An Intergrated Framework and Tools for Better Disaster Risk Governance to Innovate Disaster Prevention Capability in Multi-Risk Society: Lessons from Disaster Risk Communication in Japanese Communities
The document discusses disaster risk communication and governance. It describes a workshop held in Japan to discuss operating evacuation shelters during disasters. The workshop involved local residents and stakeholders taking on roles to act out scenarios. They discussed issues like ensuring safety, helping vulnerable groups, health maintenance, and applying for relief during a disaster. The goal was to improve long-term disaster risk governance and coping capacity through collaborative risk reduction activities.
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An Intergrated Framework and Tools for Better Disaster Risk Governance to Innovate Disaster Prevention Capability in Multi-Risk Society: Lessons from Disaster Risk Communication in Japanese Communities
1. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project
BOSAI-DRIP
The 3rd IDRC in Davos 2010
An Integrated Framework and Tools for Better
Disaster Risk Governance to Innovate Disaster
Prevention Capability
in Multi-Risk Society
Lessons from Disaster Risk Communication
in Japanese Communities
NIED BOSAI-DRIP
National Research Institute for Earth Science and Disaster
Prevention,
Tsukuba, Japan (http://www.bosai.go.jp/)
1
2. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project
BOSAI-DRIP
Speakers and Topics
1) Saburo Ikeda:
An Interdisciplinary Approach to Disaster Risk
Communication from the Long-term Perspective of Risk
Governance
2) Hitoshi Taguchi:
Interoperable Web Mapping Systems for Risk
Communication —Enhancing the Disaster Prevention
Capabilities of Local Communities
3) Yohei Sunaga:
Evolving Disaster Risk Governance in Local
Communities:
Demonstration Experiments in Aichi Prefecture in Japan
NIED BOSAI-DRIP
4) Taiyoung Lee:
Re-organizing of Local Disaster Prevention Capabilities
through Scenario-based Risk Communication: A Case
Study of Tsukuba City in Japan
2
3. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project
BOSAI-DRIP
An Interdisciplinary Approach to Disaster
Risk Communication from the Long-term
Perspective of Risk Governance
Saburo IKEDA *1, *2 , Toshinari NAGASAKA *1, Takao SATO *1
NIED BOSAI-DRIP
*1 National Research Institute for Earth Science and Disaster Prevention
(NIED) URL: http://bosai-drip.jp/
*2 University of Tsukuba, 3-1 Tennodai, Tsukuba-City, 305-0006, Japan
3
4. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project
Content
To overview our experiences in relation to the
important methodological issues of “Disaster Risk
Governance” since the NIED launched the project of
“Disaster Risk Information Platform: DRIP” in 2008.
To re-examine the context of “Coping Capacity
against Disaster Risks” in both pervasive and
catastrophic types in post-industrial and aging
society.
To suggest a new interdisciplinary approach to
“Disaster Risk Communication” in terms of identifying
NIED BOSAI-DRIP
proper risk-profile, and reorganizing self-preventive
and collaborative activities based on multi-layered
networks among residents and stakeholders cultivated
in local communities
4
5. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Lessons learned from “risk communication” by NIED
project of “Disaster Risk Information Platform” (1)
1. High reliance on hard measures of structural facilities but
low dependence on soft measures of warning or evacuation.
