Issues and Lessons Learned from the Great East Japan Earthquake

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Mar 11, 2011 ... Director for Road Engineering Analysis,. National Highway and Risk Management Division. • Road Bureau, Ministry of Land, Infrastructure, ...
Issues and Lessons Learned from the Great East Japan Earthquake Shigenobu KAWASAKI • Director for Road Engineering Analysis, National Highway and Risk Management Division • Road Bureau, Ministry of Land, Infrastructure, Transport and Tourism of Japan • [email protected]

•Thank you for your introduction. •My name is [Shigenobu] KAWASAKI from (the Ministry of Land, Infrastructure,  Transport, and Tourism of) Japan. •First, on behalf of the Japanese government, I would like to express our deepest  appreciation for the sympathy and warm support generously given by more than 160  countries, 40 international organizations, a large number of non‐governmental  organizations [NGOs], and people around the world after the Great East Japan  Earthquake. •Today, I would like to present the damages, recovery, issues and lessons learned from  the Earthquake.

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Contents of Today’s Presentation 1. Overview of the Earthquake and Tsunami 2. Damages on Roads:  Lessons Leaned from the Past 3. Recovery of Roads:  Emergency Recovery for Affected Area 4. Issues in Road Infrastructure:  For the “Next” Great Earthquake

•Here are the contents of today’s presentation. •First, I will talk about the Overview of the Earthquake and Tsunami. •Second, Damages on Roads. Then, Recovery of Roads, and Issues in Road Infrastructure  at the end.

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1. Overview of the Earthquake and Tsunami

By Touhoku Construction Association

•First, I am going to talk about the overview of the Earthquake and Tsunami.

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Overview of the Earthquake

• “The Great East Japan Earthquake” occurred at 14:46 on March 11, 2011. • This was the 4th largest earthquake in the world since 1900. Rank

Date (Japan Time)

Location

Magnitude (Mw)

1

May 23, 1960

Chile

9.5

2

Mar 28, 1964

The Gulf of Alaska

9.2

3

Dec 26, 2004

4

Nov 5, 1952 Mar 11, 2011

Western coast of Sumatra, Indonesia The Kamchatka Tohoku area off the Pacific Coast

9.1 9.0

9.0

•The Great East Japan Earthquake occurred at 14:46 [2:46 PM] on March 11[, 2011]. •The epicenter was off the coast of the Eastern Japan in the Pacific, and the magnitude  was 9.0. •This was the fourth largest in the last 100 years after the Chile earthquake in 1960 and  Sumatra in 2004.

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Mechanism of Earthquake

• This earthquake is categorized as an “interplate” earthquake. North American 北米プレ ート Plate

日J本 apa n 海Tr溝 en

ch

Eurasia Plate ート ユ ーラ シアプレ

ラフ i Tro kaト Nan海 南 ugh

太平洋プレ Pacific Plateート Sea Plate フィPhilippine リ ピ ン 海プレ ート

•This earthquake is categorized as an “interplate” earthquake. •Interplate earthquakes occur when one of colliding plates rebounds from accumulated  stress. •As you can see in this figure, four different plates meet around Japan, causing frequent  large‐scale earthquakes.

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Mechanism of Interplate Earthquake

• Earthquakes and tsunamis occur when accumulated stress of a plate bounces back. • Probability of this earthquake in 30 years was 99%.

Continental 陸側の plate Stress プ レ ート

trench 海溝

Conti- 津波の Generate nental 陸側の 発生 tsunami プplate レ ート

accumu-

歪のlate 蓄積 陸側の Contiプnental レ ート plate

海側の Pacific プplate レ ート

ひき ずり Drag down 込み

Bounce 跳ね back 上がり

海側の Pacific プplate レ ート

•This figure shows the mechanism of interplate earthquakes. •Earthquakes and tsunamis occur when accumulated stress of a plate bounces back. (Skip if there is not enough time) •The Japanese government scientifically estimates probabilities of large‐scale  earthquakes in Japan. (Headquarters for Earthquake Research Promotion of the Ministry  of Education, Culture, Sports, Science & Technology) •According to the estimate, the probability of an earthquake off the coast of Miyagi‐ prefecture, which is one of the most affected areas of the earthquake, in 30 years was  99%.

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Tsunami Generation

• On the Sanriku Coast, massive tsunami was generated. • Flood height from the tsunami reached 40 meters.

Legend 0 - 10m 10 - 30m Over 30m Epicenter 震央(M9.0)(M9.0) Source: The 2011 Tohoku Earthquake Tsunami Joint Survey Group (http://www.coastal.jp/ttjt/)

Distribution of 浸水高の分布 Flood Height

•This earthquake caused tsunami. •The tsunami was massive. On the Sanriku Coast in the Tohoku Region, the flood height  from the tsunami almost reached 40 meters. [The word “Tohoku” means Northeastern  in Japanese.]

