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Social Protection and Natural Disasters

Shoichi TawakiDirector, Crisis Management Department

City of Sendai, Japan

Disasters

Contents

1. About Sendai City: Damage from the Earthquake and Tsunami in 2011

2. National laws and policies on Emergency Social Assistance

3. Institutional Arrangement for Emergency Social Assistance

4. Bolt and nuts for emergency social assistance (Horizontal Expansion)

5. Expanding support for most vulnerable(Vertical Expansion)

6. From lessons learned -Toward Resilient Sendai city-

8 March 2018 2

①仙台市のプロフィール

人口百万人を有する東北地方最大の都市。1601年伊達政宗公によって雄藩の城下町として栄え、東北の政治・経済・学術・文化の中枢都市として発展

②人口等（2018.1.1現在推計人口）

人口 1,087,091 人 509,617 世帯

行政区 5（青葉区,宮城野区,若林区,太白区,泉区）

③地勢

・面積約785km２ （東西約50km南北約30km）

・西側は標高1,000m級の山地 （主に山林）

・中央部は丘陵地、その間を七北田川、広瀬川、名取川が東流 （主に市街地、住宅地）

・東部は低地（主に農耕地（一部仙台港区））

Sendai City Overview

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[1] Sendai city profileWith a population of one million, Sendai is the largest city in the Tohoku region. Constructed by Date Masamune in 1601, the city prospered as the home of a powerful feudal clan’s castle, and grew as the center of government, economy, academia and culture in the Tohoku region.

[2] Demographics (Jan. 1, 2018 estimate)Population: 1,087,091 persons; 509,617 householdsAdministrative districts: Five (Aoba-ku, Miyagino-ku, Wakabayashi-ku, Taihaku-ku and Izumi-ku)

[3] Geography• Area: 784 sq. km (roughly 50 km west to east, and 30 km north to

south)• Its western region consists of mountainous terrain at elevations in

the 1,000 meter range (mostly mountain forests).• Its central region consists of hilly terrain, through which the

Nanakitagawa River, Hirosegawa River and Natorigawa River flow eastward (mostly urban and residential areas).

• Its eastern region consists of lowlands (mostly agricultural [partly the Sendai port district]). 3

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Sendai City has been taking Disaster Risk Management (DRM) measures based on the lessons of past earthquake disaster

1978年宮城県沖地震

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1978 Earthquake off the Coast of Miyagi

Damage & Loss

• Deaths: 16, Injuries: 10,119• Residential damage: 4,385 completely or partially destroyed; 86,010

partially damaged

Learning from the past : Countermeasures taken after this earthquake

5:14 p.m., June 12, 1978: Earthquake with a magnitude of 7.4

• Earthquake resistance upgrades for buildings and infrastructures(especially for public buildings –i.e. schools)

• Improving citizen’s awareness of disaster preparedness (volunteer DRM organizations, DRM drills for kids, citizens)

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2011年3月11日 14時46分マグニチュード9.0（市内宮城野区最大震度6強）の地震が発生太平洋沿岸で津波被害が発生（仙台港の推定波高7.1m）

東日本大震災

●宮城県沖地震の再来に備えた対策による被害の軽減・ブロック塀の倒壊による死者ゼロ・学校管理下での児童・生徒の死亡ゼロ・水道は18日間(全面復旧まで１月)の早期復旧

（津波被害、地滑り被害地区を除く）・ガスは約１月の早期復旧・地域住民の主体的活動(共助)が、避難所運営や在宅避難者の見回りなどの場面で力を発揮

●仙台市域の被害（2017年3月1日時点）・死者904名（震災関連死含む）、行方不明者27名・重傷276名、軽傷1,999名・建物被害：全壊30,034棟、大規模半壊27,016棟、

半壊82,593棟、一部損壊116,046棟

Although the disasters in 2011 was over our expectation, ex-ante measures mitigated loss & promoted recovery.2011 Great East Japan Earthquake

Mitigated damage by countermeasures after the past disaster

2:46 p.m., March 11, 2011: Earthquake with a magnitude of 9.0Tsunami reached 7.1 meters at Sendai Port

Damage & Loss (as of March 1 2017)

• Deaths: 904, Missing: 27• Serious injuries: 276; Minor injuries: 1,999• Damage to buildings: 30,034 completely destroyed; 27,016 major parts

destroyed; 82,593 partially destroyed; 116,046 partially damaged

• Deaths from collapsing cinder block walls: 0• Deaths of school children under school supervision: 0• Quick recovery of waterworks in 18 days (full recovery in one month)

