Structural and non-structural measures are the powerful measures for disaster mitigation. However, the either of the two measures will not be effective if they would be implemented independently. To enhance the functions provided by both measures, it is important to integrate both measures so that they can function together. But there is another aspect to be considered.
There is some limitation of hazards that can be mitigated by structural measures so that non-structural measures should be taken to cover them. Therefore, it is necessary for residents in the possible disaster area to be aware of disaster risks and to accurately recognize the limitations of structural and non-structural measures. In other words, for disaster mitigation measures to be effective, it is important not only for government-led structural and non-structural measures, but also for local people to be aware of disaster mitigation, to have a common understanding of disaster risks, to share knowledge and roles regarding disaster mitigation measures, and take actions together.
In the field of sociology, there is a concept called social capital. Social capital is a new concept along with Physical Capital and Human Capital 1. According to Wikipedia, social capital is defined as "effective functioning of social groups through interpersonal relationships, a shared sense of identity, a shared understanding, shared norms, shared values, trust, cooperation, and reciprocity 2. Social capital is a measure of the value of resources, both tangible (e.g., public spaces, private property) and intangible (e.g., actors, human capital, people), and the impact that these relationships have on the resources involved in each relationship, and on larger groups." Figure 2.4-1 shows the concept of the three major capitals.
Figure 2.4-1. Three Major Capitals
It is said that there is a positive correlation between social capital and civic activities, and it is pointed out that if social capital is rich, participation in civic activities is promoted, and furthermore, social capital is cultivated through the activation of civic activities 3. It is now widely recognized that "self-help, mutual-help, and public-help" are important to enhance community disaster preparedness. Social capital is considered to be a major foundation for the resolution of local issues and revitalization. In other words, social capital is expected to play an important role in disaster mitigation as a regional issue.
Research on social capital in the field of disaster mitigation started around 2008. It has been reported that discussions on disaster prevention in local communities have led to the formation of networks among community members and the development of a sense of mutuality (norms and reciprocity) and trust. There can be found some cases where disaster prevention has activated the "social capital" of local communities 4. In other words, there are cases where disaster reduction has activated the "social capital" of the local community. This shows that the revitalization of local communities and local disaster reduction capacity are inextricably linked. It is desirable that local efforts to promote disaster reduction will activate local community vitalization, which in turn will improve local disaster reduction capacity and road disaster reduction. As a result, it is expected to pave the way for more detailed urban planning in accordance with the actual conditions of each district.
Figure 2.4-2. Evacuation Drill with Local Residents 2015, West Nippon Expressway Company Limited. Communication report of NEXCO West group 2015
In the area of road disaster management, a steady but budding effort to improve disaster preparedness through dialogue with local communities and raising public awareness has begun. These include: the use of road slopes as tsunami shelters in cooperation with local communities; the participation of citizens in the design of road restoration projects; budding efforts to promote road maintenance and management while raising public awareness; collaborative efforts in school education; and efforts to pass on disaster experience. Figure 2.4-2 5. shows the evacuation drill between highway authorities and local residents. These efforts are still in the process of trial and error, but they are showing steady results.
The synergistic effect of social capital in the field of road disaster management has only just begun. Further development is expected in the future.
Recent studies on disaster management have shown that the perspective of disaster management needs to shift its focus from "response and recovery" to sustainable disaster mitigation. In order to achieve this shift, it is suggested that disaster management and community planning need to be integrated. Successful disaster "mitigation" also requires the inclusion of public participation at the local decision-making level in the disaster management process 1. This approach of involving citizens in disaster management before, during and after a disaster is known as "public engagement".
Public engagement in road disaster management is still in the research stage, but some initiatives have been initiated.
Social capital can be an important factor in disaster preparedness. Increased awareness of disaster preparedness and prevention among local residents will increase social capital, and increased social capital will increase local disaster preparedness.
In order to protect life, body, and property from disasters, it is of utmost importance to build a disaster-resistant community, and there are limits to the extent to which the government can respond to disasters. It is essential for citizens and the government to cooperate with each other in disaster management based on the principles of "Self-Help" to protect oneself, "Mutual-Aid" to support each other in one's neighborhood, and "Public-Assistance" for the government to support citizens. Figure 2.4.1 shows the basic relations among Self-help, Mutual-aid, and public-assistance. In order to achieve this, it is important for citizens themselves to further raise their awareness of disaster prevention, to pass on the lessons and knowledge gained from the experience of the earthquake to future generations, and to maintain and develop the bonds of support they have received from each other in their local communities and from organizations and people in Japan and abroad 2. In this way, the "power of citizens" is important in disaster management, and this is also the "role of citizens".