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Overview of Damage Human and Property Damage Number of persons killed/missing by prefecture

• Killed • Missing • Injured • Total collapse • Half collapse

: 15,783 persons : 4,086 persons : 5,932 persons :115,185 buildings :162,276 buildings

Legend 1-99 persons

(As of September 12, 2011)

100-9,999 persons 10,000 and over

Source: National Police Agency

This earthquake and tsunami caused damages: As of September 12th:  •

Over 15,000 persons died.



More than 4,000 are missing.



And, over 5,900 have been injured.

Damages on Buildings are: •

About 110,000 buildings were totally collapsed.



And over 160,000 were half collapsed.

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Overview of Damage Large-scale Liquefaction • In Tokyo Capital Area, liquefaction affected at least 42km2.

Sand Boiling

Tokyo

Legend: Liquefaction Area

50cm

Sand boiling in reclaimed land

Lifted Manhole

Areas of Liquefaction (Tokyo Capital Area)

•The earthquake caused liquefaction extensively in the Tokyo Capital Area, which is far  away from the epicenter. •As far as we could confirm, the large‐scale liquefaction affected at least 42km2,  particularly in the reclaimed lands and former river channels.

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2. Damages on Roads: Lessons Leaned from the Past

•Next, I will present the damages on roads caused by this earthquake. •Though this earthquake caused serious damages on roads, the lessons from the past  experience had been applied to prevent further devastation.  •I would like to introduce some examples.

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Damage on Trunk Road Network

• Damages were caused on roads in wide areas. • 15 expressway routes and 69 sections on the national highways were closed, mainly in Tohoku Region. Expressway National highway Closure on expressway Tokyo

Closure on national highway

•The earthquake caused damages on roads in wide areas. •Right after the earthquake, 15 expressway routes and 69 sections on the national  highways were closed. •Numerous sections in the prefectural/municipal roads were closed, too.

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Damage on Expressways

• Embankments fell on the traffic lanes at 21 locations. • None of 1,079 expressway bridges in the stricken areas was collapsed. Length in Service (km)

# of Damaged Embamkments

Tohoku Expwy

698

93

16

Joban Expwy

242

116

1

Other

680

137

4

Total

1,620

346

21

locations

locations

Route

# of Damaged Locations on Lanes

Sendai

Tokyo

Yabuki IC – Sukagawa IC (Tohoku expressway)

•On the expressways, embankments fell on the traffic lanes at 21 locations. •However, among the 1,079 expressway bridges in the stricken areas, none of them was  collapsed.

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Damage on National Highways

• On national highways, a lot of damages were observed (e.g. small cracks on the road surface). • None of 1,528 bridges had significant damages by earthquake (e.g. collapse).

Sendai

Tokyo

Near Ishinomaki city (Ntn’l Hwy 45)

•On the national highways, a lot of damages were observed, such as small cracks on the  road surface. •Among the 1,528 [highway] bridges, five of them were washed away by the tsunami,  but none of them were collapsed by the earthquake.

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Lessons Learned from the Past Earthquakes

• Hanshin-Awaji Earthquake (1995) caused significant damages (e.g. structure collapse of Hanshin Expressway).

•Revising Standards •Seismic Reinforcement

Damages by Hanshin-Awaji Earthquake (1995)

Jacketed columns and connecting superstructures

・From the strong seismic motion of this earthquake, the peak ground accelerations of 1G (980gal) or 

higher were observed in various locations. Note) The resultant peak acceleration of two horizontal components of ground motions exceeded 1G  at 18 locations (Japan Society of Civil Engineers Magazine).  ・Bridge collapses were prevented by having revised the standards and applied seismic reinforcements  based on the lessons learned from the past earthquakes. ・In the past, the Hanshin‐Awaji Earthquake in 1995 had caused significant damages, such as the  expressway structure collapse. Based on this experience, seismic reinforcements of the existing bridges  have been implemented as well as the seismic design standards for road bridges have been revised. ・In the Great East Japan Earthquake, the revised seismic standards functioned effectively because the  impact of the medium to long‐period components of the seismic motion of this quake did not exceed the  assumption of seismic design standards. ・20 of the prefectural and municipal road bridges were collapsed or closed by the severe damage  because the implementations of such countermeasures had been delayed. 

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Damage by Tsunami

• Tsunami flooded roughly 100 km across the national highways. • Tsunami brought massive debris (e.g. boat, building), which covered roads, towns, and agricultural fields.

Sendai

Tokyo

Debris

Wakabayashi JCT (Sendai Tobu expressway)

Natori IC (Sendai Tobu expressway)

•The tsunami flooded roughly 100 km across the national highways. •On the expressways, three interchanges and junctions were submerged. •The tsunami brought massive debris, which covered roads, towns, and agricultural  fields. •Some local residents survived the tsunami by climbing to the expressway  embankments.

