2014/6/7 1 1 Shohei BENIYA Graduate School of International Cooperation Studies (GSICS) and Interfaculty Initiatives in Social Sciences (IISS) Current Japanese governmental disaster management system 2 １．Outline of Japanese Governmental System Local governments Three layers of Japanese Governmental System 3 National Government (Central Government) 47 Prefectural Governments 1719 Cities, Towns, Villages : Municipal Government (Prime Minister is elected by the National Diet) (Governor is elected by the residents) (Mayor is elected by the residents) 4 Municipality(City, Town, Village) • Municipality is a first responder for disaster management. • Fire Agency is a division of Municipality. Some fire agencies are organized by multi municipalities. • Roles of fire agency are fire extinction, rescue, ambulance transport, and disaster prevention. • Disaster management section of municipality belongs to fire agency in some municipalities. (mainly belongs to main office of municipalities divided fire agency) • 20 great cities called “ordinance-designated city”(Seirei sitei toshi) have strong authorities like prefectures. 5 Mayor Deputy Mayor Chief Executive for Disaster Management Disaster Management Department Fire chief General Department Citizen Department Industrial Department Health and welfare Department Environmental Department City Planning Department Public Works Department (Other Department and Local Offices) Fire and Disaster Management Bureau Superintendent of the Board of Education Board of Education Example of Municipality Organization 6 Prefecture • Roles of prefecture are assistance for municipalities and coordination with central government. • Prefecture support municipalities’ businesses that require expertness or coordination in broad areas. • Police is a division of prefecture. But governor have restricted authority for police. Some part of the authority for police is belong to the central government. • Police is important player of disaster management. Their roles are: – Evacuation guidance and regulation of traffic – Rescue – Inquest of damaged body – Maintenance of order in society, security
Transcript
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Shohei BENIYA
Graduate School of International Cooperation Studies (GSICS)
and Interfaculty Initiatives in Social Sciences (IISS)
Current Japanese governmental
disaster management system
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１．Outline of Japanese Governmental System
Local governments
Three layers of Japanese
Governmental System
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National Government (Central Government)
47 Prefectural Governments
1719 Cities, Towns, Villages :
Municipal Government
(Prime Minister is elected by the National Diet)
(Governor is elected by the residents)
(Mayor is elected by the residents)
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Municipality(City, Town, Village) • Municipality is a first responder for disaster
management.
• Fire Agency is a division of Municipality. Some fire
agencies are organized by multi municipalities.
• Roles of fire agency are fire extinction, rescue,
ambulance transport, and disaster prevention.
• Disaster management section of municipality belongs
to fire agency in some municipalities.
(mainly belongs to main office of municipalities divided
fire agency)
• 20 great cities called “ordinance-designated city”(Seirei
sitei toshi) have strong authorities like prefectures.
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Mayor Deputy Mayor
Chief Executive for
Disaster Management
Disaster Management Department
Fire chief
General Department
Citizen Department
Industrial Department
Health and welfare Department
Environmental Department
City Planning Department
Public Works Department
(Other Department and Local Offices)
Fire and Disaster Management Bureau
Superintendent of the
Board of Education
Board of Education
Example of Municipality Organization
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Prefecture • Roles of prefecture are assistance for municipalities and
coordination with central government.
• Prefecture support municipalities’ businesses that
require expertness or coordination in broad areas.
• Police is a division of prefecture. But governor have
restricted authority for police. Some part of the
authority for police is belong to the central government.
• Police is important player of disaster management.
Their roles are:
– Evacuation guidance and regulation of traffic
– Rescue
– Inquest of damaged body
– Maintenance of order in society, security
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Governor Vice Governor
Chief Executive for
Disaster Management
Disaster Management Department
Chief of police
General Administration Department
Planning & Coordination Department
Social Affairs & Environment Department
Social Health & Welfare Department
Commerce, Industry & Labour Department
Agriculture, Forestry & Fishery Department
Public Works Department
(Other Department and Local Offices)
Police department
Superintendent of the
Board of Education
Board of Education
Governor’s Policy
Department
Example of Prefecture Organization
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Central Government
• Disaster Management Department of Cabinet Office is a
leading and coordination organization for disaster.
(But the department has very small manpower. )
• Fire agency, police agency, coast guard and ministry of
defense (JSDF) play important roles especially at rescue
phases.
• Ministry of Land, Infrastructure, Transport and Tourism
(MLIT) has very strong power at mitigation phase and
recovery phases (reconstruction of infrastructure) with
big budget and much human resource.
