20 Years’ History and Development of the Japanese Disaster Education and Disaster
Management at School : Putting Safety of School and Children Centered
Yoshio Toda
Professor,
Tokyo Women’s College of Physical Education
Former physical-education officer of MEXT
I would like to covey my sincere condolence and sympathy to the affected people and deceased's family members who lost their loved ones by natural disasters including the Great East Japan Earthquake, typhoons, eruption of
volcanos. I wish earliest possible recovery and reconstruction.
Contents
１．Hanshin Awaji Earthquake (1995) as a starting point of the Japanese disaster education and disaster management at school
２．20 years efforts to overcome issues and challenges on disaster education and disaster management at school beyond recovery and reconstruction of the affected areas
３．Issues and challenges for further development of the Japanese disaster education and disaster management at school
１．Hanshin Awaji Earthquake (1995) as a starting point of the Japanese disaster education and disaster management at school
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Feature of the Earthquake
Kobe-Hanshin area was a place with a population of 3.5million as well as a center of economic activities. The earthquake occurred there as inland and urban epicentral type.
The epicenter was at depth of 16km. The earthquake was caused by strike slips of fault. Huge energy was released at once.
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Summary of the Damage
1. A large city was attacked directly by the mega-earthquake. Damages to utilities (electricity, water, gas) became wide-spread and lifeline, including railroads, bullet trains, high-way, and so one were severely damaged by the earthquake.
2. Large scale collapse of houses and fire happened at residential areas with old, and wooden housings, such as Hyogo-ward and Nagata-ward of Kobe city.
3. Many residents were forced to live at evacuation shelters since the earthquake occurred at highly population-densed areas, such as Hanshin-Awaji area.
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Summary of the Damages
２００６年5 月19 日消防庁確定
※ [ ] indicates total number including other prefectures
○ Death 6,402 人 [6,434 人]※ Cause of death: 77% of death are choking and crushing. By age group,
43.7％ was over 65 years old. (H7.1～6 月厚生省調べ)
○ Missing ３ 人 [３人]
○ Injured 40,092 人 [43,792 人]
○ Housing damages
538,767 棟 [639,686 棟]（うち、全壊104,004 棟(182,751 世帯)
半壊136,952 棟(256,857 世帯)）
○Burnt housing
7,534 棟 [7,574 棟]（うち、全焼7,035 棟、半焼89 棟）
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Number of Evacuees(At peak：1995．1.23)
316,678 people 1,153 places
※ 応急仮設住宅が全て完成したことに伴い、平成７年８月20 日をもって災害救助法による避難所の設置運営を終了 8
Issues from Hanshin Awaji Earthquake
MEXT 1995 report
① Japanese schools did not have any equipment and functions (e.g. storage)to serve as shelter. Schools were not prepared for disaster response management system, including issues on how to run the shelter, what were roles
and responsibilities of teachers and staff.
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② Schools were not well prepared as a shelter. School functions as an educational institution were constrained at many schools due to serving as a shelter at the same time.
○It is required for all the schools including urban schools to strengthen earthquake disaster prevention by expecting a large scale earthquake.
○It is required for all the schools to examine safety measures for children by different occasions of a day (staying at school, on the way back home and to school, out of school hours including holidays), and to provide disaster education based on the above.
○It is required to strengthen earthquake resistance of school buildings, safety measures on school facilities and equipment, and communication system.
○It is required that schools should examine school’s roles and function as a shelter, roles and responsibilities of teachers and staff, and what should be prepared for early recovery of schools as education provider.
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What I felt at a time of Hanshin Awaji Earthquake
○ Value of human life
○ Importance of strengthening bonds among people on a routine basis
＊Collaboration among school, households and the community people
＊Appreciation to supports （thanking to many volunteers）
○ Importance of training and disaster education on a routine basis
○ Preparedness in a daily life cycle, and importance of making buildings quake-resistant, strengthening social and economic infrastructure
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２．20 years efforts to overcome issues to attain disaster education
and disaster management at school beyond recovery and reconstruction
of the disaster affected areas
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Improvement at school level to secure safety of pupils and students
MEXT Report on enhancing school disaster
management system（Second report on September 2, 1996)
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①Preparation of school disaster plan
＜Objectives＞
①Institutionalizing school safety check-ups by finding dangerous zones and spots at school facilities, equipment for removing these dangers for safer school life
②Establishing a planned teaching guiding system to foster children’s capability and safe attitudes for protecting own lives from disaster
③Institutionalizing crisis management system at emergency from disaster
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②Promotion of disaster education
Close collaboration with households and community is required for promoting disaster education at school
＜Objectives＞
○Perceiving danger at a time of disaster, preparing for disaster in a daily life. Taking proactive actions for protecting own safety with proper judgment depending on the situation
○Supporting others in their community at a time of disaster and post-disaster period. Contributing to safety of their community
○Understanding basic knowledge on a mechanism of natural disaster, community’s natural environment, disaster and disaster preparedness
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Points of Attention
・Survival skills and knowledge required at a time of disaster
・Importance of volunteer activities as one of important pillars of disaster education
・Joint evacuation drills and school-household-community collaboration on disaster preparedness
・Enhancing teaching training, teaching guides materials, and manuals
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③Preparation of disaster response manuals for teachers to secure children’s safety
○In-advance examination on roles of school disaster response headquarter, allocation of teachers and staff to each group, and informing them tasks and responsibilities
○Preparation of emergency and temporary response and guiding system according to a time of disaster occurred, number of available teachers and staff, depending on the damage situations
○In-advance preparation on how to manage school evacuation shelters and concrete responses. Considering teachers role to respond to children and evacuees at the same time.
