This book first provides a comprehensive guideline for future disaster-resistant city planning in large cities in disaster-prone countries such as Japan. It is a compilation of knowledge and know-how obtained through the author’s work in the national government for one and half years in the Earthquake Reconstruction Headquarters, right after the Great Hanshin-Awaji Earthquake on 17 January 1995. The author has carefully examined the various ad hoc measures taken just after the earthquake, which were criticized because they did not work as well as expected. Additionally, he has examined the later revisions in disaster and risk management systems made at the levels of local and national governments through experience in the Hanshin-Awaji Earthquake, to which the author had long been committed. The author argues that the rescue activities, rehabilitation, and reconstruction plans for disaster countermeasures implemented once a disaster has occurred and the city planning established in ordinary times should be extremely tightly connected with each other. City planning that subsumes rescue activities, rehabilitation, and reconstruction plans against what ought to have happened would critically improve the capability of crisis management and, consequently, protect life and property once a disaster has occurred. Such city planning eventually creates disaster-resistant cities. This book assumes readers to be graduate students who study city planning. It is also beneficial for practitioners and policy makers who are in charge of the construction of disaster-resistant cities at the national and local levels of governments, especially in disaster-prone countries.
Author(s): Yasuhisa Mitsui
Series: New Frontiers in Regional Science: Asian Perspectives, 58
Publisher: Springer
Year: 2022
Language: English
Pages: 410
City: Singapore
Preface
Preface for English Edition
Introduction: Issues Concerning Disaster Administration and City Planning
The Aims of the Book
The Model Disaster-Resistant City and the Great Hanshin-Awaji Earthquake
Progress in Urbanization and Disaster Management
The Antinomy Between Disaster Management and Disaster-Resistant City Planning
Risk Management in Disaster Administration
Categories of Disaster Management: The Initial Response, Temporary Facilities, and Reconstruction Plans
Books on Disaster-Resistant City Planning
Disaster Administrative Activities
Discussions on Disaster Administrative Activities
Problems Concerning Evacuation Shelters and Temporary Housing
Problems Concerning Reconstruction Plans
Emergency Disaster Management Activities
Aims
Contents
List of Figures
List of Tables
Chapter 1: The Initial Response Systems Used for Major Earthquakes and Disaster-Resistant City Planning
1 The History of Disaster Management
1.1 The Enactment of the Basic Act on Disaster Management
1.1.1 Recommendations Made by the Science Council of Japan
1.1.2 Proposals by the Hokkaido Government Regarding the Improvement of Management Measures for Major Disasters
1.1.3 Recommendations Made by the National Governors´ Association
1.1.4 Typhoon Ise-Wan Which Facilitated the Enactment of the Basic Act on Disaster Management
1.1.5 The Significance of the Basic Act on Disaster Management
1.2 A Framework for Disaster Administrative Activities (Disaster Management Plans)
1.2.1 The Basic Disaster Management Plan
1.2.2 Disaster Management Operation Plans
The Disaster Management Operation Plan of the National Land Agency
The Disaster Management Operation Plan of the National Public Safety Commission and the National Police Agency
The Disaster Management Operation Plan of the Ministry of Home Affairs and the Fire and Disaster Management Agency
The Disaster Management Operation Plan of the Defense Agency
Relief Operations to Be Conducted After the Dispatch of Self-Defense Force Units, etc. for Disaster Relief Operations
1.2.3 Local Disaster Management Plans
The Hyogo Prefectural Disaster Management Plan
The Kobe City Disaster Management Plan
1.3 A Framework for Disaster Administrative Activities (Disaster Management Organizations)
1.3.1 The Central Disaster Management Council and Local Disaster Management Councils
1.3.2 The Major Disaster Management Headquarters
1.3.3 The Extreme Disaster Management Headquarters
1.3.4 The Disaster Management Headquarters
1.3.5 Emergency Personnel Assembly Systems
1.4 A Framework for Disaster Administrative Activities (Information Gathering and Communication Systems)
1.4.1 Information Communications Systems: The Central Disaster Management Radio Communications System
2 The Initial Response Systems
2.1 The National-Level Initial Response Systems
2.2 The Local-Level Initial Response Systems
3 Issues Concerning an Initial Response System
3.1 Understanding What Happened
3.1.1 Major Disaster Management Headquarters
When It Was Established
Relations with Extreme Disaster Management Headquarters
Establishment of the Emergency Headquarters for the Hyogoken-Nambu Earthquake
Establishment of On-Site Headquarters for Disaster Management
Summary
3.1.2 Grasping Casualties and Missing
3.1.3 Estimated Time of Deaths
3.2 Issues Requiring a Major System Overhaul
3.2.1 Enhancement of Cabinet Functions
3.2.2 Immediate Collection of Information from Various Angles and Centralized Information Management System
3.2.3 Securing Swift Implementation of Activities
3.2.4 Establishment of Wide-Area Support Systems
4 The Fundamental Improvement of Initial Response Systems: Improvements Using Administrative Technical Methods
4.1 Strengthening the Cabinet´s Function
4.2 Immediate and Multilateral Information Gathering and Concentration of Information
4.3 Ensuring of Prompt Actions
4.4 Regional Centralization System
4.5 Revision of the Planning Theory
4.5.1 Basic Disaster Management Plan
4.5.2 Emergency Action Plan
4.5.3 Revision of the Emergency Action Plan of the Ministry of Home Affairs (now Ministry of Internal Affairs and Communicatio...