• Reconstruction Agency was established after the East
Japan earthquake for coordination.
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CABINET
(Cabinet Secretariat)
Cabinet Office National Public Safety Commission
(National Police Agency)
Reconstruction Agency
Ministry of Public Management, Home Affairs, Post and Telecommunications
Fire Agency
Ministry of Justice
Ministry of Foreign Affairs
Ministry of Finance
Ministry of Education, Culture, Sports, Science and Technology
Ministry of Health, Labor and Welfare
Ministry of Economy, Trade and Industry
Ministry of Land, Infrastructure, Transport and Tourism
Ministry of Environment
Ministry of Defense
Japan Meteorological Agency
Japan Coast Guard
Disaster Management Department
Minister of
State for
Disaster
Management
National Government
Prefectural Governments
Municipalities(Villages, Towns, Cities)
Damaged Communities, Survivors
Bottom up Disaster Management System in
Japan
Association of
Prefectural
Governors
Non damaged
Municipalities
and Prefectures
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Disaster management planning system
Prefectural
Level
National
level：
Municipal
level
Prime
minister
Governor
Mayor
Central Disaster
Management Council
Basic Disaster
Management Plan
Prefectural Disaster
Management Council
Municipal Disaster
Management Council
Local Disaster
Management Plan
Local Disaster
Management Plan
Leader
in charge
Committee
in charge
Plan of Disaster
Management
Public
Corp
ora
tions
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3．Legal system
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Legal system for Disaster Management
• Disaster Countermeasure Basic Act
(Natural hazard, Big accident) – Basically municipalities cope with disaster firstly.
– If municipalities can not take enough actions to the disaster, prefectural government and national government support municipalities to cope with the disaster. (Bottom up system)
• Civil Protection Act (Armed attack, Terrorism) – National government has prime responsibility to cope with
these armed incidents. (Top down system)
– Main Role of local governments are evacuation guidance for residents and establishment of shelters.
Japanese disaster management system is mainly based on two lows
according to hazards such as natural disasters, accident, and terrorism.
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Disaster Countermeasure Basic Act
Disaster Relief Act
Building Standard Law
Act on Special Measures for Large-scale Earthquakes
Act on Promotion of the Earthquake-proof Retrofit of Buildings
Basic Disaster Management Plan
Act on Special Financial Support to Deal with Extremely Severe Disasters
Act on Support for Livelihood Recovery of Disaster Victims
Hazard
Natural Disaster Management Planning System
based on Disaster countermeasure basic act
■National Level
• Basic Disaster Management Plan
( by the Central Disaster Management Council)
• Disaster Management Operation Plan
(made by each designated Governmental organization)
■Local Level
• Local Disaster Management Plan
(made by each prefecture and municipal disaster
management council) 16
The Hanshin Awaji EQ in 1995 and the revision
of Disaster Countermeasures Basic Act
• On site Headquarter of central government
• Request for disaster assistance of SDF from
municipalities (not only prefecture)
• Mutual aid between local governments
• Community-based voluntary organization for disaster
prevention
• Consideration for the vulnerabilities
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Amendment of the National Basic Disaster
Management Plan for Disaster Prevention in 2011
• Considering countermeasures, maximum scale
earthquake and tsunami should be assumed.
• Two level of countermeasures against tsunami :
Evacuation system for the maximum scale tsunami,
dikes for the periodically occurring tsunami.
• Tsunami-resistant city planning.(Land use, Tsunami
evacuation buildings)
• Dissemination of knowledge and education against
disaster
• Improvement of quality of life in evacuation places,
consideration of the vulnerabilities’ needs
• Improvement of announcement of warning 18
Revision of Disaster Countermeasures
Basic Act on December, 2012 and 2013
• Prefectural government and central government can
cope with the great disasters in wide fields substitute
for heavily damaged municipalities.
• Improvement of education
• Listing and sharing information about the
vulnerabilities for evacuation
• Improvement of quality of life and environment in
evacuation places
• Cooperation of public sector, private company and
voluntary organization
• Promotion of preparedness and mitigation
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4．Roles of Local governments
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Mitigation
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Examples of Mitigation countermeasures
• Improvement of Seismic retrofitting of buildings,
housings, infrastructures and public facilities.
• Improvement of stockpile such as food, daily goods and
medical goods.
• Making damage prediction and hazard maps
• Making action plan for disaster mitigation
• Education for disaster prevention and mitigation to
residents, companies and schools.