(excluding districts with tsunami or landslide damage)• Quick recovery of gas in roughly one month• Voluntary (mutual aid) actions taken by community residents proved to be

highly effective in evacuation shelter operations and neighborhood watches for victims who remained at home. 5

The National DRM Act draws a framework for all related acts on Disaster Response and Emergency Social Assistance (SA)

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Preparedness/Mitigation Response Recovery/Reconstruction

National DRM Act

Earthquake countermeasures Act

Tsunami countermeasures Act

Disaster Relief ActActs against specific earthquakes

Acts for promoting countermeasures

Acts related to landslide,Heavy snow, debris flow

Nuclear Accident countermeasures Act

Flood countermeasure Act

Volcanic eruption countermeasures Act

River Act

Fire Service ActPolice Act

Self Defense Forces Act

Framework

Disaster Type base

Response Framework

Supporting Arrangement

Act on Special Financial Support to deal withthe Designated Disaster of Extreme Severity

National Financial arrangement

Acts for financial supports for recovery

Instruments for Supporting victimsActs for Instrument programsi.e. Cash transfers, unemployment

InsuranceActs for Insurancesi.e. earthquake, agriculture, forest

Tax waiverActs for Tax waiver for victims

Ex-ante Ex-post

Supports to victims

In-kind support is major for response, while financial support begins for recovery of livelihoods considering the different

situation and needs of affected households

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Supporting instrumentsSituation/Needs

Building damage, Human Loss

Become physically impaired (Disability)

Need temporary budget for living and recovery

Need support for kids

Not affordable to pay taxes

Cannot maintain an own life (New chronic poverty)

Lost jobs

Unconditional Cash transfer

Unconditional Cash transfer

Interest-free loan options

Conditional Cash transfer for enrollment and necessary items, Interest-free loan options

Tax reduction and exemption

Conditional Cash transfer

Unconditional/Conditional Cash transfer, Cash for Work with trainings

Recovery

Response

Urgent needs for temporarily assure lives In-kind transfers for all victims

8 March 2018

To identify eligible households, implemented damage survey effectively using aerial photos and field survey.

• This is to promptly expand the coverage of beneficiaries after a disaster.

• Sendai city took steps to expedite the process of damage survey by utilizing aerial photography and simplifying the survey items.

• The certificate of damage will be the base for post-disaster support.

• Survey criteria are based on Cabinet Office guidelines and other guidelines.

Earthquake damage

<Inland urban areas>

Mixture of completely and partially destroyed properties

Most properties completely destroyed

Regions with damage

sustained (solely) from

the earthquake

<Coastline>

Sendai Tobu Road

Regions with mixture of

earthquake and tsunami

damage(Regions with damage other than from the earthquake,

such as flooding)

Regions primarily with

tsunami damage

(Regions with catastrophic

tsunami damage)

Shiogama-W

atari prefectural road

Delineation of

tsunami reach

Pinpoint survey Combination of individual and regional

surveys

Across-the-board 2-D surveys

Survey method- Primary: Visual- Secondary: On-site survey(Disaster information, degree of immediate danger, Teage [self-nomination] method)

- Self-diagnostic method

Survey method- Overall visual surveys by district

- On-site interior survey of individual sites

- Using aerial photography and GIS

Survey method- Overall visual surveys (overview study)

- Using aerial photography and GIS

8 March 20188

Developed unified management system with GIS to link existing information (i.e. building /land ownerships) and damage & loss data

• A system was developed for managing information on damaged buildings, including results from building damage certification surveys, and this system was implemented in all districts and the central branch to expedite the issuance of disaster victim certificates.

• GIS data from the real estate tax section was utilized in building damage certification surveys.• The entire process from reception and survey to certificate issuance was vertically managed on this system

to accommodate fluctuations in demand.

Applications (per week)

30,000 remaining

60,000 remaining

9,000 remainingApplications processed over timeDisaster strikes

Less than 200

Phase I Phase II Phase III

Application reception

Survey

Issuance

General affairs sections at regional Disaster Control HQs

General affairs sections at regional Disaster Control HQs

General affairs sections at regional Disaster Control HQs

With support from the tax affairs and tax payment section

With support from the tax affairs and tax payment section

Preparations and seminars held by the tax affairs and tax

payment section

Preparations by general affairs sections at regional Disaster

Control HQs

Tax affairs and tax payment sectionUrban development departmentOther departmentsOther municipalitiesNational and prefectural governments

Tax affairs and tax payment sectionUrban development department

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Following up after recovery assistances: Targeting vulnerable households left from recovery

