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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
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
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
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
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
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
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
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
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
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
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
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
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
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
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                                                                                                                                         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

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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