MLIT’s future tsunami disaster countermeasures based on the lessons learned from the Great East Japan Earthquake October 2012

Koji IKEUCHI Director of River Planning Division, Water and Disaster Management Bureau, MLIT, Japan 0

1. Damages caused by the Great East Japan Earthquake

2. MLIT’s emergency response to the Great East Japan Earthquake 3. MLIT’s future tsunami disaster countermeasures based on the lessons learned from the Great East Japan Earthquake 1

Overview of Earthquake & Tsunami ○ On March 11, 2011, a massive earthquake of magnitude 9.0 occurred off Sanriku coast. ○ The earthquake caused massive tsunami from Hokkaido to Kanto. ○ The scale of tsunami was equal to or larger than that of the Jogan Tsunami (869). The return period is estimated to be 500 to 1000 years. * White Paper on Disaster Management 2011,

Cabinet Office, Government of Japan

Epicenter distribution and magnitude Tsunami inundation and run-up height 15:08 Ｍ 7.4 15:25 Ｍ 7.5

Hokkaido

Inundation height Tsunami run-up height

14:46 M 9.0 Tohoku

15:15 Ｍ 7.7

Kanto

height[m] Research Center for Prediction of Earthquakes and Volcanic Eruptions, Tohoku University http://www.aob.geophys.tohoku.ac.jp/info/topics/20110311_news/index_html

The 2011 Tohoku Earthquake Tsunami Joint Survey Group report (As of July 5, 2011) http://www.coastal.jp/ttjt/

40m

2

After the earthquake

Before the earthquake

Subsidence ○ Earthquake deformation caused extensive subsidence in the Sendai plain. ○ Announced the status of subsidence based on the Laser Profiling (LP) surveys. ○ The extent of the area below the mean sea level increased by 5.3 times. ○ Fully or partly tsunami destructed coastal levees along the entire coastline. ○ Sendai plain’s safety level against storm surges have been reduced significantly. ○ The flood forecast warning standards have been lowered accordingly.

Natori River

Comparing areas before and after the earthquake

Sendai Airport

Abukuma River

Below average sea level 3 km2 → 16 km2 (x 5.3) Below Before 3.11 high tide level at the time of spring tide 2 32 km → 56 km2 (x 1.8) Below largest recorded sea level 83 km2 → 111 km2 (x 1.3)

Surveyed in 2005 and 2008

Natori River

Sendai Airport

Abukum a River

Surveyed in 2011

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Initial damages caused by the Great East Japan Earthquake ( Ishinomaki City, Miyagi Pref. ）

Photo: Tohoku Construction Association

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Damages caused by Tsunami (2/2) ○In Rikuzentakata city 13km2 was inundated※1. 90% of the urban area (2.9 km2 ) in Rikuzentakata city was inundated※2. ○3,159 buildings were destroyed, the number of fatalities was 1,691 and missing persons were 41※3. ※1：Aug 4 2011 press release by City Bureau, MLIT ※2：Date source from City Bureau, MLIT ※3：Produced from Rikuzentakata City HP (As of Mar. 1, 2012)

Looking at Rikuzentakata from the sea side (After tsunami)

津波浸水範囲 津波浸水範囲

Before tsunami（Oct. 18 and 29, 2010）

After tsunami（Mar. 13, 2011）

Produced from 4th meeting of The Reconstruction Design Council in response to the Great East Japan Earthquake (Oct. 5 2001)

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大槌町

Damages caused by Tsunami(1/2) 釜石市

○535km2 of land was inundated by

tsunami in Tohoku and Kanto region. Approx. 10% (119km2 *1) of urban area was inundated. ○129,944 buildings were destroyed, The number of fatalities was around 15,861 and missing persons were around 3,018. * 2

②

陸前高田市 陸前高田市

気仙沼市

①

①

Rikuzentakada city

気仙沼市

南三陸町

石巻市 東松島市

多賀城市

②

七ヶ浜町

③

仙台市

名取市

④

③

岩沼市

Maximum area inundated

亘理町

山元町

新地町 相馬市

④

南相馬市

* 1: Aug 4 ,2011 press release by City Bureau * 2: Produced from “Damage Situation and Police Countermeasures associated with 2011 Tohoku district - off the Pacific Ocean Earthquake” by National Police Agency (June 6, 2012)

