26 February 2014 at BangkokProject Outputs Sustainability Seminar

inThe Project on Capacity Development in Disaster

Management in Thailand (Phase 2)by

Dr. Hirotada MATSUKIJICA Expert for Disaster Risk Reduction for Vietnam

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Contents

Flood risk management and economic activities

What is disaster risk management?

History of flood risk reduction

Tripod scheme

Conclusion

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●

KemaNakatsugawa R.

Osaka Castle

Kanzakigawa R.

Shinyodogawa R.Ohkawa R.

●1594-96 Uji River shifting1606-11 Takase Channel excavation1684-87 Aji Port construction1704 Yamato River diversion

1868 Yodo River Flood1868-70 Kizu River shifting

1885 Yodo River Flood1896-10 Yodo Floodway excavation

- Kema overfall weir- Kema lock gate- Dyke widening, heightening- Seta River overfall weir- Seta River widening/dredging- Uji River shifting

Osaka flood risk reduction (Yodo River Diversion 1896-1910)

Osaka had developed by flood risk reduction

after repeat floods.

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1882

1919

1954

1996

37yeas

35years

42years

Excavation of Ara River Floodway1911 1930

Tokyo urbanization progressed due to the improvement of the safety level by the excavation of Ara River Floodway

Former retarding basin area has also been urbanized

Dykes and retarding area

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Tokyo flood risk reduction (Ara River Diversion 1911-1930)

Flood fighting Activities in Japan

Flood fighting teams go into action toprevent dike breach during flooding.

5

Flood fighting Drill in Japan

Flood fighting drillsare organized every year bythe river manager or the fire services.

Onga River, Fukuoka pref. in 2007 Ibo River, Hyogo pref. in 2011 6

1

10

100

1,000

10,000

1945 1950 1955 1960 1965 1970 1975 1980 1985 1990 1995 2000

Number of dead and missing

2005

First flood control(5 years)

Second

Third

Fourth Fifth Sixth Seventh

Eighth

Ninth flood

control (7 years)

Typhoon Kathleen

Torrential Rains in

Southern K

ii

Toyamaru Typhoon

Isewan

Typhoon

(Year)

(Persons)

Decrease of casualties

First Priority P

lan for S

ocial Infrastructure D

evelopment

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By disasters, increasing poverty and continued to be stuck in an increase in poverty, widening inequality, from the trap of poverty

Enlarged view

Disaster Event

Time

Stop of economic activity by direct damage⇒ Expansion of poverty

Stagnation of economic activity and the recovery delay due to lack of funds → continuation of poverty trap

JICA DR2AD Model (DR2AD: Disaster Risk Reduction investment Accounts for Development)http://www.jica.go.jp/topics/news/2013/ku57pq00001ecfq5-att/20130612_01_01.pdf

with disaster without DRR investment

with disaster with DRR investment

without disaster

Effect of DRR investment

log GDPDRR investment effect

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Contents

Flood risk management and economic activities

What is disaster risk management?

History of flood risk reduction

Tripod scheme

Conclusion

9

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Disaster risk: The potential disaster losses,in lives, health status, livelihoods,assets and services, which could occurto a particular community or a societyover some specified future time period.

Vulnerability: The characteristics andcircumstances of a community, systemor asset that make it susceptible to thedamaging effects of a hazard.

Exposure: People, property, systems, orother elements present in hazard zonesthat are thereby subject to potentiallosses.

Hazard: A dangerous phenomenon thatmay cause loss of life, injury or otherhealth impacts, property damage, lossof livelihoods and services, social andeconomic disruption, or environmentaldamage.

(2009 UNISDR Terminology on Disaster Risk Reduction)

Disaster Risk

In order to reduce disaster risk,how to reduce vulnerability?

How to reduce exposure?

How to reduce hazard?

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Disaster

Response

Recovery

Mitigation

Preparedness

Disaster risk management: The systematic process in order to lessen theadverse impacts of hazards and the possibility of disaster throughactivities and measures for prevention, mitigation and preparedness.

(2009 UNISDR Terminology on Disaster Risk Reduction)

Disaster Risk Management

Response: The provision of emergencyservices and public assistance during adisaster.

Recovery: The restoration of facilities,livelihoods and living conditions ofcommunities.

Mitigation: The lessening or limitation ofthe adverse impacts of disaster.

Preparedness: The knowledge andcapacities to effectively anticipate,respond to, and recover from, theimpacts of likely disasters.