Figure 2.4.1 Self-help, Mutual-aid, and public-assistance
This role of local residents in disaster preparedness is clearly stated in Japan's Basic Act on Disaster Management as the "responsibility of residents" in disaster management. 3
(Basic Principles)
Article 2
(ii) (Omitted) disaster management activities conducted voluntarily by each resident and those conducted voluntarily by voluntary disaster management organizations (which means voluntary disaster management organizations based on a spirit of mutual cooperation among residents; the same applies hereinafter) and other various actors in the area are promoted as well;
(Responsibilities of Residents)
Article 7
(3) (Omitted) based on the Basic Principles, local residents must endeavor to take measures to store goods of daily necessity such as food and drink and to prepare for disaster by themselves and contribute to disaster management by voluntarily participating in disaster reduction drills and any other disaster management activities and handing down lessons learned from past disasters, and any other challenges.
The following explanations have been added to the above laws 5.
From the above, it can be seen that the "responsibility of citizens" in disaster management is to "prepare for disasters on their own" and "voluntarily participating in disaster prevention activities." In order to mitigate the damage caused by major disasters that are likely to occur in the near future, it is essential for citizens and communities to be aware of the importance of taking proactive and positive actions during normal times, in addition to measures taken by the government. For this reason, it is important to provide more opportunities for citizens to think about disaster prevention and to consider a mechanism for citizens to participate in disaster prevention planning and activities.
Road administrators have also started the following budding activities to encourage citizens as road users or as members of local communities near roads to "prepare for disasters on their own" and "voluntarily participate in disaster prevention activities".
Coping capacity is the ability of people, organizations and systems, using available skills and resources, to manage adverse conditions, risk or disasters. The capacity to cope requires continuing awareness, resources and good management, both in normal times as well as during disasters or adverse conditions. Coping capacities contribute to the reduction of disaster risks.
Strengthening disaster preparedness through self-help and mutual-aid is considered to be essential for coping capacity with large-scale wide-area disasters. It is said that when a local community has 1) a human network, 2) a sense of mutuality (norms and reciprocity), and 3) mutual trust, mutual aid activities are more likely to flourish and have a positive impact on disaster management activities. Social capital is considered to be that which enhances social efficiency by focusing on these factors. It is also said that "social capital" in local communities is activated by disaster preparedness, and there is a relationship between "social capital" and "local disaster preparedness" that enhances both. Civic engagement" is one of the civic activities to enhance social capital. Citizens' individual and collective involvement in public issues is an important factor in building social capital.
In the field of tsunami countermeasures for roads, there are examples of cooperation between highways and local communities to strengthen the disaster prevention capability of local communities in terms of tsunami evacuation. In the area of maintenance management, citizens have begun to participate in the process of inspecting and reporting damage to local roads. These are just a few examples of budding citizen participation activities that contribute to road disaster prevention and regional disaster prevention.
It remains to be seen how the disaster preparedness of local communities can enhance the disaster preparedness of expressways, but at the very least, road administrators need to work together with local communities on disaster prevention.
The purpose of disaster prevention education is to learn how to protect lives in the event of a disaster. In order to achieve this, it is necessary to know the mechanism of disaster occurrence, to know the actual disaster prevention capacity of the society and the community, to learn how to prepare for disasters, to learn how to cope with disasters, and to put what they have learned into practice 1. At the same time, it is also important for disaster prevention education to accurately pass on the severity of the disaster, its impact on society, the experience of the disaster, and the wisdom of the people so that the same experience will never be repeated 2. Organizations related to highways often engage in disaster prevention education mainly for the latter purpose.
The following are some of the ways in which road-related organizations provide disaster prevention education
(1) Cooperating with general education programs at elementary schools and specialized education programs at universities as a proactive approach.
(2) Exhibiting educational materials such as damaged structures and posting video materials on the web.
Figure 2.4.3 shows the monumental stone of the tsunami that shows the lessons from the disaster. 3
Figure 2.4.3 Monumental Stone of Tsunami
1 2001, Putnam, Robert D. 2001. “Social Capital: Measurement and Consequences.” Isuma: Canadian Journal of Policy Research 2, Spring
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