4.5.4 Revision of the Emergency Action Plan of the Defense Agency (Now the Ministry of Defense)
4.6 Revision of Local Disaster Management Plans
4.6.1 Hyogo Prefecture Disaster Management Plan
Kobe City Disaster Management Plan
4.7 Improvement in Organizational Theory
4.7.1 Establishment of Extreme Disaster Management Headquarters
4.7.2 Granting the Authority to Chief of the Extreme Disaster Management Headquarters to Give Directions
4.7.3 Assembly of the Designated Emergency Response Team
4.7.4 Extreme Disaster Response Team (Full-Readiness System at the Prime Minister´s Office)
4.7.5 Cabinet Office Crisis Management Team
4.7.6 Initial Action by the Cabinet in the Event of a Large-Scale Tokyo Inland Earthquake
Deputy Acting on Behalf of the Prime Minister
Place of Assembly
Assembly Method, etc.
Information Communication Method
Holding Cabinet Meeting
4.7.7 Lodging for the Designated Emergency Response Team
4.8 Improvements in the Information Collection and Communication System
4.8.1 Earthquake Information Flash Report System
4.8.2 Central Disaster Management Wireless Network
Establishment of a Communication line to Send Images Taken by Helicopter
Emergency Communication Line with the Prefectural Government
Transportable Satellite Earth Station
Concentration at the New Prime Minister´s Office
Central Wireless Network of Today
4.9 Improvement in the Wide-Area Support System
4.9.1 Establishment of the Interprefectural Emergency Rescue Unit (The National Police Agency)
4.9.2 Establishment of the Emergency Fire Rescue Team (The Fire and Disaster Management Agency)
Foundation of the Emergency Fire Rescue Team
Revision of the Emergency Fire Rescue Team Outline
Acts
Mutual Support Agreements Between Municipalities
Wide-Area Use of Fire Agency Wireless
5 The Utilization of GIS to Increase the Fire Resistance for Built-Up Areas Made Up of Wooden Buildings
5.1 Progress in Built-Up Residential Urban Area Renewal Projects
5.2 The Enactment of the Act on Promotion of Improvement of Disaster Management Districts in Populated Urban Districts
5.3 The Revision of the Act on Promotion of Improvement of Disaster Management Districts in Populated Urban Districts
5.4 The Criteria for Selecting Areas to Be Improved
5.5 The Utilization of GIS for Preventive City Planning-Particularly for Built-up Areas Made Up of Wooden Buildings
6 Summary
Chapter 2: Theory of Spare City Planning: For Temporary Use in Case of Emergency
1 The Identification of Problems
2 Local Evacuation Shelters
2.1 History of Local Evacuation Shelters and the Situation in Kobe City
2.2 Definition of a Local Evacuation Shelter
2.3 Evacuation in the Great Hanshin-Awaji Earthquake
2.4 Designation of Local Evacuation Shelters
2.4.1 Evaluation of the Function of Regional Evacuation Areas
2.4.2 Designation and Utilization of Local Evacuation Shelters
Summary
The Numbers of Local Evacuation Shelters and Evacuees
The Population and Local Evacuation Shelters
The Percentage of Collapsed Houses and Local Evacuation Shelters
The Evacuation Range
2.4.3 Criteria for Designating Local Evacuation Shelters
3 Temporary Housing
3.1 The Significance of Temporary Housing
3.2 The Process for Building Temporary Housing in Kobe City
3.3 Conditions for Calculating the Necessary Number of Temporary Houses
3.4 Temporary Use of Public Subsidized Housing
3.5 Determining the Number of Temporary Houses
3.6 Selection of Temporary Housing Sites
3.7 Direction of Discussions on Land for Temporary Housing
4 Debris
4.1 Significance of Debris Problems
4.2 Facing Debris Problems
4.2.1 Dealing by the National Government
Entities Responsible for Debris Control
Bearing Costs
Involvement of the Self-Defense Forces
4.2.2 Measures Taken by Hyogo Prefectural Government and Kobe Municipal Office
4.3 Confusion over the Estimated Volume of Produced Debris
4.4 Landfills
4.5 Projected Volume of Debris Produced
4.5.1 Estimating Seismic Intensity in the Event of an Earthquake
4.5.2 Estimating Building Damage
4.5.3 Estimating Volume of Debris Resulting from Damage to Buildings
Chapter 3: Reconstruction Plans
1 Risk Management in Reconstruction Plans
2 Risk Management by the National Government
2.1 Legislative Risk Management
2.1.1 The Great Kanto Earthquake (The Special City Planning Act as a Basic Reform Measure)
2.1.2 The Amakusa Disaster (The Act on Special Financial Support for Promoting Group Relocation for Disaster Mitigation (The G...