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Government Actions to Expand School Safety
① Disaster Education Promotion Area Project
② Production and distribution of disaster education teaching materials
③ Production and distribution of disaster education materials for students
④ Implementation of in-service teacher training
Started in 1997 at national and each municipal level
⑤ Assigning pilot schools and organizing a workshop for promoting research on disaster education
⑥ Expansion of disaster education in a national teaching curriculum guide (1998 revision, health and physical education, science, social science)
these changes were reflected in nationally authorized textbooks)
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Efforts by Prefectures
Gradually improved in Tokyo, Hyogo-Prefecture and Kobe-City,
■ Expansion of evacuation drills at school
■ Production of teaching material “Earthquake and Safety”
■ Preparation of a teaching guide and materials
■ Teacher training
■ Open class at school safety education workshop by the government and Tokyo metropolitan government
■ Promotion of quake-resistant school buildings
■ Preparation of stockpiles at schools as evacuation shelter
These efforts had been made at limited municipalities, but not wide-spread throughout Japan until the Great East Japan Earthquake
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Large scale earthquake continued to happen in Japan after 1995
２００３ Tokachi offshore earthquake
Death/Missing４８
２００４ Niigata-Chuetsu EQ Death/Missing
４０
２００７ Niigata-Chuetsu offshore EQ
Death/Missing ６８
２００８ Iwate-Miyagi Inland EQ
Death/Missing ２３
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After the earthquakes
○Improving quake-resistant ratio of school buildings (among public elementary and junior high schools)
１９９５ Unknown
（94 % of largely collapsed buildings were disqualified??)
２００４ ４４．５％
２００７ ５１．８％
２００８ ５４．８％
２０１０ ６７．０％
２０１３ ９４．６％
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Disaster Education at School
○Increase of evacuation drills at school for earthquake, tsunami, and fire
○Implementation of joint evacuation drills between school and community （not many yet, though）
○Expansion of disaster education contents in authorized school textbooks based on national curriculum guideline
○Emergence of ＥＳＤ：Education for Sustainable Development （only at limited areas and schools）
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教科書の例①（小学校体育科 ５年）
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教科書の例②（中学校保健体育科 ２年）
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And then,
The Great East Japan Earthquake occurred on ２０１１．３．１１．１４：４６
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Damages at Schools and to Pupils and Students
From a MEXT Report on March 2012Respondent to the Survey: 3,127 public and private schools in the affected three prefectures, Iwate, Miyagi and Fukushima
＜Summary＞
• 10 (0.4%) schools experienced human damages by the earthquake. 77.2% of schools got physical damages on buildings. 68.7% of school got damaged at school equipment
• 30 (20.1%) among 149 tsunami damaged schools experienced human damages among pupils and children
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Best Practices
1.(A) Elementary School in Sendai City,
Miyagi Prefecture．
2. (KH) Juior High School and (U) Elementary School in Kamaishi City, Iwate Prefecture
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(A) Elementary School Successful case of routine evacuation training
School surrounded by a vast plane field. Tsunami attached the school. There’s no evacuation place except the school building (4th
stories).
○ Blankets, water and food were stored at a gymnastic hall
○ Routine evacuation training using earthquake early warning system have been conducted at schools, which helped the schools a lot!
○ Pupils evacuated to the 4th floor classroom based on the warning
○ Evacuees from the community were guided to the rooftop. There’s no chaos caused in flow lines of the evacuees
○ All the storage were moved up to the top floor of the building in a case of tsunami attack
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Best Practices in Kamaishi
Kamaishi’s experiences were called as a “Miracle of Kamaishi” .
