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Governance for Disaster Resilient Society in JAPAN

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Governance for Disaster Resilient Society in JAPAN Lesson from the 1995 Hanshin Awaji Earthquake and Japan’s Disaster Reduction Policy JICA, Human Resource Development Programme for Disaster Reduction in Pakistan October 1st, 2019 Ryosuke Aota, Professor Graduate School of Disaster Resilience and Governance University of Hyogo, JAPAN Purpose of the Lecture 1. Japan has had many natural disasters. Especially, the 1995 Great Hanshin Awaji Earthquake has given the society huge shock. 2. It changed not only disaster management system, but also gave the concept to disaster resilient society. 3. The lesson from that disaster has become the base for Japan’s disaster management. (1) Overconfidence in modern technology and lack of disaster management policy (2) Immediate and flexible emergency response (3) Long term and wide range of recovery and reconstruction (=build back better) (4) Variety of needs and lack of government capacity (5) Self, mutual and public support (6) Disaster resilient society against future huge disasters Japan is a Disaster Country (prone to natural disasters like earthquake, tsunami, typhoon, land slide and snowstorm) year Disaster Dead and missing Big disasters in Japan (dead and missing with more than 1932 Mikawa Earthquake 2,306 1,000 after 1932, 1932 Makurazaki Typhoon 3,756 Re : White Paper on Disaster 1946 Nankai Earthquake 1,443 Management, Cabinet Office 2016) 1947 Katherine Typhoon 1,930 1948 Fukui Earthquake 3,769 • There used to be huge flood 1954 Huge Rainfall in Kyushu, Shikoku, 1,013 disasters in the past. Chugoku • We had confidence in 1954 Huge rainfall in Wakayama 1,124 overcoming water related disasters by developing hard 1955 Toyamaru Typhoon 1,761 infrastructure. 1958 Kanogawa Typhoon 1,269 • We had forgotten huge 1959 Isewan Typhoon 5,098 earthquake disasters until Hanshin Awaji 1995 Hanshin Awaji Earthquake 6,437 2011 East Japan Earthquake and Tsunami 22,010 Recent Earthquake Disasters in Japan (after the Hanshin Awaji) 1. Tottori West Quake (Jun. 2000, M7.3) 2. Geiyo Qauke (Mar. 2001, M6.7) 3. Miyagi Offshore Quake (May 2003, M7.1) 4. Tokachi Offshore Quake (Sep. 2003, M8.0) 5. Niigata Chuetsu Quake (Oct. 2004, M6.8) 6. Fukuoka West Offshore Quake (Mar. 2005, M7.0) 7. Noto Peninsula Quake (Apr. 2007, M6.9) 8. Iwate/Miyagi Inland Quake (Jun. 2008, M7.2) 9. Great East Japan Quake (Mar.2011, M9.2) 10. Kumamoto Quake (Apr. 2016, M7.3) 11. Northern Osaka Earthquake (Jun. 2016, M6.1) 12. Hokkaido Eastern Iburi Quake (Sep. 2018, M6.7) • Japan has entered seismic activity period. • Many inland earthquakes are said to be signal before huge disasters in the ocean trench. Japan’s Destiny against Earthquake Disaster Nankai Trough Quake 102 years Tonankai Nankai Quake Quake Tokai102 Quakeyears 102 years 147 years 32 hours later 90 years 2 years later Future Earthquake ( Chart by the Cabinet Office ) Future Huge Disasters in Japan Nankai Trough Earthquake (Event probability: 70-80% within 30 years) - Estimated numbers of deaths/missing persons: 323,000 (2016) to 231,000 (2019) - Estimated total collapsed or burned houses: 2,386,000 (2016) to 2,190,000 (2019) - Estimated damage: 1.7 trillion USD Tokyo Metropolitan Earthquake (Event probability: 70-80% within 30 years) - Estimated numbers of deaths/missing persons: 23,000 - Estimated total collapsed or burned houses: 610,000 - Estimated damage: 1 trillion USD We aim the damage will be reduced by 50 to 80% through disaster risk reduction activities in the next ten years from 2014. The Great Hanshin Awaji Earthquake in 1995 (1) Date 5:46 am in January 17th, 1995 (2) Damage ・ Number of dead and missing : 6,435 ・ Number of injured : 43,792 ・ Number of totally collapsed or burned houses : 111,054 ・ Number of partially collapsed or burned houses :144,341 ・ Cuts in water supply : more than 1.3 million houses (at the maximum) ・ Failure of power supply : around 2.6 million houses (〃) ・ Interruption of gas supply : around 860,000 houses (〃) ・ Disconnected telephone lines : more than 300,000 lines (〃) Overconfidence in Modern Technology and Lack of Disaster Management 1. Paralyzed urban infrastructure (Challenging issue) • Collapsed Hanshin Expressway(～Sep. 30th,1996) • Railway service interruption (19 lines, 376.5km) • Less anti-seismic buildings and houses (against Japan’s intensity 5, old building code before 1981) (Lesson) • Anti seismic infrastructure, building code against Japan’s intensity 7 • Public transportation, school, facility (=duty) • Private house (= encouragement, subsidy) Overconfidence in Modern Technology and Lack of Disaster Management 2. Lack of preparation (Challenging issue) • Misunderstand about earthquake disaster (= It never hits in Kansai Area.) • Overconfidence in technology and hard infrastructure (= The infrastructure always can protect us.) • Less emphasis on soft measures • No preparation for post-disaster stage (= No idea of what to do, Much more confusion than it can be expected.) (Lesson) • Literacy for disaster risk reduction • Public awareness and disaster education • Community empowerment, government capacity building Immediate and Flexible Emergency Response (by Mr. Toshitami Kaihara, Former Governor of Hyogo) 1. Lack of understanding earthquake disaster → We have strengthened disaster management system against earthquake disaster. 