• Conducting evacuation training
• Building shelters, evacuation space or alarm system
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Preparedness
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Examples of Preparedness countermeasures
• Planning regional disaster management plan, business continuity plan (BCP or COOP) and
manuals
• Organizing emergency office and communication facilities
• Conducting exercises for disaster response or training for public staffs
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Regional disaster management plan
• Article 40 of Disaster Countermeasure Basic Act
obliges local government to make regional disaster
management plan.
• Prefectural/Municipal Disaster Management Council
is responsible to make the plan.
• In general, regional disaster management plan is
divided for each hazards such as earthquake, flood,
and nuclear accident.
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Contents of regional disaster
management plan Main contents
General policy
・Objective and policy, regional condition, damage prediction,
Mitigation
and
Preparedness
・Disaster prevention community planning, improvement of seismic retrofitting, Stock, Exercise for disaster prevention, education for community based voluntary organizarion, etc
Response ・Emergency operation center, flow of information, prevention of secondary disaster, request for assistance, alarm and evacuation, rescue,traffic control, emergency transportation, medical care, debris control, damage survey, Volunteer center, temporary housings, etc
Recovery ・Disaster recovery plan, assistance for survivors and damaged companies, reconstruction of infrastructure and housing, etc
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Disaster prevention base. Disaster prevention base is a center of rescue and response operation for local
government, fire agencies, self defense force, and so on.
The base have functions of stock yard, distribution base of food and goods, staging
area, rescue transportation by ambulance car and helicopters and so on.
There are 6 bases in Hyogo pref.
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Integrated on site disaster exercise ・ National government, Local governments, self defense force,
designated public corporations and NPOs hold integrated on
site disaster exercise to simulate response against disaster.
・ The exercise was well programmed not to go bad response.
Therefore, there are criticism for the exercise.
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Table top disaster exercise
・ Headquarter of emergency office of national government or local government hold table top disaster exercise at
meeting room once or twice a year.
・ Participants of table top disaster exercise are not informed
about the scenario of disaster. So it is good exercise for
decision making at a time of disaster.
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Response
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If a disaster occurs?
– Setting a emergency office to organize
governmental response
– Request assistances for central government, Self
defense force and other local government
– Warning alarms to evacuate from tsunami or flood
– Collecting rough information to catch outline of
damaged areas
– Publication to damaged people and other area
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Emergency Office
• It is determined based on Article 23 of Disaster Countermeasure Basic Act and local disaster management plan.
Director-general
(Governor or Mayor)
Headquarter of emergency
office （ emergency
management division）
Health welfare division
Assistance for survivors division
Food and goods
distribution division
Infrastructure
reconstruction division
Assistance for life
recovery division
・・・
Executive meeting for
Emergency management
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Emergency office just after a quake
(Niigata chuetu earthquake in 2004)
新潟県中越地震 川口町
DRI撮影
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Emergency office just after a quake
(Niigata chuetu earthquake in 2004)
DRI撮影
新潟県中越地震 34
Reference : Kobe city local disaster management plan in 2002
Works of emergency office
Case of Kobe city • Disaster countermeasures office establishment-/ management
government building security
• Personnel aid
• Gathering disaster information
• Public relations
• Fire fighting
• Medical-supplies
• Broader-based mutual aid
• Overseas support acceptance
• Evacuation guidance
• Shelter establishment and management
• Emergency water supply
• Food and goods supply
• The health secured measure against food
• Support person support required
• Foreigner correspondence
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• Road disaster emergency correspondence
• Recovery operation of a city subway and bus system
• Cremation of dead body
• Disaster debris treatment
• Treatment of human waste
• Lifeline restoration (water service and sewer)
• Investigation and surveillance of prices
• Public donation acceptance and distribution
• Issuing Damage certificate
• Building temporary housings
• Emergency loan for survivors and damaged small businesses
• Countermeasures against environment and sanitation
• Setting of Volunteer center
Reference : Kobe city local disaster management plan in 2002
Official assistance for municipalities in
Response phase
Municipalities
Central
Government
県 Prefectual
Governments
B
・
・
・
Local
EO
Request for Assistance A
Othre Municipalities, prefectures
Mutural aid
Request for Assistance
Coast
Guard
SDF
Military
Team
Police
Aid
Team
Fire
Diffence
Aid
Team
Local
EO
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Recovery
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• Making grand design and recovery plans: a comprehensive plan and plans in various fields
• Reconstruction of public facilities and infrastructures
• Support for survivors and damaged companies.
• Coordination of public and private activities for recovery
• Financial administration for recovery (ex. issue