However, it is NOT a MIRACLE AT ALL！
This is the result of children’s learning from experiential evacuation drills and disaster education. It means that disaster education helped many lives of children and adults.
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岩手県釜石市
鵜住居地区
津波記念碑等
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（群馬大学片田研究室）
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Experiential Evacuation Drills
ーEffect of disaster education that minimize damagesー
Two schools are cases of effective teaching and the result of proper evacuation behavior. According to Kamaishi City Board of Education, 5 children lost their lives among 2,923 pupils and students at Kamaishi’selementary and junior high schools. Those lost children stayed at home. All the children who evacuated from their schools could save their lives. It showed how effective their evacuation behavior on the day was, and proved how practical their evacuation dills and disaster education were.
On the other hand, there is a case of (O) Elementary School that experienced serious damages
Many casualties were caused by overflow of back current tsunami run up Kitakami River
○Delayed evacuation? Evacuation started 50 minutes later from the earthquake?
○Evacuation place(e.g. park, high land) were not identified and designated?
○No evacuation drills from tsunami ?
○No big tsunami from the recent Chili earthquake ?
○The school were not designated by high-risk place in the hazard map
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(O) Elementary School ２０１１．６．１８撮影
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Issues on the Japanese disaster education and disaster management at schools based on lessons
learnt from the GEJET
“Council of advisors on disaster education and disaster management at schools based on
experiences in the GEJET”（Mid-term report）September, 2011
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① Issues on evacuation behavior from tsunami disaster
○ Both cases were observed: On the one hand, children could judge dangers by themselves and evacuated to safer places; on the other hand, delayed judgment for evacuation caused many loss of lives at places where tsunami were not expected to come.
○ Many cases of isolated schools were reported where school lost all the communication lines by loss of electricity caused by the earthquake, and which obstructed proper evacuation behavior.
○ Other examples were schools, where people could not move to a designated evacuation place by arrival of tsunami, could not use emergency radio and other stockpiles at school because
they were located at lower floor and damaged by tsunami.
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○ Teachers tried to understand children’s situation at extra-curricular activities, which delayed evacuation of students from tsunami at the school and caused many casualties in the end.
○ Regarding evacuation behavior after earthquake, there were many cases reported that school yards became dangerous due to liquefaction and cracks by the earthquake. On the other hand, school buildings became earthquake resistant. Where to evacuate at school should be re-examined.
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② Issues on crisis response, such as children’s hand-over
○ There are many cases reported at tsunami-affected areas that loss of children's lives occurred after handing them over to their parents, and that teachers could not secure pupils’ safety due to dealing with parents who wanted their children back. Handing-over policy at school during emergency should be re-examined since there might be inappropriate under the situation when time before arrival if tsunami is limited.
○ After the earthquake, many schools could not communicate with their parents due to loss of communication and transportation measures. 53
○ Schools that did not have enough stockpiles (blankets and water, food, etc.) for children who could not return home after the earthquake
○ At kindergartens, it was difficult to secure children’s safety by teachers and staff due to consecutive earthquakes and frightened children. There were cases that courtesy buses with children were attacked by tsunami.
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③ Issues on relations between schools and community on disaster preparedness
○ Many cases were reported that teachers got disrupted due to responding to evacuated residents at the same time of securing children’s safety and guiding their evacuation. These were also found at schools that were not designated as an evacuation shelter.
○ Management of shelter is primary responsible for a disaster related unit of municipal government. According to MOE’s report (1996) on reinforcing of disaster management system at school, management of shelter by school were expected temporally until management is handed over to disaster management agency and only indicated initial response management system.
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However, at the GEJET, due to such large coverage of damages, there were many cases reported that communication between schools and municipal government’s disaster unit became difficult, and that transfer of shelter management from school to the municipal government could not occur for a certain period. As the result, school teachers needed to be full responsible for managing shelters for a long period without having any support from the municipal government.
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Future perspective and direction of the Japanese disaster education and disaster
management at school ＜Disaster Education＞
１．Promoting disaster education that emphasizes “proactive attitudes” to protect own lives in time of danger from natural disasters
２． Promoting disaster education that emphasizes contributing to creating a safer and secured society as a supporter
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＜Disaster Management and Organizational Activities＞
１．Intensive efforts and reinforcement on disaster management and organizational activities to secure safety in a time of disaster period
① Promoting effective teacher training for core teachers on school safety
② Preparing and reinforcing earthquake and tsunami disaster manuals at school
③ Cooperative system between school and disaster management unit in municipal government on school disaster preparedness
④ Utilization of scientific technology on disaster mitigation
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＜Disaster Management and Organizational Activities＞
⑤ Promotion of effective joint disaster evacuation drills by school and community
１） Implementation of effective joint disaster evacuation drills by school and community
２） Hand-over policy
３） Response at a time of extra-curricular activities
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Future perspective and direction of the Japanese disaster education and disaster
management at school
１．Promoting disaster education that emphasizes “proactive attitude” to protect own lives in time of danger from natural disasters
① Foster ability to predict and avoid dangers
１）Foster proactive attitude to protect own lives depending on the
２） Enhancing teaching skills on basic knowledge related to disaster
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②Promoting disaster education that emphasizes contributing to creating a safer and secured
society from a perspective as a supporter
○ The most important point on disaster education is to protect own lives. In addition, in a post-disaster period, it is also essential to have a perspective to become a supporter in a recovery and reconstruction process. Participation in volunteer activities could help to know about situations of disaster affected people as well as affected areas.