Produced from “Inundation Condition Map” by Geospatial Information Authority

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Damages to the Coastal Levees ○ Along the 1,700km coast of Iwate, Miyagi & Fukushima prefectures, there were 300km of coastal levees. ○190km of the levees were fully or partly destroyed. 【Sendai Gulf Southern Coast】

After

Before

Photo on March 12, 2011

【Kasano District】

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Water gate significantly reduced tsunami innundation (Fudai village, Iwate Pref.) ○ Although the tsunami overflowed the Fudai Gate, it did not give the heavy damage to the hinterland in the urban area with the effect of the gate which slow down tsunami. Fudai-village urban area

levee heightT.P.+15.5m

Photo on March 12, 2011

Estimated overflow depth 7.2m（Inundation height near the Gate T.P.+22.6m, ground subsidence level* 0.1m） ※Produced from “（ Counter map of vertical displacement ）” by Geospatial Information Authority

Iwate Pref.

Photo on March 28, 2011

Urban area

Fudai-village

Urban area

the extent of the inundated area the extent of the inundated area

Fudai Gate

Fudai Gate ①Fudai Gate（From gate upstream）

Costal protection area

Ground subsidence level 0.1m

Current gate opening at normal water-level （Open and Close manually）

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1. Damages caused by the Great East Japan Earthquake

2. MLIT’s emergency response to the Great East Japan Earthquake 3. MLIT’s future tsunami disaster countermeasures based on the lessons learned from the Great East Japan Earthquake 9

Basic Principles for MLIT’s Emergency Response

○ While save human lives as the highest priority, exert every possible effort in rescue and relief operations for affected people as well as securing emergency transportation routes by land, air or sea. ○ Vigorously pursue such measures as livelihood assistance to affected people, securing of logistics operations, rehabilitation of facilities such as roads, ports, airports, railways and rivers, securing of housings for affected people and assistance to affected municipalities. 10

Establishment of MLIT’s Emergency Headquarters ○ Established MLIT’s Emergency Headquarters at 15:15 (approx. 30 minutes after the quake) Chief of headquarters: Minister of MLIT , Members of headquarters：DirectorGenerals of MLIT’s Bureaus ○ The first meeting was held from 15:45, March 11. Meetings were held three to four times a day in the period immediately after the earthquake. 50 meetings have been held since. ○ Information is shared simultaneously with regional bureaus nationwide by utilizing the TV conference system. ○ Prompt information sharing, quick decision-making and implementation of measurements could be achieved.

MLIT’s Emergency Headquarters

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TEC-FORCE Dispatch ○ TEC-FORCE (Technical Emergency Control Force) is, under the direction and supervision of the Minister of MLIT, expert group that provides technical assistance for disaster emergency measures and fast rehabilitation in the affected areas at the time of large scale natural disasters. (consists of MLIT staff) ○In the case of the Great East Japan Earthquake, TEC-FORCE became operational on the same day of the disaster with 62 experts. 397 experts the next day and there were more than 500 experts by three days later.

18,115 person-day (Jan 9, 2012)

Securing communication circuit by satellite communication vehicle

Survey of disaster affected areas

Supporting affected municipalities (technical assistance)

Support to search missing persons with drainage pump vehicles local needs survey Survey of disaster affected rivers

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Road Clearing-off (Operation “Toothcomb”) Progress of Road Clearing-off from National Route No. 4 to National Route No.45 & 6 through each route

During Road Clearing-off (March 16, 2011)

Before Road Clearing-off

４

Hachinohe 45

② ①

Karumaicho

395

Kuji

③ 281 9

Iwatemachi

④

455

Morioka

Rikuzentakata City, Iwate Prefecture

Rikuzentakata Kesennuma

Secure the vertical artery of Tohoku Expressway and National Route No. 4

Minami-Sanriku

Ishinomaki Horizontal lines

Secure the vertical artery of Tohoku Expressway and National Route No. 4 to access the Pacific coast area.