2.1.3 The Great Hanshin-Awaji Earthquake (The Act on Special Measures Concerning Reconstruction of Urban Districts Damaged by ...
The Outline and Significance of Legislation After the Great Hanshin-Awaji Earthquake
Significance of the Act on Special Measures Concerning Reconstruction of Urban Districts Damaged by Disaster
2.2 Organizational Risk Management (By the Central Government)
2.2.1 The Great Kanto Earthquake
Imperial Capital Reconstruction Council
The Imperial Capital Reconstruction Agency, the Reconstruction Bureau, and the Reconstruction Secretariat
The Imperial Capital Reconstruction Agency
The Reconstruction Bureau
The Reconstruction Secretariat
2.2.2 The Great Hanshin-Awaji Earthquake
The Emergency Response Headquarters, the Special Assignment Office, and the Local Countermeasures Headquarters
Debates in the National Government on Reconstruction Apparatus
The Hanshin-Awaji Reconstruction Committee and the Hanshin and Awaji Reconstruction Measures Headquarters
The Activities of the Hanshin-Awaji Reconstruction Committee and the Hanshin and Awaji Reconstruction Measures Headquarters
The Hanshin-Awaji Reconstruction Committee
Hanshin and Awaji Reconstruction Measures Headquarters
3 An Examination of the Consensus Building Process
3.1 Consensus Between Administrative Organs
3.1.1 The Reconstruction Committee
The Essential Points of the Committee´s Opinions
Reconstruction Plans in a Broad Sense
Reconstruction Plans in a Narrow Sense
The Achievement Levels for the Proposed Opinions
Reconstruction Plans in the Broad Sense
Reconstruction Plans in the Narrow Sense
3.1.2 The Reconstruction Measures Headquarters
3.1.3 Central Government Ministries and Agencies
3.1.4 The Act on Special Measures Concerning Reconstruction of Urban Districts Damaged by Disaster
Restrictions on Building Activities, etc. (Article 7)
The Purchase of Land (Article 8)
Apartment Sites for Reconstruction
Set-Aside Land for Public Houses, Common Facilities, and Convenience Facilities (Article 17 of the Law)
The Relaxation of Requirements for Redevelopment Projects for Reconstruction (Article 19)
Special Provisions on Eligibility for Moving into Public Housing, etc. (Article 21)
Special Provisions Concerning the Urban Development Corporation and the Local Housing Corporations (Articles 22 and 23)
3.1.5 The Hyogo Prefectural Government
3.2 Local Residents Including Landowners
3.2.1 The Kobe Municipal City Planning Council
3.2.2 Town Development Councils
4 Theory of Pre-Disaster Recovery Plan: Preventive Risk Management
4.1 Imperial Capital Earthquake Reconstruction Plan
4.2 Theory of Pre-Disaster Recovery Plan and Its Genealogy
4.2.1 Theoretical Basis
Delay in the Formulation of Urban Disaster Management Plan
Implementation of the Reconstruction Plan After the Earthquake: Conflict of Interest
4.2.2 Disaster Management Basic Plan
4.2.3 Pre-Disaster Recovery Plan Development Study (National Land Agency)
Assuming the Scale of Damage to Be Caused by an Earthquake
Designating Target Districts for Reconstruction
Preparation of Pre-Disaster Recovery Plan by District
4.2.4 Tokyo Metropolitan Earthquake Reconstruction Grand Design and Disaster Prevention Urban Development Plan
4.2.5 Proposals of Academic Societies on Reconstruction Plans After the Great Hanshin-Awaji Earthquake
City Planning Institute of Japan (March 1995)
Japan Society of Civil Engineers (March 1995)
Architecture Institute of Japan (January 1998: The Third Proposal, Following Those of July 1995 and January 1997)
Association of Urban Housing Society (February and March 1995)
Institute of Social Safety Science (February 1995)
4.3 The Goals of Reconstruction Plans
4.3.1 The Principle of Promptness
A Survey of the Affected Areas
Publication of the ``Basic Policies on the Development of Urban Areas and Housing for Post-earthquake Reconstruction´´
The Designation of Areas Based on Article 84 of the Building Standards Act
The Establishment of the Emergency Earthquake Reconstruction Ordinance
The Enactment of the Act on Special Measures Concerning Reconstruction of Urban Districts Damaged by Disaster
4.3.2 The Principle of Disaster Resistance Strengthening
4.3.3 The Relationship between the Rationalization/Specialization of Land Use and the Theory of Reconstruction Planning in the...
