Disaster management activities that impact road users are triggered by the sharing of disaster information. The quality of the information provided to road users governs the quality of the subsequent disaster management. In disaster management, information management and communication should be part of planned design and execution, and be integral to an organization’s risk and disaster management plans. Improvised communication can be costly and have unsatisfactory results.
Figure 4.2-1 Role of Information Management in Disaster Management
In the 2010 Chile earthquake, a wide area of Chile’s coastal area was devastated by the giant tsunami that followed the earthquake. From the viewpoint of information management, a crucial tsunami warning system failed to alert residents to the fact that they were in the path of an incoming giant wave 1. In the 2011 East Japan Earthquake, 40% of the drivers traveling on highways at the time of the earthquake continued their driving even though they recognized the VMS signs of “STOP” or ”Earthquake Road Closure” or information about a tsunami coming from radio or other media 2. In the 2011 East Japan Earthquake, maps of passable roads delivered from car manufacturers, the web, and social media contributed to the disaster activities in the hazard region 3. As described above, information management took a main role in disaster management and current information technologies have created a new area of disaster management.
Countries that experience disasters have developed their unique management technologies based on their disaster experiences. Diverse knowledge exchange has been undertaken to share these disaster management technologies. An emerging trend is to review traditional disaster management, with its focus on making infrastructure safe, as this limits the mitigation and reduction of the impacts of disasters. According to current experiences, public engagement and public involvement activities have become an important part of infrastructure development and disaster management. Disaster management now pays more attention to disaster management activities with the public and the society 4.
In the 2011 Queensland floods, a wide area of eastern Australia was significantly impacted by three months of consecutive flood events. According to the lessons learned from this flood, the local government leads major campaigns to engage local communities and encourage individuals to be active in preparedness for the storm season 5. As one of the lessons learned from the 2011 East Japan earthquake, a lot of the residents survived on the highway embankment in the low-lying area. Now highway companies and local residents have made an agreement to promote cooperation in daily maintenance of the highway embankment and in disaster rescue in a tsunami disaster 6.
To encourage the sharing and implementation of disaster management technologies and practices, an easily accessible, web-based risk and disaster management database has been requested. A lot of previous PIARC activities related to disaster management have been compiled. In order to promote the dissemination of this important information, PIARC developed a “risk and disaster management manual” that is available on the web. This report covers the outline of the manual.
Information is the most valuable commodity during disasters. It is what everyone needs to make decisions. Information is an essential aspect in an organization’s ability to gain (or lose) visibility and credibility. Above all, it is necessary for rapid and effective response for the areas affected by a disaster.
Public communication and media relations have become key elements in efficient disaster management. Response operations must be accompanied by good public communication and information strategies that take all stakeholders into account.
With the unprecedented increase in mobile telecommunications and social media which can instantaneously convey a huge amount of important information to road users, management of disaster information to road users plays a very important role in disaster management. Therefore, advanced technology to provide timely and accurate information management, in the pre-event and disaster phases, is critical to effective management of disasters in order to reduce or prevent primary, secondary, or subsequent disaster impacts to road users.
Disaster-prone countries have developed their unique management technologies based on their disaster experiences. In order to share these technologies, knowledge exchange forums have been developed. Current trends in disaster management include an emerging realization that paying more attention to the disaster management activities and their interaction with the public and society produces better results. This compares to the traditional disaster management approach of prioritizing making infrastructure safe. Moreover, encouraging the sharing of disaster management technologies including information management using a web-based platform provides easily accessible risk and disaster management data. This helps those countries with fewer resources to avoid the costly technology research and development phase and go straight to implementing proven technologies where they will have the greatest impact.
In the development of this topic, a large number of disaster specialists from the PIARC member countries have participated in analyzing important needs in information and communication in disasters.
The management of information and communication should be part of a planned process that road organizations use to manage risk and disaster. Information and communication management are currently considered an indispensable part of disaster management. Both the protocol development and tool investment in information and communication management are becoming very important tasks that should be developed by road organizations. Information is the most valuable asset not only during a disaster but also in the pre-event and post-event situation, so it is very important to study the ways of managing disaster and disaster related information and data.
Disaster management activities rely on information, which enable better coordination among all agencies who deal with emergencies. This task will be more effective where the information management issues are well understood and there is an exchange of information between agencies and the public through appropriate communication techniques and processes. It should be noted that the tasks of collecting, communicating and disseminating information in emergencies is always dealt with in complex and stressful situations, where the public require only the most immediate and urgent information.
Such information should be collected, analyzed, and provided to public and technical agencies. It is also important to understand that information for the public and technical agencies should be consistent for better understanding of disaster situations and to assist individuals in preparing against subsequent and anticipated events. However, public information and technical information are required to be presented differently to communicate effectively to different audiences. Effective and efficient procedures for communication and administrative structures for sharing this information are required and should be implemented early.
