above. Measures of Japanese Government.” Reconstruction References Agency of Japan. Accessed March 10, 2016. http://www.reconstruction.go.jp/topics/doc/20110729hou [1] Queensland Reconstruction Agency. 2011. “Operation shin.pdf. Queenslander: The State Community, Economic and [6] Queensland Reconstruction Authority. 2013. “Operation Environmental Recovery and Reconstruction Plan Queenslander: Section Four of Progress Reports.” 2011-2013.” Queensland Reconstruction Agency. Queensland Reconstruction Authority. Accessed March Accessed March 10, 2016. 10, 2016. http://www.qldreconstruction.org.au/u/lib/cms2/ http://www.qldreconstruction.org.au/u/lib/cms2/operation ceo-report-jan-13-04.pdf.