4.4 The Types of Reconstruction Plans
4.4.1 The First Type of Plan: Reconstruction Plans for the Restoration of the Original State and the Addition of Public Facili...
4.4.2 Reconstruction Plans for Community Disaster Management
4.4.3 Reconstruction Plans for Regional Risk Management
4.5 The Theory of Pre-Disaster Planning for Reconstruction
4.5.1 The Necessary Conditions for the Theory of Pre-Disaster Planning for Reconstruction
4.5.2 The Sufficient Conditions for Pre-Disaster Planning for Reconstruction
A Clear Statement That Disaster Management Is One of the Purposes of City Planning
City Planning for Urban Facilities Used for Emergency Disaster Management Activities
Improving the Land Swapping and Consolidation Method: Removing the ``Correspondence´´ Principle
Creating Master Plans
Seismic Retrofitting of Housing
Chapter 4: Summary and Issues That Need to Be Considered
1 The Relationship Between the National Government and Local Governments
1.1 Legislative Measures
1.1.1 Laws Which Changed Citizens´ Rights and Obligations (Relief Measures for Victims)
1.1.2 The Following Laws Were Enacted in Order to Show the National Government´s Commitment to the Post-Disaster Recovery and ...
1.1.3 The Following Laws Were Enacted for the Implementation of Emergency Disaster Management Activities, the Post-Disaster Re...
1.1.4 The Following Laws Were Enacted in Order to Ensure the Active Involvement of the National Government in Disaster-Resista...
1.2 Organizational Measures
1.3 Fiscal Measures
1.4 Discussions Regarding Reconstruction Plans
2 City Planning (Community Development) and Disaster Management
2.1 Relations with Emergency Operations (Initial Response)
2.2 Relations with Recovery Operations
2.3 Relations with Reconstruction Plans
3 Issues to Be Examined
3.1 Prioritization of Areas with Close-Set Wooden Houses by DIS and Establishment of Implementation Mechanism
3.2 Evacuation Centers
3.3 Temporary Housing
3.4 Debris Control
3.5 Designation of Evacuation Centers, Temporary Housing, and Debris Management Sites Under City Planning (Spare City Developm...
3.6 Pre-Disaster Recovery Plan
3.6.1 Specifying Disaster Management Objectives in the City Planning Act
3.6.2 Designation of Urban Facilities that Function as Emergency Operation Bases Under City Planning
3.6.3 Improvement of Land Exchange and Consolidation Scheme-Abandoning the Principle of Exchange of Equivalents
3.6.4 Formulation of Master Plan
3.7 Seismic Retrofitting
Chapter 5: Conclusion: How to Embrace Lessons Learnt from Previous Earthquake Disasters
1 Lessons from the Great Kanto Earthquake
2 Lessons from the Great Hanshin-Awaji Earthquake
2.1 Initial Response System
2.2 Seismic Retrofitting of Buildings
3 Great East Japan Earthquake
4 Have We Learnt from Lessons?
4.1 Initial Response System
4.1.1 Enhancement of Cabinet Functions
4.1.2 Immediate Collection of Information from Various Angles and Centralized Information Management System
4.1.3 Swift Action
4.1.4 Establishment of Wide-Area Support System
4.2 Effects of Improvement
4.3 Seismic Retrofitting of Buildings
4.4 Pre-Disaster Recovery Plan
4.5 Great East Japan Earthquake
Index
