Pre-earthquake measures in Tokyo

Status
ongoing
50%
City

Tokyo

Main actors

City Government, Private Sector, Public Utility

Project area

Metropolitan Area

Duration

Ongoing since 2012

The City of Tokyo has introduced a series of measures to reduce the number of people becoming stranded in the metropolitan area in emergency situations.  

As a consequence of the earthquake in 2011, the city of Tokyo’s transport and communication system collapsed leaving millions of people stranded within the metropolitan area and unable to return home for hours, some even days. Subsequently the city administration established Advisory Boards to develop strategies to reduce the number of potentially stranded people through measures such as more public shelters, emergency supplies at work places and educations institutions and better communication infrastructure.

This case study was contributed from the UCLG Learning Team.

Peer-Learning Note #24 on Local and Regional Disaster Risk Reduction

             

Sustainable Development Goals

Build resilient infrastructure, promote inclusive and sustainable industrialization and foster innovationMake cities and human settlements inclusive, safe, resilient and sustainable
City
Tokyo, Japan
Size and population development
According to the 2010 census, the city of Tokyo has a population of 13,839,910. The city covers an area of 2,190.93km2 with a population density of 2,662 people per km2. During the daytime, the population swells by over 2.5 million and workers and students commute from adjacent areas. As of 2018, The Greater Tokyo Area with over 38 million people is ranked as world’s largest urban agglomeration economy. A recent study by the Tokyo Metropolitan Government revealed that Tokyo, like the whole of Japan, is expected to rapidly decline in population in the coming decades due to little immigration, very low fertility rate and a rapidly aging population.
Population composition
The age breakdown of Tokyo's population is skewed toward working age. The 2010 census data showed that 68.2% of Tokyo residents are aged 15-64. Befitting a country with one of the world's longest life expectancies, there is also a high proportion of retired people in Tokyo, 20.4% of people were aged 65 or over. The remaining 11.4% of residents are children aged 0-14. Life expectancy in Tokyo aligns with the national average of 78.8 years. Men in Tokyo can expect to live for 79.59 years and women for 86.35 years.
Main functions
Tokyo (officially Tokyo Metropolis) is one of the 47 prefectures of Japan and has served as the capital city since 1869. The city is situated at the head of Tokyo Bay on the Pacific coast of central Honshu. As the capital city of Japan, it is the economic, political, education and culture centre of the country.
Main industries / business
Tokyo is a major international finance and business centre and as of 2015, the city hosted 51 of the Fortune Global 500 companies. Tokyo serves as a hub for Japan’s transportation system, publishing, electronics and broadcasting industries. Tourism, both domestic and international is a significant contributor to the economy.
Sources for city budget
The City of Tokyo draws its budget for public expenditure largely from property tax, fees, operating revenues, other taxes and subsides from the Government of Japan.
Political structure
Under Japanese law, Tokyo is designated as a metropolis. Its administrative structure is similar to that of Japan's other prefectures. The 23 special wards, which until 1943 constituted the city of Tokyo, are self-governing municipalities, each having a mayor, a council, and the status of a city. In addition to these 23 special wards, Tokyo also includes 26 more cities, five towns and eight villages, each of which has a local government. The Tokyo Metropolitan Government administers the whole metropolis and is led by a publicly elected governor who presides over a metropolitan assembly. Its headquarters are located in Shinjuku Ward. The Governor has the authority to make policy decisions and enforce policy alone and there is no limited to the number of terms a person may serve as Governor.
Administrative structure
The Metropolitan Assembly is the legislative organ of the whole prefecture of Tokyo. It consists of 127 members elected each four years. Regular sessions are held four times each year, in February, June, September and December. These sessions typically last for 30 days.
Website
http://www.metro.tokyo.jp/index.htm

Tokyo is the capital city of Japan and the political, economic and cultural centre. Due to its locations among major folds of the earth crust, the city faces a high risk of earthquakes and their side effects including landslides and tsunamis.

Tokyo is home to more than 13 million people, with the population of the surrounding metropolitan area close to 38 million. A significant part of the metropolitan population commutes to work or to education institutions every day, either from the suburbs to the city or from one neighborhood to another.

Past emergencies, such as the Great East Japan Earthquake in 2011, have shown that if the city suffers such a crisis the transport and communication system can be severely affected or totally collapse. Therefore, the aim of disaster management measures is to maintain functionality of the capital and save people’s lives.

To increase the cities resilience around stress on the transport and communication system in times of crisis, the City of Tokyo has established comprehensive disaster management measures. These measures  guarantee the cooperation between all stakeholders and foster self-help, mutual assistance and public help. Furthermore, the approach includes the establishment of back-up services that can soften the collapse of certain systems. To directly tackle the issue of stranded people during emergency situations advisory boards have been set up to establish counter measures.

The main findings and recommendations have been:

  1. Prevent people from heading home all at once
  2. Secure temporary shelters
  3. Provide communication tools and information service
  4. Assist people returning home

Based on these results, the city has implemented legal guidelines regarding disaster risk management and launched efforts to support the private sector to fulfill them. As a consequence, more than 50% of all employers enhanced their storage facilities for water and emergency foodstuffs. This allows people to stay at their work place even overnight in case of an emergency and to wait until the transport system works again before trying to return home.

The city government provides financial support to the private sector to fulfil these guidelines. The additional expenses for public buildings and institutions is covered either directly or indirectly by the authorities. Nevertheless, financial contribution from the private sector is necessary to put the measures in place.

The number of temporary shelters available in the city has increased significantly, more than 10,000 support stations have been established in schools, convenience stores and other places to assist people on their way home in an emergency.

A realistic “project evaluation” will unfortunately be the next earthquake to hit Tokyo. Due to its location there is a high probability that this will happen within the next decade.

In order to improve the preparedness of public institutions and businesses for emergency situations, including citizens having  to remain in the city for extra hours or overnight due to the transport system being unable to operate, all stakeholders must be mobilized. The measures are only successful if the majority of the city’s businesses and public buildings invest in the storage of emergency supplies. These efforts cannot be achieved by the city government alone, it requires the engagement and contribution of the private sector and citizens.

The City of Tokyo distaster measures demonstrates how cities can learn  from previous emergency situations and can further increase resilience by improving preparedness for earthquakes and their consequences and this can be replicated in other cities that face the same challenges from natural disasters.

- UCLG Peer-Learning Note no. 24, Local and Regional Disaster Risk Reduction: https://www.uclg.org/sites/default/files/local_and_regional_disaster_risk_reduction.pdf 

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