2. Early and frequent provision of official warning but extremely
low rate of evacuation and buying “insurance”
Urban infrastructure: complex and vulnerable
to not only Low Probability but High Both local residents and
Consequence, but also pervasive disasters regulatory authorities: “There
cannot be any catastrophic flood
in our river basin since we have
made a series of dams and
Wa e lv lof rivers
tr e e
reinforced banks since the last
Water level of flooded area flooding”
Drainage
Pump
Inner stopped
flooding Dyke
NIED BOSAI-DRIP
Over
P break P
flow
5
6. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Lessons learned from “risk communication” by NIED
project of “Disaster Risk Information Platform” (2)
3. Introduction of
“Probability” of hazard Risks
and risk, but only Everybody want
maximum damage in the to know their
area-wide perspective own risk, not
hazard. In ven t or ies
documented in the official But, “ from
“Hazard Map” which is hazard to risk”
will need a
supposed to be prepared deliberative
based on scientific risk communication Af f l ic t ion
among experts Rat io
assessment. and
4. Aggregated “macro risk stakeholders
information” from in terms of
values, Gr oun d
authorities but uncertainties,
Types
NIED BOSAI-DRIP
“Individual micro risk and ambiguity
information” is required
for the informed-decision Ear t hquak
e Sour ce
making
6
7. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project
The NIED’s concept of disaster risk governance
(Japanese Journal of Risk Research, V.17-3, 13-23, 2008)
A colaborati ri m anagem ent
l ve sk
of di sks through soci netw orks based on “hori
saster ri al zontal
/m ul -l
ti ayered colaborati am ong stakehol
l on ders”
Formal institution Autonomous,
Commands and Non-
control
institutional,
Prevention by Voluntary
structural
Top-down approach
Activities in
facilities
Bottom-up approach
relation to local
Commons and
social capital
N ational and
M uni pal
ci R esidents, N P O s,
R egul atory R esidents- S hops,
A genci &
es associ ons,
ati E nterprises
ed
-a r
i l ye
G overnm ents C om m uni es
ti
t
/ ul
ntal M ti n
H ori o labora o
NIED BOSAI-DRIP
z
co l
7
8. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Major issues of disaster risk governance under high
uncertainty and stakes of emerging disaster risks
For better risk governance
Stakeholders participation in all processes 1) Functional/Institutional
of “risk analysis” Separation ?
?
Hazard and Risk assessment Risk characterization Risk management
risk scenario
2) Peer-review (experts) vs. Meta/post-review (stakeholders)
3) Implementing risk communication
Traditional expression of “disaster risk”
Risk = Hazard x Vulnerability What forms, procedures?
(degree of possible damages in society) How organized? Who to participate?
How discussion/debates should be
Triplet expression of “disaster risk” facilitated?
Risk = R{ < Si, Pi, Di>},( i = 1, 2, .. ) 4) Role of information communication
NIED BOSAI-DRIP
technology (ICT: E-community)
1)Si: Scenario: What is the nature of disaster
Risk Literacy (Sense of risk, informed
events that can be happen?
2)Pi: Probability: How likely is a particular choice)
event? Societal platform of risk information
3)Di: Damage: What are the consequences? (DRIP)
Enhancement of social capital
8
(Multi-layered networking in local
9. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Overall scheme of interdisciplinary approach to “disaster risk
communication” for improving “risk governance” in the long-term
perspective
Traditional Disaster Traditional
attitude for
Prevention Systems (Fire waiting
brigade, disaster governmental
help
management authorities,
neighborhood
associations, etc.) Formal drills of
fire-fighting ,
evacuation, etc.
Risk-
Disaster Coping
Disaster Risk scenarios Improvement of
Capacity Information with risk- Collaborative risk governance
(revealed and Platform (DRIP) profile or Risk Reduction in terms of
latent context) (Integration of disaster risk- Activities
risk knowledge among prevention,
experts, residents and mapping emergency,
communities) based on relief and
DRIP Collaboration with recovery
a wide range of responses
stakeholders who in the long-term
Multi-layered networking are associated with
perspective
NIED BOSAI-DRIP
local common
among organizations of resources
residents, communities,
Drills of self-
NPOs, business that are management of
associated with local evacuation center
and/or joint local
common resources response center
Before after
9
10. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Overall scope of “Disaster Risk Information Platform: BOSAI-DRIP”
Advancement of information
Damage Assessment Hazard Map
Interoperability of information DRI for Earthquakes
DRI for Volcanic Eruptions
Geospatial Information
Universities, Institutes Governments
DRI for Floods
History and Record
of Disasters Companies, NPOs DRI for Landslides
……
…… Interoperable DRI for Heavy Snow and Ice
Institutions and Services Information Disaster-Risk Evaluation System
Environment
“AIU(Japanese ABC)”
for BOSAI-DRIP Clearinghouse for Disaster Risk Information
A I U Disaster-Risk Management
System for Individual
災害危険度メータ _ □×
Utilization of
自宅の登録 家族の登録 自宅の耐震評価 備蓄登録
ファイル 編集 表示 ツール ヘルプ
緊急地震速報
なし
台風や豪雨予想
危険度3
information
大丈夫? なし
Disaster-Risk Management
System for Local
NIED BOSAI-DRIP
Community
DRMS for
LC
DRMS for I DRMS for I
DRMS for
災害危険度メータ
自宅の登録 家族の登録 自宅の耐震評価
ファイル 編集 表示 ツール ヘルプ
危険度3
_ □×
備蓄登録
緊急地震速報
なし
台風や豪雨予想
なし
災害危険度メータ
自宅の登録 家族の登録 自宅の耐震評価
ファイル 編集 表示 ツール ヘルプ
危険度3
_ □×
備蓄登録
緊急地震速報
なし
台風や豪雨予想
なし
LC
大丈夫? 大丈夫?