National Route No.45

Ofunato

Pacific

Kamaishi

Pacific

Miyako

Pacific coast route

Kuji

＜Third Step＞ Tohoku Expressway, National Route No.4

＜Second Step＞ Tohoku Expressway, National Route No.4

Pacific

Vertical artery

Tohoku Expressway, National Route No.4

＜First Step＞

Ichinoseki Tsukidate,Kurihara Osaki

4 Days after Earthquake occured

⑦ 107 ⑧ 343

283 9

Kamaishi Oofunato Rikuzentakata Kesennuma

⑨ ⑩ Minamisanriku -cho ⑪ 108 398

Ishinomaki

４

⑫ 115

Fukushima

⑬ 114

Nihonmatsu

459

288 9

Koriyama Mar. 18: National Route No.45 & 6 of the Pacific coast route were 97% rehabilitated.Shirakawa

7 Days after Earthquake occured

45

⑥

284 9

45

４

1 Day after Earthquake occured

⑤

106

Hanamaki Kitakami

Iwaizumicho omoto Miyako

49

⑭ 289 9

⑮

Souma Namiemachi Futabamachi Emergency ６ evacuation preparation zone Iwaki （Radius 30km） Nakoso, Iwaki

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Water drainage by pump vehicles ○ A flood damage occurred regionally. 124 water drainage pump vehicles were collected from the all other regional bureaus and rented out intensively for the efforts of early stage activities for lifesaving and the missing persons search. ○ Sendai Airport was also severely damaged by inundation caused by massive tsunami, however water draining by water drainage pump vehicles started on March 17. On March 29, 3,000m runway became usable day and night and transportation of the urgent supplies were started.

■ Water drainage at Sendai Airport March 13

March 24

Water drainage at Sendai Airport started on March 17.

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1. Damages caused by the Great East Japan Earthquake

2. MLIT’s emergency response to the Great East Japan Earthquake 3. MLIT’s future tsunami disaster countermeasures based on the lessons learned from the Great East Japan Earthquake 15

Fundamental Strategy for Tsunami Disaster Measures Reducing human and economic damages by “disaster mitigation” is the fundamental for all levels of tsunami.

Comparatively Frequent Tsunami ○Aim to ensure protection of human lives, assets and national land (coastal line), etc against comparatively frequent tsunami (once every several tens of year to a hundred and several tens of year) on the basis of constructing coastal protection facilities. ○Conduct technical development and improvement of structures so that they cannot be easily broken even when the tsunami height exceeds the design level.

Largest Scale Tsunami ○Aim to save as much human lives as possible against largest scale tsunami by “Multiple Protection” combining structural and non-structural measures such as land use planning, building code and emergency/evacuation procedures.

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Determining the Height of Coastal Levees ＜largest Scale Tsunami＞ ・ For establishing integrated disaster countermeasures focusing on residents' evacuation

Tsunami height caused by 2011 Great East Japan Earthquake ＜Comparatively Frequent Tsunamis＞ ・ For designing the height of coastal levees (tsunamis

Rehabilitation of coastal levee Levee height before disaster

occurring every several tens of years to a hundred and several tens of years ) Tsunami height in 1986 Meiji-Sanriku earthquake Tsunami height in 1933 Sanriku earthquake Tsunami height in 1960 Chilean Earthquake

Subsidence Levee destroyed by tsunami attack

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Resilient coastal levee ○ Improve levee structure to lengthen time to destroy the levee as long as possible, or reduce the probability of destroying all the levee even if the tsunami height exceeds the design level. Structure of coastal levee (example) Contriving ways to interlock between blocks in order to prevent direct effect of fluid force.

Unifying top of slope and crest.

Concrete rendering t = 50cm opening φ 100: 【Seaside】 crushed stone filling） Seaside slope rendering

【Landside】

landside slope rendering 2t coating block

2t coating block

Levee foundation (toe of landside slope)

construction of embankment

Widening the levee foundation as well as ground improvement in order to prevent scouring.

Levee foundation (toe of seaside slope)

Experiment by the National Institute for Land and Infrastructure Management (NILIM), River Department, Coast Division Experimental channel

NILIM implemented improvement of the levee structure and examine the points to be considered in the construction through model experiment or numerical analysis.

Landside

Experimental channels dropping from great heights

Seaside

Levee

The side of the experimental device is fitted with glass so that scouring of the toe of landside slope and the rendering process can be visually observed. (1/25 scale)

Observing changes in scouring of the toe of landside slope and deformation of the coating block on a scale similar to real event (1/2 scale).