New computer software and other tools based on new technologies greatly assist in information processing and collection. Social media, web media, and social media services are very powerful tools to almost instantly disseminate any kind of data to many people worldwide. Current technology creates a real advantage; when combined with databases, it improves information analysis and sharing. However, excessive reliance on new technology can be inappropriate. Road administrators should be prepared for electricity outages and damage to communications facilities – such as phone towers – to disrupt communications. It should also be pointed out that road administrators should consider sharing information with other countries in order to get a good comparison of results.
In this report, current practices regarding disaster information management of different countries – through an international survey and collection of case studies – were reviewed to identify the best practices for dealing with an emergency or disaster situation. Recommendations have been made to help road organizations understand and manage the context of the disaster and facilitate information management and public communication tasks.
The survey on disaster information sharing and management is a tool that allows an overview of information management during a disaster. The goal of the survey was to collect information management data in the disaster timeline shown in Figure 4.2.2.1. As indicated in Figure 4.2.2.1, the survey was planned from when the disaster occurred, the first response phase and dissemination of the disaster information to the public.
The survey questionnaires related to road administration disaster management focused on the disaster response phase, analyzing current practices among PIARC member countries and others.
The survey included questions on basic information of responders, and questions on disaster information sharing and management practices in their organizations. The survey was based on several key issues to investigate the information management process. In total, the survey included six questions on public information and two questions on technical information.
Figure 4.2.2.1 Role of Information Management in Disaster Management
The survey was sent to PIARC TC members and to South American countries, by the cooperation of DIRCAIBEA (Council of Road Administration Directors from Iberia and Latin America). The answers were received from 19 countries shown in Table 4.2.2.
An initial analysis was made to the communication structure. According to the survey results, all of the survey countries have a similar communication structure, composed of collecting information from different kind of sources, managing information and processing information in the management control center, and disseminating and announcing information through VMS or public media. The general communication structure is shown in Figure 4.2.2.2.
| Survey Type | Received | Countries |
|---|---|---|
Survey through TC Members | 13 | Austria, Australia (2), Chile, UK, Japan (6), USA(2) |
Survey through First Delegates | 4 | Canada-Quebec, Denmark, Hungary, Mexico |
Survey through Related Organizations | 1 | Dominican Republic |
Others | 1 | Malaysia |
Total | 19 |
|
Figure 4.2.2.2 The general Structure of the communication flow in case of disaster in terms of public information
Some countries pointed out that the vital role of the disaster management center is not only road operation management but also communication management. One of the main roles of communication management is to coordinate sharing the disaster and emergency information among road organizations, related organizations and road users through internal and external communication. This function is very important but only generic communication plans have been developed in each country. There are few examples of pre-determined detailed communication plans for disasters. Figure 4.2.2.3 shows a typical internal communication diagram between a central communication center and their branch offices in road organizations. Figure 4.2.2.4 shows an external communication diagram from collection of the disaster information to dissemination of the disaster information to the public.
Figure 4.2.2.3 Internal Communication Structure (MEX)
Figure 4.2.2.5, developed in the disaster management study in the PIARC previous cycle 1, indicates the importance of cooperation inside road-related organizations. This figure also shows the importance of communication between road-related and non-road-related organizations. This diagram can also be applied to communication:
According to the findings from the survey, it is identified that enhanced internal communication results in disaster management improvements. To ensure effective communication, daily communication practices are necessary. Coordination with technical specialists and political authorities is also a part of internal communication that is needed for decision making. In order to strengthen such decision-making, clarification of authority and responsibilities, is essential.
Figure 4.2.2.4 External Communication Structure (AUS)
Figure 4.2.2.5 Cooperation Structure
Figure 4.2.2.6 shows the general status of situation reporting. Half of the survey countries have a standard form (SitRep) to report the incident/disaster situation. Other countries reported the incident/disaster situation in free format. Whether the standard situation reports (SitReps) are prepared or not, most countries had developed a database or report system for better disaster response. SitReps are very effective to standardize information and are easy to use but may not be as effective for irregular incidents such as multiple modes of incidents/disasters. However, they are an efficient way of systematizing information and as a backup plan when communications systems are lost. As for free format reporting system, it is powerful to report any kind of incident and disaster, but the quality of the report depends on the skill of the reporter.
Figure 4.2.2.6 Reporting System of Disaster Information
Figure 4.2.2.7 shows the difference between processing public information and technical information. They each have a particular function, therefore pubic information and technical information are treated differently in general. However, some countries tried to link both kinds of information in order to show the technical background to the public.