Category Jan. 1, 2016 Percentage

Prefab temporary housing

402households 9.4％

Leased private rental housing

3,746households 87.1％

Leased public rental housing

192households 4.5％

Total 4,340households

Number of households in temporary housing

1346 1263 1170 1086 1020 843 771 544 402

9838 9140 8476 7714 72016264 5815

4214 3746

825789

737711

680

390 350

251192

0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

H24.3末 H24.10 H25.4 H25.10 H26.4 H26.10 H27.4 H27.10 H28.1プレハブ仮設住宅 借上げ民間賃貸住宅 借上げ公営住宅等

Households still living in the emergency temporary housings

● Survey was conducted throughout the city by city office employees and livelihood rehabilitation support staff

● Consultation visits performed by livelihood rehabilitation support staff, which initially began as visits to collect survey forms and for follow up, were upgraded to full-fledged operations in fiscal 2012, and individual visits to households living in temporary housing in the city began in October the same year.

End of Oct. 2012 April 2013 Oct. 2013 April 2014 Oct. 2014 April 2015 Oct. 2015 Jan. 2016March 2012

Prefabricated temporary housing Leased private rental housing Leased public rental housing

Individual visits to understand living situation at each household

8 March 2018 10

Continued recovery support in align with regular social welfare support to targeted vulnerable households

Home rebuilding

Day-to-day support(includes support for communities living in temporary housing)

Achieve livelihood

rehabilitation

Support for community building in new homes

day-to-day support.

support for home rebuilding

● Home rebuilding is a common issue for households living in temporary housing, and in all cases, this must be achieved within the limited terms of provision.

● Meanwhile, households that require day-to-day support, including health and welfare related support, must be given support based on a long-term perspective, regardless of progress with home rebuilding.

Temporary housing

After relocation from temporary housing to permanent residence (long-term, ongoing)

Term of temporary housing provision (short-term, time-limited)

The establishment of a residents' association serves as a guideline (continued under a different executing body).

Highlighted were the qualitative differences between

With the disaster victim livelihood support section taking primary charge of home rebuilding support, the ward office and other organizations were able to focus on

day-to-day support, community support and other areas of support.

Home rebuilding support

and

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Categorization-based support promoted recovery of affected households

Households able

to rebuild their

livelihoods

Households

receiving day-to-

day support

Households receiving day-to-day support and

home rebuilding support

Households receiving

home rebuilding support

Low ← Needs for regular supports → High

High ←

Capacity

ofhom

e rebuilding→

Low

・Individual visits・Healthcare support・Watch-over and day-to-day counseling・Utilization of regional healthcare and welfare services

・Individual visits・Healthcare support・Watch-over and day-to-day counseling・Utilization of regional healthcare and welfare services・Accompaniment support for taking residence in private rental housing・Counseling and support in collaboration with an attorney

・Individual visits・Employment support・Accompaniment support for taking residence in private rental housing

・Survey and verification・Information dissemination・Support for taking residence in public housing・Counseling and support for home rebuilding

Support common to all households including those who

are able to rebuild their livelihoods

Slated for individual support

Slated for individual support

Individual visits by livelihood rehabilitation support staff

Healthcare support by a public health nurse

Category 1Category 2

Category 3Category 4

Roughly 96% of the households have rebuilt after starting continuous support.

Four categories of households based on Capacity of recovery & Needs for regular supports

5,589 households

319 households

536 households

24 households

2,119 households

33 households

263 households

4 households

0 世帯 1,800 世帯 3,600 世帯 5,400 世帯 7,200 世帯 9,000 世帯

Apr. 2014

Dec. 2017

生活再建可能世帯日常生活支援世帯住まいの再建支援世帯日常生活・住まいの再建支援世帯

8,507households

380 households

Households able to rebuild their livelihoodsHouseholds receiving day-to-day supportHouseholds receiving home rebuilding supportHouseholds receiving day-to-day support and home rebuilding support

0 households 2,000 households 4,000 households 6,000 households 8,000 households 12

From lessons learned -Toward Resilient Sendai City-

• Be Ready for Collaboration: Devastating disasters would exceed the capacity of well-prepared local governments– Formulated wide-range support and support reception plans– Supported other prefectures utilizing experiences

• Strengthen Support System for Vulnerable: The loss of the elderly and people with disabilities was enormous– Revised the People Requiring Assistance Registration System

• Promote Community Resilience: Community-based Mutual aid played an important role in damage mitigation.– Shared the list of above information with the communities and

enhanced their activities

• Prepare with Gender Perspectives• Promote Continuous Efforts - toward making Sendai a

“Disaster-Resilient and Environmentally-Friendly City”

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