Disaster risk can be reduced as a result ofeffort in all of the 4 stages above.

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Response Recovery Mitigation Preparedness

Vulnerability reduction Rescue Relief Awareness rising Early warning

Exposure reduction Flood fighting Quick repair Dyke build back

Build back betterDaily rehabilitation

Hazard reduction

Reservoir operation Cause analysis

Review of operationDam upgrading

Disaster

Disaster

Just after the East Japan Great Earthquake, more than 96% of 460,000 residents lived in the tsunami affected area had evacuated *following the Tsunami Early Warning System.

Over 3,000 students evacuated further to higher ground by their own decision, as educated.

However, the local economy was completely destroyed.

Can we say this “sustainable”?

Vulnerability reduction in the East Japan Great Earthquake

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Response Recovery Mitigation Preparedness

Vulnerability reduction Rescue Relief Awareness rising Early warning

Exposure reduction Flood fighting Quick repair Dyke build back

Build back betterDaily rehabilitation

Hazard reduction

Reservoir operation Cause analysis

Review of operationDam upgrading

Disaster

Disaster

Vulnerability reduction through CBDRM is quite effective for DRR.

In response to climate change, however,disaster risk is getting more frequent and severe.

Preparedness process becomes more important than before.We should focus on exposure reduction and hazard reduction.

Exposure/Hazard reduction against climate change

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Flood among disasters

* People can analyze floods in the past and forecast floods in the future.

Floods are calling for people to learn lessons and to transfer it to the next generations.

People, who could implement it, are abele to survive in the flood-prone areas.

In Japan,flood risk management was developed in the history to build a resilient society.

That’s why Japan survives on disaster-prone islands in the Asia-monsoon region.

forecastablity occurrence

EarthquakeTsunamiStorm

Naturaldisaster

predictable(sometimes)

after a time period longer than a human life

We can research.

FloodDrought

Landslide

Natural-artificial disaster

forecastable many times in a working age (15-64)We can

prepare. *

FireBlackoutAccident

Artificial disaster unforeseeable frequently

We can alert.

Contents

Flood risk management and economic activities

What is disaster risk management?

History of flood risk reduction

Tripod scheme

Conclusion

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Japan’s History of Land Development

over 2,000 years agothe 3rd centurythe 4th centurythe 5th centurythe 6th centurythe 7th centurythe 8th centurythe 9th century

the 10th centurythe 11th centurythe 12th centurythe 13th centurythe 14th centurythe 15th centurythe 16th centurythe 17th centurythe 18th centurythe 19th centurythe 20th centurythe 21st century

Yayoi era

Kofun era

Asuka eraNara era ---------------

Heian era

Kamamura era

Muromachi era

Sengoku era

Edo era ----------------

Meiji/Taisho/ShowaHeisei (present) -----

Beginning of rice cultivationExpansion of paddy field

Land/water developmentDevelopment of plain-edge

Development of floodplain

Land manorialization

Local self-governance

River training

Sustainable floodplain-use

Industrialization/UrbanizationSustainable economic activities

Beginning of flood disaster

Completion of self-/mutual-/public-help

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“Sequel Chronicles of Japan” = 「続日本紀」

文武天皇四年：道照和尚物化。･･･初孝徳天皇白雉四年。随使入唐。･･･於後周遊天下。路傍穿井。諸津済処。儲船造橋。乃山背国宇治橋。和尚之所創造者也。和尚周遊凡十有余載。700: Monk Dosho was dead. Firstly he was dispatched to Tang in 653. After returning,he went around regions. He dug wells near roads, built boats at harbors and threwbridges over waterways. He is the first builder of Uji Bridge in Yamashiro Area. Hisengineering journey longed over 10 years.

養老二年：筑後守正五位下道君首名卒。首名、少治律令。暁習吏職。･･･興築陂池。以広漑灌。肥後味生池。及筑後往往陂池皆是也。由是。人蒙其利。于今温給。皆首名之力焉。718: Administrator Obitona was dead. He studied low and order in his young days tobe an elite bureaucrat. He built new reservoirs such as Ajiunoike in Higo Provinceand many ponds in Chikugo Province which are bringing benefits to people up tonow. All achievements were instructed by Obitona.