Figure 4.2.2.7 Public Information and Technical Information
Figure 4.2.2.8 General structure flow of communication in disaster in terms of technical information
Figure 4.2.2.8 shows the general flow of technical information. The collection of disaster information is the same as for public information. The difference is that the technical information is processed by a special engineering team. After the engineering analysis of the disaster, an appropriate response is fed back to the management center. Analysis and synthesis of public and technical information in the management center is required before it is made public, to effectively respond and avoid a secondary disaster.
Generally speaking, as shown in Figure 4.2.2.9, public information is very important to response management, whereas the technical information is very important in recovery management. This is one of the reasons why public information and technical information are treated separately. This idea is effective in management of single mode disaster. In the case of a multiple mode disaster, such as simultaneous multiple disasters or consecutive multiple mode disasters, technical information is also very important in response management, such as earthquake and tsunami, land slide and debris dam, and also heavy rain and flooding. Therefore, linking public and technical information should be considered in disaster management.
Figure 4.2.2.9 Public and Technical Information in Response and Recovery Management
Figure 4.2.2.10 shows the current preparedness of communication tools where communication is restricted. In the survey countries, there are no alternative tools except tools shown in Figure 4.2.2.9. Survey answers in relation to tools used where no communication line is available are varied. This indicates that preparation for the loss of communication lines should be considered.
Figure 4.2.2.11 shows a summary of the communication recovery for the 2011 East Japan earthquake and tsunami. The communication tools recovered gradually from elementary to complex tools. Countries should prepare for communication in this environment.
Figure 4.2.2.10 Preparedness in Communication Tools where Communication is Restricted
Figure 4.2.2.11 Communication Speed with the Recovery of Communication
Communication structure in disasters is a key component of information management. Development of a communication structure is urgently recommended in many road organizations.
Social media and communication technology allow efficient exchange of information. But it can become risky when information comes from several sources and each one has a different interest and goals.
Reliability of information is required in order to inform and not misinform, especially when the population is facing a major disaster.
User information is very fast but less reliable than road agency information, due the requirement to firstly validate it. Preliminary technical information is useful to establish preliminary frameworks for resources and budget.
The importance of backup for complex communication scenarios should be taken into consideration. While information gathering methods that rely on technology are important, it is convenient to have a method for instances where there is a lack of connection.
Media sharing needs behavioral rules, as excessive text or fake images add inefficiency to the process.
During a scenario of full communication, the internet and social media are widely accepted as reliable and efficient ways to transfer data. However, old technology is reliable when a communications restriction appears.
Social media and new technology are changing communication and how information is shared.
Data is transmitted worldwide very fast and to many people instantaneously. But in a disaster, systems or technology could be affected. That is why it is important to establish how to transmit the information in several situations.
Questions in the survey aimed to understand what systems are used as backups in extreme situations.
User information and technical information are different due to their different objectives. What users need is information about connectivity and traffic conditions (average operational status and connectivity) but road agencies need information about infrastructure conditions and damage to establish disaster teams for response.
Technical information about infrastructure damage is more detailed and slower to be obtained. Damage needs to be identified on site or via monitoring technology, and also needs a technical vocabulary that is not always understandable for road users.
This must be considered when you define the ways to share information in multiple mode scenarios, as technical information must be deposited in a database in order to process it and obtain relevant data for planning, but user information is not necessarily useful as historical data as long as users are informed.
Technical information should be standardized and not rely on a particular software package or database, which may contribute to misunderstanding and bad decision making. This will require some training and coordination among road agencies and organizations.
Information management is becoming a key component in disaster management with the progress of internet communication technology. Currently large and important progress can be seen in disaster information management. Conclusions and recommendations are summarized below:
Management of public and users expectations is important in order to try to be clear about what the public and users expect from Roads Directorate and make clear what they will get. So, the goal is to keep users frustration levels low by been realistic with the expectations and make them understand the spirit of the project.
1 Corina Warfield, The Disaster Management Cycle, https://www.gdrc.org/uem/disasters/1-dm_cycle.html
2 2010. Earthquake Engineering Research Institute, EERI Special Earthquake Report, Earthquake Engineering Research Institute, June
3 2011. ITS-Japan, Passable road and road closure map, https://www.its-jp.org/news_info/6568/, March
4 [Example] 2012. UK Cabinet Office, Chapter 7 Communicating with the Public, Civil Contingencies Act Enhancement Program, March
5 2016. Queensland Government, Queensland State Disaster Management Plan, Disaster Management Act 2003, September
6 2015. Tokushima-prefecture, Web document, https://www.unisdr.org/we/inform/terminology, February [In Japanese]
1 2016. TC 1.5 PIARC, Risk management for emergency situation, PIARC technical report, 2016R26EN, November