Disaster-Risk Information Platform in Japan (BOSAI- 10
11. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Example of scenario-based evacuation
shelter operation workshops
Disaster risk scenario : Chronological descriptions of the emergence of various risks related to
the concerned disaster expressed in narrative form of the virtual reality. The scenarios will be
generated at workshops with participation of local residents and other stakeholders who might
share the disaster experience by acting out the assigned “roles” of stakeholders.
Workshop Operation: more than 20 local communities in Japan
The role of evacuation shelters in the overall disaster risk
What will happen in an evacuation shelter? governance process
How to manage and take actions on those
issues? Stage
・Occurrence of disaster and emergency response
Quality of Life: food, water, toilet ・ 災害の発生と緊急対応 the safety
•
Ensuring physical safety and verifying
ステージ
• 身の安全の確保,安否確認など
of individuals
Handicapped and aged people 1
Mutual help, Volunteers ・Living as evacuees in shelters, etc.
Stage
Health maintenance • 避難(所)生活
ステージ ・Quality of life, health maintenance, mutual help, etc.
Applications for the official reliefs • 生活の質の確保,健康維持,相互扶助など
2
・Recovery
Acting out assigned roles Stage
• 生活の復興
ステージ ・Rebuilding homes, restoring lifestyles,
• 自宅再建,生活復興など
etc.
As school principal and the facility manager, I cannot
3
Facility simply allow even neighborhood residents to come in Fujisawa city, Kanagawa Pref.
NIED BOSAI-DRIP
manager until the building has been confirmed safe. We should
call in experts.
Town
As town councilor, I want to get councilor
My family includes evacuation shelters opened as
a handicapped girl. soon as possible so that they
Can we please can start accepting evacuees.
have a separate We should check the building
room from the according to the town manual
other evacuees? and make the decision
together.
Evacuee B 11
12. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Example of action plans generated at the workshop
“Whether a facility is safe enough for opening a shelter“
Issue 1: Community
Confirming the safety of
evacuation shelter facilities
Identification and use of
regional human resources
Agreeing in
advance on rules Indication of buildings’
Cooperation with of confirming earthquake resistance.
government authorities shelter safety
Clarifying rules for opening
shelters, such as waiting
Identifying and outside until safety has been
listing the experts confirmed.
Setting standards of in advance
Need for
building strength in Requesting cooperation in
understanding the
advance Requesting advance from building experts in
current situation
cooperation from the neighborhood.
building experts Obtaining the cooperation of
Expectations Compiling a building experts among
NIED BOSAI-DRIP
related to manual on evacuees.
evacuation Arranging for
confirming multiple
programs and safety
shelter facilities Preparing building experts
emergency electric
generators
Government Business and
authorities stores
12
13. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project
Criteria to evaluate action plans in terms of risk governance
Action plans Knowledge Diversity of Use of local Reorganization of
integration stakeholders resources stakeholder’s role
Identify local
experts who will
be needed at
disaster
Set alternative
evacuation
facility for use
in emergency
Identify persons
requiring
support & verify
their safety
Organizing
system for
utilizing disaster
NIED BOSAI-DRIP
volunteers
Agreement in
advance with
stores and
business on
relief materials
14. National Research Institute for Earth Science and Disaster Prevention, Disaster Risk Information Platform Project Summary
Lessons learned from a series of case studies
1. Given the different roles of stakeholders, the participants are
able to speak more freely than they might if they were speaking
as themselves from the broader perspective of utilizing
resources attached to various stakeholders, such as business
people and professionals.
2. Risk scenarios in narrative form can be easily transformed into a
variety of radio-play dramas which help the dissemination of the
outcomes of the workshop to a wider range of residents who
have not participated.
3. We plan to further develop such interdisciplinary approach to
disaster risk communication as making a map of the risky sites
NIED BOSAI-DRIP
and facilities, generating a story-type of risk scenarios, and
scripting radio-play dramas of the risk scenarios to go on the air
for encouraging local residents to take collaborative actions
from the long-term perspective of risk governance in their
communities.
14