天平勝宝元年: 大僧正行基和尚遷化。･･･既而周遊都鄙、教化衆生。･･･又親率弟子等。於諸要害処、造橋築陂。聞見所及、咸来加功。不日而成。百姓至今、蒙其利焉。749: Great Monk Gyoki was dead. He civilized people around the capital. He and hisdisciples built bridges and dikes at barren grounds. People, who knew his fame,assisted him to complete his works promptly. Now people benefit from his works.

The 8th century

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“Yoro Code” = 「養老律令」

営繕令16近大水条：凡近大水。有堤防之処。国郡司。以時検行。若須修理。毎秋収訖。量巧多少。自近及遠。差人夫修理。若暴水汎溢。毀壊堤防。交為人患者。先即修営。不拘時限。Infrastructure Code-16: A provincial governor and district commissioners have topatrol dikes around major rivers, and order people to repair any damage afterharvesting rice in autumn. For dike breach, however, command urgent repair as soonas possible.

田令28為水侵食条：凡田。為水侵食。不依旧派。新出之地。先給被侵之家。Paddy Code-28: After a flood shifts the waterway eroding paddy and leaving newland, grant the new land to people who have cultivated the lost paddy.

戸令01為里条：凡戸以五十戸為里。毎里置長一人。掌。検校戸口。課殖農桑。禁察非違。催駈賦役。Community Code-1: Each community has 50 families. 1 leader manages familyresister, promote agriculture, prevent crimes and provide labor services.

戸令09五家条：凡戸。皆五家相保。一人為長。以相検察。勿造非違。Community Code-9: 5-family group members work together and help each other. 1head checks the group and keeps order.

The 8th century

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序：我々が住国村里に、往古より有来る池・河をば、年々歳々修理を加へ、水災のしのぐ心得肝要なり。･･･堤・井溝・川除普請は、世に耕作初りし上代よりこのかた、土民の役たり。末代も猶油断ありては、子々孫々水災にあふべし。Article of General Principle: It is important for farmers to keep efforts to maintain river/reservoirfacilities year-after-year, which have been existing in our villages since ancient days. --- It hasbeen farmer’s task to take care of river dikes, irrigation system and riverbank protection sincethe beginning of rice cultivation. If we fail to keep up the efforts, our next generations are goingto suffer from flood disasters in the future.

川除こゝろへの事：河除は堤をきらさぬ備へなり。･･･水を流す処をば、急度修理し、拵置べし。是常住の備へ也。･･･万一洪水の節、水下の村里より出て、堤をかかゑる人足等のつもりをしてしり、･･･夜中たり共出集り、堤をかかゑて水難をのがるる心得かんやうなり。まして御当代は御公儀の御奉行衆、左様なることに油断なし。其節は御指図にまかせ、少もはやく罷出、堤をふせぐことほんいなり。国々村里に御定の郡司・庄官・五人組、猶以油断致間敷事なり。Article of Riverbank Protection: Riverbank protection is a preparative work to prevent dikebreaching. --- Repair any damages around waterways and keep all facilities functional. This is akey lesson for the sustainable life with river. --- Once a flood occurs, all people living in possibleinundation area gather and protect the dike not to allow outflow even late at night. Nowadays, astate officer is in charge of flood disaster prevention. Following his emergent orders, go to acrucial point as soon as possible and take part in flood fighting activities. All of the local officials,village leaders and 5-family groups have to raise awareness of flood at any time.

“Farmer’s Common Sense” = 「百姓伝記」 The 17th century

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一 諸國代官所委託地の堤防、溝洫、閘椿、橋梁等･･･都て注意して大壞に及ばさるを要し、必らず其修築に怠懈する勿れ。1: Local state officials. Pay attention not to get severe damage on dikes, irrigations, gates,bridges, etc. Never omit maintenance work.

二 每年農隙を候し、小破の際を以て官修所及び民修所を修築し、水荒の難を防御するを最も專務となす。2: During every agricultural off-season, repair small damage and prevent severe damage onstate/community owned section.

四 沿岸修築の方法は、平水の觸激する所と、盈水の觸激する所とを量り、其水勢の強弱を檢考し、以て計畫するを緊要となす。･･･修築は全體の損益を勘定するを緊要とす。4: Draw a master plan for river management with investigation of normal/flood flow and costanalysis on expected benefit.

十 常年の洪水に破壞せられ、多少の耗損を招くは、全く其各村胥吏等豫防の疎略なるに基き、收租

に響障し且つ冗費を散消するに由り、各自巡村の際は言を俟たず、日常之を注意指揮すべきは、職務上最も緊要と爲す。10. Flood damage brings revenue shortage and costs much budget. It is caused by sloppypreventive work. Educate community members on this matter through instructive patrols andordinary notifications.

