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LEARNING FROM
MEGADISASTERS
LESSONS FROM EAST JAPAN EARTH-
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·-Public Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure Authorized
Learning from Megadisasters
Federica Ranghieri and
Mikio Ishiwatari, editors
Learning from
Megadisasters
Lessons from the Great East Japan Earthquake
Washington, DC
© 2014 International Bank for Reconstruction and Development / The World Bank
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ISBN (paper): 978-1-4648-0153-2
ISBN (electronic): 978-1-4648-0154-9
DOI: 10.1596/978-1-4648-0153-2
Cover photo: © Kazuyoshi Nomachi. Used with the permission of Kazuyoshi Nomachi. Further permission required for
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Library of Congress Cataloging-in-Publication Data has been requested. v
CONTENTS
Forewords xiv
Acknowledgments xvii
Abbreviations xxi
Overview: Lessons from the Great East Japan Earthquake 1
PART I: STRUCTURAL MEASURES 23
Chapter 1: Structural Measures Against Tsunamis 25
Chapter 2: Building Performance 33
Chapter 3: Hydrometeorological Disasters Associated with Tsunamis and Earthquakes 43
Chapter 4: Multifunctional Infrastructure 49
Chapter 5: Protecting Signifi cant and Sensitive Facilities 55
PART II: NONSTRUCTURAL MEASURES 63
Chapter 6: Community- Based Disaster Risk Management 65
Chapter 7: Disaster Management Plans 71
Chapter 8: The Education Sector 77
Chapter 9: Business Continuity Plans 83
Chapter 10: Tsunami and Earthquake Warning Systems 91
Chapter 11: Evacuation 99
Chapter 12: Urban Planning, Land Use Regulations, and Relocation 109 Chapter 13: Green Belts and Coastal Risk Management 117 vi | CONTENTS
PART III: EMERGENCY RESPONSE 123
Chapter 14: Mobilizing and Coordinating Expert Teams, Nongovernmental Organizations, Nonprofi t Organizations, and Volunteers 125
Chapter 15: Emergency Communication 133
Chapter 16: Management of Logistics Chain for Emergency Supplies 143 Chapter 17: Supporting and Empowering Municipal Functions and Staff 149
Chapter 18: Evacuation Center Management 155
Chapter 19: Ensuring Sensitivity in Response and Equity in Recovery 161
PART IV: RECONSTRUCTION PLANNING 169
Chapter 20: Infrastructure Rehabilitation 171
Chapter 21: Reconstruction Policy and Planning 181
Chapter 22: Transitional Shelter 193
Chapter 23: Debris Management 203
Chapter 24: Livelihood and Job Creation 211
PART V: HAZARD AND RISK INFORMATION AND DECISION MAKING 221 Chapter 25: Risk Assessment and Hazard Mapping 223 Chapter 26: Risk and Damage Information Management 233
Chapter 27: Risk Communication 241
PART VI: THE ECONOMICS OF DISASTER RISK, RISK MANAGEMENT,
AND RISK FINANCING 247
Chapter 28: Measuring the Cost- Effectiveness of Various Disaster
Risk Management Measures 249
Chapter 29: Earthquake Risk Insurance 257
Chapter 30: Economic Impact 269
Chapter 31: Financial and Fiscal Impact 283
Chapter 32: Strategies for Managing Low- Probability,
High- Impact Events 297
PART VII: RECOVERY AND RELOCATION 305
Chapter 33: Relocation in the Tohoku Area 307
Chapter 34: Reconstruction in the Tohoku Area 317 Chapter 35: Cultural Heritage and Preservation 323 Chapter 36: The Recovery Process in Fukushima 331 Chapter 37: Spreading the Word: Raising Capacity for Disaster
Risk Management in Developing Countries 345
Index 351
CONTENTS | vii
BOXES Box 1.1 The enormous tsunami walls of Taro, Miyako City, Iwate Prefecture 26 Box 2.1 A simple technical guideline and its dissemination through the building permit process in Indonesia 40 Box 2.2 Tsunami evacuation shelters applying the Japanese technical guideline 41 Box 4.1 Evacuation stairs to the East Sendai Expressway 52
Box 5.1 An angel"s voice 56
Box 5.2 The tsunami"s impact on the Onagawa nuclear power station 59
Box 8.1 Kamaishi Miracle 78
Box 9.1 Accident at a microchip plant 84
Box 9.2 How the GEJE a? ected payment and settlement systems and fi nancial institutions 87
Box 10.1 Tsunami warnings in Japan 93
Box 10.2 Community-based warning in Sri Lanka 97 Box 11.1 Stone monuments transfer local knowledge to the next generations 100 Box 11.2 Tsunami evacuation routes for schools 101
Box 11.3 The Okawa tragedy 101
Box 13.1 Takatamatsubara and the hope of recovery 118
Box 15.1
Ringo ("apple") radio of Yamamoto Town, Miyagi Prefecture 139 Box 16.1 The negative e? ect of goods sent with goodwill 146 Box 18.1 Information is both critical and comforting 158