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Preparedness for Largest Scale Tsunami (Outline of the Act for Tsunami-Resilient Community)

○ In order to prevent/reduce tsunami disasters in the future, a standard framework was introduced to promote “tsunami resilient community” through “multiple protection” incorporating structural and non-structural measures. ①Principles to be set by the Minister for Land, Infrastructure, Transport and Tourism. ②Tsunami Inundation Assumption to be set by prefectural governors. ③Implementation Plan to be set by municipalities. ④Construction of tsunami protection structures and other measures Prevent expansion of inundation ⑤ “Tsunami Disaster Security Zones” to be designated by prefectural governors. Escape from tsunami (Yellow zone: development of preparedness and evacuation procedures) ⑥ “Tsunami Disaster Special Security Zones” to be designated by prefectural governors. Avoid tsunami (Orange and Red zone: Regulations that requires a safe height and structure for construction and development activities screened by specific standards.)

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Tsunami-resilient community (Multiple protection) Tsunami adaptation structure Zones to prevent inundation Zones to prevent inundation

Tsunami adaptation structure (multiple use structure)

(inland lock gate)

Evacuation route Evacuation site (high ground)

Tsunami Evacuation building

Land raising of residential area Estimated tsunami inundation zone

Designated tsunami adaptation structure (existing road)

Tsunami Evacuation tower

Tsunami Evacuation tower Tsunami Evacuation building Based on selection of the area, “Tsunami Disaster Special Security Zones” to be designated by Governors.

Tsunami Disaster Special Security Zone [Orange zone] Tsunami Disaster Security Zone [Yellow zone] ・Development of preparedness and evacuation procedures (evacuation facilities/ routes, tsunami evacuation drills, information delivery, etc.) ・Preparation of tsunami hazard map by municipalities, etc.

① To make hospitals have some rooms with floor level above estimated tsunami water depth ② Not to make developers build embankments for hospitals

Tsunami Disaster Special Security Zone designated by municipalities [Red zone]

Coastal levee ・To make residential houses have some rooms with floor level above estimated tsunami water depth

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Tsunami-Resilient Community (Multiple protection) Ishinomaki-City Earthquake Disaster Recovery Basic Plan

* “Ishinomaki-city earthquake disaster basic plan” P97

* “Ishinomaki-city earthquake disaster basic plan” P101

Evacuation Schools, Hospitals, Evacuation areas, etc building

Non-inhabitable land Forest zone

Housing Road (bank)

Coastal barrier Breakwater (tsunami absorbing)

(the first defense of tsunami)

Tsunami absorbing

(the second defense of the tsunami)

Road

Residential area

Hills

* “Ishinomaki-city earthquake disaster reconstruction basic plan” P118

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Tsunami-resilient community (Multiple protection) Sendai City Earthquake Disaster Reconstruction Plan For largest scale of tsunami like this time, damages caused by tsunami are reduced by raised roads with additional levee function and plural facilities such as resilient costal disaster prevention forest as well as costal levee and river levee.

青森県

秋田県 岩手県

山形県 宮城県

新潟県

*“Sendai City Earthquake disaster deconstruction Plan” P.35

仙台市 Sendai-city 福島県

Defense for largest scale tsunami City area

Highway Sendai-Tobu Road

Prefectural road Watari, Kamaishi Line

Evacuation facilities

Defense for comparatively frequent tsunami

Park (hill) Coastal disaster prevention forest Coastal levee

Evacuation routes

Teizan canal

Sand beach Sea

Coastal disaster prevention forest Park (hill) Coastal / river levees Sections where raise the road Refuge routes

* “Sendai-city earthquake disaster reconstruction plan” p.15 * “Sendai-city earthquake disaster reconstruction plan” p.15

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Production and dissemination of Tsunami Hazard Map 宮古市 Miyako-city

Tsunami

Evacuation areas / Shelters Evacuation areas Shelters Evacuation routes

Under 0.5m

2.0～4.0m

0.5～1.0m

4.0～6.0m

1.0～2.0m

Over 6.0m

Evacuation areas Evacuation routes

Takonohama 13.6m (33min) 12.4m (36min) 2.6m (31min)

Tsunami inundation depth Explanatory notes

1896 Meiji-Sanriku earthquake: maximum tsunami run-up height (tsunami arrival time)

21 min.

1933 Showa-Sanriku earthquake: maximum tsunami run-up height (tsunami arrival time）

21 min.

Scenario Miyagi prefecture consolidated type earthquake: maximum tsunami run-up height（tsunami arrival time） ×× min.