“Dike Rehabilitation Directive” = 「修築の例規」 The 18th century

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前段一：豫テ其業ニ鍛煉ナル者ヲ撰テ普請奉行ノ役ニ申シ付、常々村里ヲ巡廻セシメテ、井路ト川附ノ土手ヲ見分シ、少シニテモ危キ塲處アラハ速ニ此ヲ目論見ヘシ。Introduction 1: An expert should be appointed as the state officer for river management. He hasa mandate to patrol communities in his jurisdiction and to estimate cost for any damagerepairing.

前段四：水土ヲ司ル役人ハ洪水ノ出タル時ニハ諸方ニ手分ヲ定メテ、川々ヲ巡回シ處々ノ水勢ヲ精シク熟覧シテ置クベシ。且ツ、水土ノ事ヲ司ル者ハ心ヲ用ヒテ、諸國諸川ヲ視ヨ。Introduction 4: During a flood, the state officer for water/land management has to direct hissubordinate officers to survey flooding flow from place to place. Also he has to study rivers outof state proactively.

御普請處取計ヒノ事 五：御普請塲ノ御定法ハ、川附村々ノ名主、組ミ頭、惣百姓共マテニ兼テ嚴シク

申シ渡シ置キテ、隄防ノ石一箇抜ケタルモ早速ニ挿石ヲ致スベク、亂杌一本脱タルモ即時ニ此ヲ打チ足シテ、聊モ麁畧ニ致シ捨テ置クマジキノ㫖、年々三四度ツツモ申シ渡シ置クベシ。Task 5: The state officer always has to enforce community leaders and neighboring groups toconduct river management work certainly, such as repair of riprap stone or random piles.

御普請處取計ヒノ事 六：馬蹈ノ卑キ処ニハ土囤ヲ積ミ並ヘテ杌ヲ打タセ、漏リ水スル處ニハ杌ヲ打テ速カニ此ヲ塞キ、大水ノ時ハ役人共早ク出テ人夫ヲ數多川端ニ集メ置キ、水防キヲ嚴重ニスベシ。Task 5: In order to pile up sandbags or to stop seeping water before out-flowing, the stateofficer has to gather people for flood fighting in the early stage of a flood.

“Dike and Irrigation Standards” = 「隄防溝洫志」 The 19th century

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Flood fighting in Edo era (the 17th-19th century)

A state officer directed farmers to close a dike breach point .22

Contents

Flood risk management and economic activities

What is disaster risk management?

History of flood risk reduction

Tripod scheme

Conclusion

23

Year Act Key point1880 Municipality Act to establish community-level voluntary association1890 Water Association Act to establish irrigation/flood fighting association1894 Fire Service Rule to identify fire service (including flood fighting)1896 River Act to clarify responsibility of river managing authority1948 Fire Service Act to reconfirm fire service (discarding flood fighting in 1949)1949 Flood Fighting Act to reconfirm responsibility of flood fighting association1949 Land Improvement Act to establish irrigation association (leaving flood fighting association)

1955/58 Flood Fighting Act(amendment)to define responsibility of municipality and financial support for floodfighting association

1961 Disaster ManagementBasic Actto identify responsibility of people, municipalities, prefectures andthe central government

1964 River Act (revision) to re-clarify responsibility of river managing authority and toreconcile water-use disputes

1997 River Act (amendment) to improve river environment and to take care of flood-prone areas

2001/05 Flood Fighting Act(amendment) to install flood forecasting and hazard mapping

2012 Disaster ManagementBasic Act (amendment)to reconfirm responsibility of all relevant parties, emphasizingimportance of hazard traditions and pre-disaster education

The social infrastructures for disaster managementare defined and modified by acts in the last 100 years,

based on Japan’s traditional Community-based Disaster Risk Management. 24

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River mouth Branch Nakama Branch

Miyata Branch

Iizuka Branch

Tagawa BranchNogata Branch

MLIT Onga River Office

Onga River Basin, Fukuoka, Japan (Length = 61km, C.A. =1.026 km2, Population = 670,000)

Onga River Office and 6 branches are watching the river basin by 28 water level gauges, 30rainfall gauges, 20 monitor cameras and communications with residents.

http://www.qsr.mlit.go.jp/onga/prevents/realtime/onga_suii.html

Role of a river office (IFMP administrator)

River channels are maintained to ensure that the capacity for flood discharge does notdecrease. Changes in river environment such as sedimentation and scouring, growth oftrees are grasped.