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Other important MEXT Policy on school safety
■学校防災マニュアル（地震・津波災害）作成の手引き作製配布 ２０１２年3月
■ 「生きる力」をはぐくむ学校での防災教育の展開 ２０１３年３月改訂
■ 学校施設における非構造部材の耐震対策の推進 （２０１４年３月 調査研究報告）
■ 中央教育審議会での審議と提言（防災を含む学校での安全教育の充実策の検討） →学習指導要領の改善へ
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63２０１２．３
２０１３．３ 改訂
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Summary
Issues for enhancing disaster education and disaster management at schools based on lessons and learnt from the Great East Japan Earthquake
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＊Shifting from the government-led, to community-, family- and school-led
efforts on disaster preparedness
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■ Promoting partnerships among school, family andthe community on evacuation and preparedness
■ Preparing school disaster preparedness manual andenhancing concrete and feasible crisis managementsystem and comprehensive safety measures
■ Promoting expansion of practical evacuation drillsand disaster education
Based on the above, foster children’s proactive attitudes to protect ownlives, such as;
① Do not caught up with expectation (Collecting information duringemergency and proper judgment based on the information)② Do your best（Strong will with never giving up spirit）③ Lead evacuation （Act promptly）In addition, foster attitudes to support others.
It also requires comprehensive promotion of “3 helps” of disaster response:“self-help”; “mutual-help”; and “public-help”; which covers strengtheninginfrastructure, such as reinforcing buildings against earthquakes, securingways and measurements for collecting information and communication.
Structure of capacity and attitude aimed at fostering through disaster education by development stages of children
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・他者の支援
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・子どもが主体的に判断し、行動する場面を設定した訓練や学習・子ども自身が探求する学習・体験や演習などを取り入れた主体的な学習
子どもが受け身の 、定型的、形式的な訓練や学習
幼 小 中 高図２ 防災教育・安全教育充実のための指導の方向性
Direction of leading children on disaster education and safety education
Challenges for protecting the people’s lives after a millennium
『Onagawa’s Stone Momument』By Onagawa Junior High School
Students
Raised 10 million yen for building 21 monuments
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Three Pillars behind the Stone Monuments
• 「Keeping record of tsunami」• 「Deepening “Kizuna” (ties among people)」• 「Community reconstruction for evacuating to higher
places」
• その中の「記録に残す」の取組として、津波から人々を守るためには、津波がこなかった所に石碑を建立すれば千年後も地域の方々の命を守れるのではと考えた。この取組みの決定後に、女川中学校の生徒達は募金を集めるために、色々な意見を出し合い議論した結果、多くの方々の支援を得て石碑の建立目標金額も早めに到達することができた。今後、成人式までに地権者と話し合いながら２１地区に石碑を建立する予定。
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Onawaga Inochi no SekihiFor protecting the people’s lives 1000 years from now
To my friend 1000 years from now:Please evacuate yourself above this stone monument if you
encounter a big earthquake. Please force others evacuate who who do not . If there are someone who wants to return home, please
never release them and keep them staying at the place.
How is Ongawa-town 1000 years from now? We strongly wish and believe that there are few people who shed tears and more people with full of smile at Onagawa 1000 years
from now.
Message from the Onagawa Stone Monument（Abstract）
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Web杜のたより第34号（2014.7）日本スポーツ振興センター73
Efforts to protect the people’s lives 1000 years from now
I was impressed to the efforts led by students at Onagawa Junior High School. It is a fascinating imagination for protecting the people’s lives 1000 years from now!
In Japan, disaster preparedness has been led by the government. In addition, it is required that each individual should learn, think and act proactively, and that collaboration among schools, households, and the community should continue own efforts on disaster education and disaster management, and crisis management.
“Disaster Preparedness and Safety” should be developed as a part of the Japanese culture, and a basic competence for the Japanese people.
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Thank you very much!
Yoshio Toda
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