The shortest expected time of inundation in 3 tsunami scenarios

Jyodogahama 10.8m (33min) 6.0m (35min) 2.4m (33min)

Shelters

23 min.

Sukigasaki 7.4m(32min) 5.4m(40min) 3.0m (35min)

Miyako 7.0m (33min) 6.2m (43min) 3.2m (35min) 23 min.

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Construction of tsunami adaptation structures and other measures (Prevent expansion of inundation)

○ Tsunami Adaptation Structures Such structures as embankment structures, inland lock gates, protective walls or breast-walls built and managed by governors or mayors based on tsunami inundation estimation in order to prevent or mitigate human damages caused by tsunami disaster. Schematics of Tsunami Adaptation Structure ○Installation of inland lock gate to

existing road embankment

○Embankment structure as multiple-use infrastructure (tsunami adaptation structure, road, etc)

○Installation of breast-wall to existing road embankment

Inland lock gate Breast wall Protective wall * Build barriers by embankment * Install lock gate or protective walls as necessary

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Effort of disaster education and transmission ○ In the 2011 Great East Japan Earthquake, there is a good example of minimizing damage: junior high school students helped evacuation of elementary school students, and then their evacuation behavior triggered neighbors' evacuation. ○ By using an integrated learning curriculum, disaster education which covers local characteristics, damage situations in the past, and appropriate behavior during a disaster is implemented.

Support to integrated learning curriculum on disaster

Examples of slides in the lectures Chilean Earthquake tsunami, Inland Sea Bridge

■ The MLIT officials explain the following contents in a delivery lecture: ・ Characteristics of a local river. ・ Situation of past disasters (flood, high tide, tsunami, earthquake) ・ Damage by the Great East Japan Earthquake, and the restoration situation ・ Appropriate behavior during disasters (the lessons from past disasters) Damage by the typhoon 6, on July, 2002

Ishinomaki city Inundation area Inundation above ground floor level: 42 Inundation below ground floor level: 118

Delivery lecture in Nakasato Elementary School, Ishinomaki-city

Delivery lecture in Koriyama Elementary School, Sendai-city

Inundation area: 37ha

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Tsunami-resilient community (Construction of tsunami sign along national routes) ○ To Reduce tsunami damage, tsunami information boards and tsunami signs in national routes were set to alert appropriate evacuation behavior to road users. ・Set up a tsunami information board on high ground in front of a tsunami information board, and display tsunami warnings delivered by a meteorological observatory in real time. ・To prevent proceeding into the probable tsunami inundation area by informing tsunami information before tsunami arrival for road users. ・in addition to the sign, monitoring cameras and loudspeakers are used to prevent proceeding into the area.

・To reduce tsunami damage by displaying sign of a tsunami inundation section, publicizing the section to road users, and supporting their evacuation behavior.

Tsunami Inundation section sign Tsunami information board

Tsunami Inundation section start-finish sign

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Setting of tsunami inundation sign board and evacuation sign ○ In Miyagi prefecture, tsunami inundation sign board and evacuation sign and so on were set for tsunami-resilient community toward reconstruction.

Measures in Miyagi prefecture Tsunami inundation sign board (in front of the

evacuation guidance sign

Ishinomaki station)

Miyagi prefecture HP: ”Ishinomaki reconstruction news Vol.9”

Miyagi prefecture HP:“tsunami evacuation structure development guideline ”

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Designation of Tsunami Evacuation Building

Construction of Evacuation Route

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Evacuation Drill

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Conclusion (Future Tsunami Disaster Measures) Implement measures of disaster mitigation (protecting human as same as reducing damage as much as possible) by incorporating appropriate structural and non-structural measures toward all levels of tsunami.

○Comparatively frequent tsunami

－Protect human lives, assets, socioeconomic activities and national land by constructing coastal protection facilities.

○Largest Scale Tsunami

－Give the first priority to saving lives. Promote “tsunami-resilient community” through “Multiple Protection” flexibly incorporating structural and non-structural measures. • Production and dissemination of Tsunami Hazard Map • Development of preparedness and evacuation procedures • Improvement of land use and style of living • Securing evacuation facilities such as tsunami evacuation building, evacuation site and evacuation route. • Construction of tsunami adaptation structures using existing road embankment, etc. • Disaster transmission, effort of disaster education, evacuation drill

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Thank you for your attention 31