Channel capacity

Time

Level for administration

Maintained and administered for not lowering the flood control level

Comprehending the changes by measuring river forms regularlyMaintenance

Change in river may lead to decrease in flood control capacity

River channel survey

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Dykes are made of soil and sand, piled up long ago. As quality and intensity are uneven,inspection and monitoring are conducted for early detection of any abnormalities.

2004 Aira river

Grass cutting by a remote  machine Inspection of looseness of dyke body

Detection of abnormality and repair

Composition of dyke is complex

Dyke inspection

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MLIT regularly monitor the condition of river zone to keep it in good order for residents’safety and comfort. To protect the environment, MLIT organizes trash cleaning andextermination of alien species in coordination with local residents.

Patrol/ Monitoring Care of local area Picking up trash and waterweed scouring Safe use

Regular monitoring and CCTV observation to avoid illegal river use.

Space management with riparian residents and local government.

Clearing away trash and  alien species removal.

Safety inspection to prevent water accidents

River zone management

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In the Flood Fighting Act, flood fighting is defined as the responsibility of municipalities.Municipalities organize flood fighting teams of residents in the local communities toprotect their lives. Residents are to engage in activities to prevent dyke breaches andminimize flood damage.

Flood fighting activities at flood time Drill at normal time

Gokase River, 2005

Ushizu  River, 2009

Transaction with flood fighters

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Education for evacuation and environment conservationEvacuation mapping Studying meeting

Community‐based  flood hazard/inundation mapping  

Discussion with mass‐media and fire fighters

Disaster/environment education for children in cooperation with primary schools and local NPOs.

Honest activities for promotion of basic information are conducted in cooperation withresident groups such as NPOs to spread basic knowledge, to raise awareness of disasterprevention and to grow kindness for protection of river.

Communication with communities

30

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Disaster

・Flood control・Earthquake proof reinforcement・Forecast/alert system

Preparedness & Mitigation Emergency response

・Assessment on damages on: - infrastructures such levees etc.- buildings and houses・Assistance to local governments

Emergency measures

・Technical support in implementing emergency measures

・Assistance to local governments

・Restoration and recovery of damaged areas

・Prevention of recurrence

Restoration & recovery Disaster Operation Center (MLIT)

“Disaster management cycle” is popular in the world.Japan has put a high value on “Preparedness” process in the history.

Preparedness is mainly conducted under the “Build Back Better” policy.31

Magari Village Self-security Mapedited by residents in cooperation withMLIT Himeji Office of River and Road

Flood level mark to start evacuation

Evacuation center

Safety evacuation route

Strange sound of the mountain

Non-dyke section

Riverbank eroded in 2009

Riverbank eroded in 2009

Dangerous zone

Japan is encouragingresidents’/community’s self-motivated actions

as the key ofeffective/sustainable CBDRM.

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Magari Village of Shiso City, Hyogo, Japan

Residentsdefense themselves to

survive.

Community supports residents and

defenses itself.

River authority mediates communities’ interests and assists residents' security.

Self-helpSelf-help Mutual helpMutual help

Public helpPublic help

Today, Japan’s CBDRM can be summarized in 3 important acts.The main concept is independence and interdependence of 3 sections; residents, the community and the river authority.

Act Key pointDisaster

Management Basic Act

Article 7 (2)

A resident has to prepare against subsequent disasters by oneself and contributedisaster management through participating in voluntary activities for disaster prevention,studying historical hazard traditions and other approaches.

Flood Fighting Act

Article 3/5 (3)

A municipality has responsibility to complete flood fighting in its area. The flood brigadesand the fire service conduct flood fighting activities under command of the flood fightingleader (the mayor).

River ActArticle16-2

The river manager has to take measures to prevent flood disaster or mitigate flooddamage on particular flood-prone area due to its precipitation, topography, geography,etc.

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Conclusion

Japan’s society is resilient against natural disaster because of “tripod scheme” which was born in the history of flood fighting.

Today, the interdependence among self-/mutual-/public-help is functional under acts for disaster management.

Before/during/after flooding, the tripod scheme is workingamong people, local authorities and a river managing authority.

This scheme is applicable for countries in Asia monsoon region.

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