Box 19.1 Single Father Japan 164
Box 19.2 Save the Children 166
Box 20.1 Rapid rehabilitation of sewerage system in Rikuzentakata City 177 Box 21.1 Basic guidelines for reconstruction after the GEJE 183 Box 21.2 Land-use and population relocation strategies 186 Box 22.1 The case of community centers at transitional shelter sites after the Kobe earthquake 197 Box 22.2 International examples of creative, temporary-to-permanent housing 199 Box 23.1 Preliminary fi ndings of the United Nations Environment Programme"s (UNEP) expert mission on Japan"s earthquake waste 209 Box 24.1 Livelihood options in humanitarian assistance 214 Box 25.1 Principles for selecting large- scale earthquake scenarios and the actual earthquakes selected 224 Box 26.1 Crowd- sourced damage assessment using remotely sensed data in Haiti and New Zealand 237 Box 29.1 Innovative catastrophe risk fi nancing: Capital markets protect
Japanese farmers against earthquake 260
Box 29.2 Agriculture and fi shery insurance 262
Box 30.1 Government of Japan"s estimates of the economic impact of the GEJE 270 Box 30.2 Measures to address the double- debt problem 275 Box 35.1 Symbol of reconstruction: Storehouse of Eiichi Homma family,
Ishinomaki City, Miyagi Prefecture 326
Box 35.2 Kimura family documents washed ashore, Onagawa City,
Miyagi Prefecture 327
Box 35.3 Collecting and preserving disaster materials 328
FIGURES
Figure O.1 Summary of fi ndings and lessons learned from the project 3 Figure O.2 The many roles of the community in multihazard DRM 6 Figure O.3 Dikes in Sendai before and after the tsunami of March 11, 2011 9 Figure O.4 Otsuchi"s mayor was in front of town hall when the tsunami struck 12
Figure O.5 Broadcasting at RINGO Radio 14
Figure O.6 Community rehabilitation facilitator 19 Figure 1.1 Inundation area in Fudai Village, Iwate 27 Figure 1.2 No tsunami inundation in Hirono Town, Iwate 27 Figure 1.3 E? ectiveness of the Kamaishi tsunami breakwater 28 Figure 1.4 Countermeasures against level 1 and level 2 tsunamis 29 Figure 1.5 Structure of a highly resilient breakwater 29 Figure 2.1 Share of houses that collapsed in the 1995 Kobe earthquake, by year of construction 34 Figure 2.2 Houses and cars were washed away by the tsunami 35 Figure 2.3 The tsunami destroyed the outer walls of steel structures 35 Figure 2.4 Reinforced concrete building withstood tsunami even though submerged 36 Figure 2.5 Reinforced concrete building damaged by buoyancy 36 Figure 2.6 Reinforced concrete building scoured by the tsunami current 36 Figure 2.7 Overturned building of reinforced concrete with pile foundation 36 Figure 2.8 Fallen ceiling panels in school gymnasium 37 Figure 2.9 Subsidence of houses from liquefaction 37 Figure 2.10 Houses damaged by failure of retaining walls 37 Figure 2.11 Revised design load requirements against tsunamis 38 Figure 2.12 Collapsed school building in which furniture is still standing (Yogyakarta province, following Central Java Earthquake, 2006) 39 Figure 2.13 Flowchart illustrating the Japanese building permit process 40 Figure 3.1 Countermeasures taken against hydrometeorological disasters following the GEJE 44 Figure 3.2 Damage to river dikes at Narusegawa 44
Figure 3.3 Rehabilitation of coastal dikes 46
Figure 4.1 East Sendai Expressway 50
Figure 4.2 The Sanriku Expressway was built with tsunamis in mind 51 Figure 4.3 Self-defense force at a roadside station 51 Figure 4.4 Evacuation stairway at the Omoto Elementary School 51 Figure 5.1 Relocation of municipal buildings after the GEJE 56
Figure 5.2 Otsuchi Town Hall 56
Figure 5.3 The Rikuzentakata City gymnasium 57
Figure 5.4 Hospitals a? ected by the GEJE in Fukushima, Miyagi, and Iwate prefectures 57 Figure 5.5 Leaked LPG catches fi re at a refi nery 57 Figure 5.6 Broken braces led to collapse of LPG tank 58
Figure 5.7 Retrofi tting Jokoji Temple 58
viii | CONTENTS
CONTENTS | ix
Figure 5.8 Cause of the accident at the Fukushima Daiichi Nuclear Power Station 60 Figure 5.9 Fukushima Daiichi Nuclear Power Station 60 Figure 6.1 Historical timeline of community- based organizations 66 Figure 6.2 Left: Damaged Hashikami area of Kesennuma; right: Kesennuma Fukkou Yatai Mura (community recovery restaurant) 67 Figure 6.3 Toni Bay area of Kamaishi City (top), Sakura Festival (bottom) 68 Figure 6.4 Wakabayashi ward (top), and local community activities (bottom) 69 Figure 7.1 Structure of the Central Disaster Management Council 72 Figure 7.2 Outline of Japan"s disaster management system 73 Figure 8.1 Categorization of schools by level of damage 77 Figure 8.2 Kamaishi-higashi Junior High School (top) and Unosumai Elementary School (bottom) are located near the sea 78 Figure 8.3 Location of schools in various areas 79