2. Lack of staff on night and holiday duty • Only a few staff had reached the government headquarter building within 30 minutes after the disaster. → We have provided duty system all the time throughout year and made special apartments for government staff. 3. Lack of information and damage assessment • The prefecture government could neither collect information from municipality governments, nor sent it to the national government. • The government was not able to comprehend the whole image of the disaster. → We have developed information and damage assessment system. 【disaster standby lodging】 Immediate and Flexible Emergency Response (by Mr. Toshitami Kaihara, Former Governor of Hyogo) 4. Less capacity of disaster management center • Cooperation among different stakeholders (police, firefighting agency), self-defense forces was not enough. → We have newly built disaster management center where we could share information among relevant organization. 5. Emergency traffic route • Some roads were damaged or paralyzed. Other roads were crowded by many private cars, which prevented rescue and relief vehicles from passing through. 【disaster management center building】 → We have set emergency traffic route in the case of huge disaster. 6. Volunteer coordination • Although many volunteers rushed to the local governments, we had not had well coordinating system. → We have established “voluntary plaza or center” to coordinate volunteers. 【secretariat drill】 Long Term and Wide Range of Recovery and Reconstruction (= Build Back Better) B.B.B. covers all areas of the society ! 1. Housing (shelter :7 months, temporary house :5 years, public housing :aging) 2. Community (continued) 3. Livelihood (continued) 4. Medical, Health, Welfare (continued) 5. Industry, Employment (10 years) 6. Education (10 years) 7. Culture (10 years) 8. Infrastructure (3 years) 9. Disaster management (5 years) Lesson : Evacuation Place 1. Evacuation center (school, public facility) (1) Lack of space and privacy (Challenging issue) • 317,000 evacuees at 1,138 places (at maximum, 2 weeks after that quake) •Much stress, especially for women (ex. difficult to change clothes), children, aged, disabled and other vulnerable people • Easy to cause infectious disease • Long period (at maximum 8 months) (Lesson) • Keep privacy to separate by cardboard or curtain • Special care service to each individual need (New challenging issue) • Accommodation at private car (economic syndrome) or at broken house Lesson : Evacuation Place (2) Lack of consideration on elderly or disabled people (vulnerability) (Challenging issue) • Number of toilets were not enough. Elderly refrained from drinking water, which caused dehydration and other illness. • Family with disabled gave up staying at the place to go back to their collapsed house (Lesson) • Make temporary bed by cardboard • Care by medical staff • Special evacuation place by making use of welfare facility Lesson : Evacuation Place (3) Less food and daily commodities (Challenging issue) • Slow delivery, delivery with mismatch or overlap • Heavy traffic jam or road collapse • One pattern food(bento or bread), less consideration on nutrition • Difficult to sort out piles of commodities (Lack of know-how for delivery) (Lesson) • Hot cooked meal by volunteers or SDF (Self Defense Forces) • Ensure food and commodities from makers or supermarkets (agreement) • Manpower by delivery company • Arrange between mass delivery by the national government and detailed sort by the local government. Lesson : Temporary Housing 2. Temporary House • 48,300 houses in 634 places • Rental fee is free, but pay for use of essential utilities (electricity, gas and water supply) (Challenging issue) (1) Difficult to ensure sites for temporary houses • Less space in urban or flat areas, some sites were in remote areas (2) Difficult to complete many temporary houses in short term • It took seven months to complete all of the temporary houses (3) Divided community • Many applications, Drawing lots to decide who will reside and where they will be locate (4) Full of stress • Loss of family, property or job • Unfamiliar area, new relationship, uncertainty about future • Sleeplessness, alcoholism, suicide, isolated death Lesson : Temporary Housing (Lesson) (1) Community center • Tea
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