Figure 8.4 Schools and locations 80
Figure 9.1 The business continuity plan concept 84 Figure 10.1 Information fl ow in the tsunami-warning system 92
Figure 10.2 New methods for tsunami warnings 94
Figure 10.3 Earthquake early warning system 95
Figure 10.4 Earthquake early detection system 96 Figure 11.1 The relationship between evacuation and other DRM measures 99 Figure 11.2 Evacuation map and information on past tsunamis 100
Figure 11.3 Evacuation signs 100
Figure 11.4 Evacuation timing 102
Figure 11.5 Evacuation pattern and encounter with the tsunami 102 Figure 11.6 Pictographic signs: Safe place from tsunamis, tsunami evacuation shelter, and tsunami risk area 103 Figure 11.7 Number of evacuees moved to other prefectures,
June 2011-January 2012 105
Figure 12.1 Building communities resilient to tsunamis 113 Figure 13.1 The forest captures a fl oating ship 119 Figure 13.2 Condition of the green belt before and after the tsunami in Natori City 119 Figure 13.3 Changing approaches to managing the green belt 120 Figure 14.1 The Japan Self-Defense Forces in action 126 Figure 14.2 An interprefectural emergency rescue unit in action 126 Figure 14.3 TEC-FORCE activities in response to the GEJE 127
Figure 14.4 TEC-FORCE equipment 128
Figure 14.5 Volunteer e? ort in Tohoku through January 2012 130
Figure 15.1 Number of a? ected fi xed lines 134
Figure 15.2 Number of a? ected mobile base stations 134 Figure 15.3 Disaster emergency message tra? c during GEJE and Kobe earthquakes 136 Figure 15.4 Most viable source of information as perceived by message sender group in the GEJE 137 Figure 16.1 Information and transportation fl ows in the o? cial relief goods delivery system 144 x | CONTENTS Figure 16.2 Badly organized inventory in an initially assigned depot (Iwaki Civic Hall, March 23, 2012) 145 Figure 16.3 Well- organized inventory in a municipal depot (Taira bicycle race track at Iwaki City, April 6, 2012) 145 Figure 17.1 The municipal o? ce in Otsuchi Town was damaged by the tsunami 150 Figure 18.1 Number of evacuees after the GEJE 155
Figure 18.2 Number of evacuation centers 156
Figure 18.3 Number of times people in Fukushima had to evacuate 156 Figure 18.4 Evacuation center at the Ofunato Junior High School 157 Figure 19.1 Age distribution of people killed in the GEJE 161 Figure 19.2 An evacuation center, one month after the earthquake 163 Figure 20.1 Securing emergency transportation 172 Figure 20.2 Sendai Airport after the tsunami 173 Figure 20.3 Manhole raised by liquefaction in Urayasu City 173 Figure 20.4 Steps in infrastructure rehabilitation 174
Figure 20.5 Clearing of roads 175
Figure 20.6 Clearing of navigation passages 176
Figure 20.7 Water works rehabilitation 177
Figure 20.8 Electricity rehabilitation 178
Figure 21.1 Chronology of key policy and planning measures after the GEJE 182
Figure 21.2 Recovery plans after the GEJE 183
Figure 21.3 Community involvement in recovery planning in Minamisanriku
Town (Miyagi Prefecture) 184
Figure 21.4 Recovery concept of Minamisanriku Town 185 Figure 21.5 Population decrease in disaster areas and survey of population and businesses in Minamisanriku (December 2011) 187 Figure 21.6 Coordination framework for the Reconstruction Agency in Japan 188 Figure 22.1 The housing recovery process in Japan 194 Figure 22.2 Characteristics of transitional shelters used after the GEJE (as of December 27, 2011) 194 Figure 22.3 Typical prefabricated temporary houses 195 Figure 22.4 Number of temporary houses completed 196 Figure 22.5 Improvements to temporary housing- adding insulation to the walls and double-pane windows 198 Figure 22.6 Multiple-story temporary housing made with stacked containers 199 Figure 23.1 Separation and treatment of disaster waste 206
Figure 24.1 Minamisanriku shopping village 215
Figure 24.2 A poster promoting the friendship bracelet ( tamaki) 215 Figure 24.3 Recovery process of labor markets in Iwate, Miyagi, and Fukushima prefectures 216 Figure 24.4 New- job- opening ratios of the Iwate, Miyagi, and Fukushima prefectures 216quotesdbs_dbs14.pdfusesText_20
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