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Bridges Washed Away by Tsunami

•Five nationally-administrated road bridges were washed away. Numata bridge

Koizumi Bridge

Mizushiri Bridge

Utatsu Bridge

Kesen Bridge

Sendai

Tokyo

•Among the nationally‐administrated road bridges, five of them were washed away eve n though they survived the earthquake. •In the nearby areas, the high surges from the tsunami were reported to be as high as  15 meters.

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Damage on Other Transport Infrastructure

• Besides roads, the other modes of transport infrastructure were significantly damaged (e.g. Shinkansen, airport, port, etc.). Tohoku Shinkansen (high-speed rail)

Sendai Port Sendai Airport

•As well as the roads, the other modes of the transport infrastructure were also  significantly damaged, such as the Shinkansen [high‐speed rail/bullet train], airports,  and ports. (Skip if there is not enough time.) •A large tsunami struck Sendai Airport, and the runway was covered with debris and  cars. •The Tohoku Shinkansen was suspended due to the fallen catenary poles, broken wires,  and damaged elevated structures. •All fourteen ports [in the stricken areas] on the Pacific were shut down due to the  tsunami damages.

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3. Recovery of Roads: Emergency Recovery for Affected Area

Next, I will present the recovery [situation] of the roads.

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Steps to Recovery of Roads

• Recovery of the roads consists of the following 3 steps: Disaster

1. Clearing Roads & Temporary recovery: Secure traffic of emergency vehicle 2. Emergency Recovery: Enable traffic of general vehicle

3. Rehabilitation:

Repair roads back to conditions before disaster while allowing general traffic

•Recovery of the roads consists of the following steps: •

First, “clearing roads” [and “temporary recovery”] to secure traffic of  emergency vehicle right after the earthquake;



Next, “emergency recovery” to enable traffic of general vehicle;



“Rehabilitation” to repair the roads back to the conditions before the  disaster while allowing general traffic.

•Securing the road function for emergency traffic was the top priority to enable  lifesaving and rescue in the affected areas. I will focus on the recovery of the roads for  emergency traffic in the next few slides. 

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Securing Emergency Traffic Initiated by Roads

• Among transport infrastructures, roads were recovered in the early stage to secure as emergency traffic networks. 1 day

Expressway

National Road (Route 4, 45 & 6)

Shinkansen (Tohoku Shinkansen)

Local Railway Airport (13 Airports)

Port

Operation Shutdown Shutdown due due to to Disaster Disaster Operation

(Tohoku & Joban Expressway)

Opened to 緊急車両 emergency 通行可能 traffic

7 days Nt’l Hwy 4:

N’tnl Hwy 45

Secured function for emergency traffic

Clearing nearly complete

49 days 全線運行再開 Full recovery

96% Recovery (As of 8/29)

4 days Opened for disaster response

13 days

(15 Ports)

Opened for disaster response / general traffic

After 1 week 3/11 3/12 3/15 3/18

3/24

4/1

After 1 month 4/10 4/13

4/29

•This figure shows the recovery of the transport infrastructure by [transport] mode. •As you can see, after the earthquake, the arterial roads (expressway and national  highway) were recovered in the early stage to secure as emergency traffic networks.  Therefore, the importance and needs of arterial roads were proven to be essential once  more as means of providing emergency supplies to stricken areas. •The expressways and highways were not critically damaged, which led to smooth  recovery of the [transport] functions. •I will talk more in detail.

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Securing Emergency Traffic in Entire Eastern Japan 1 Recovery Situation of Expressway • Almost all expressways in Eastern Japan were temporarily recovered in one day and allowed emergency traffic. Immediately after Earthquake (March 11)

One day after Earthquake (March 12)

Legend Open for emergency traffic, etc. Closure

•Right after the earthquake, all expressways in eastern Japan were closed for  emergency inspections.  •The day after the earthquake, almost all expressways were temporarily recovered and  allowed emergency traffic.

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Securing Emergency Traffic in Entire Eastern Japan 2 Emergency Recovery of Expressway Embankment • Emergency recovery was completed at the damaged embankment areas on the Joban Expressway six days after the earthquake, and it was opened to general traffic.

Sendai

Tokyo

•Subsequently, the temporarily recovered sections were opened and allowed general  traffic. •I would like to introduce the case of the Joban Expressway (Mito IC) and the recovery  road work on the collapsed embankment by the earthquake. The news was reported  worldwide. •In this case, one day after the earthquake, the expressways were open to emergency  traffic. Six days after the earthquake, the emergency recovery was completed, and the  expressways were open to general traffic.  •The information of these recovery works is also presented at our Japan booth of this  exhibition. Please take a look.

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Securing Emergency Traffic in Tsunami Affected Areas 1 “Operation Comb”: Immediately after Earthquake 1. One day after earthquake (March 12) • North-south axes in the inland, were recovered for emergency traffic. Recovered functions of north-south axes such as Tohoku Expwy, Ntn’l Hwy 4

4 Hwy

city

Ntn ’l

Tohoku Expwy, Ntn’l Hwy 4

Pacific Ocean

city

Legend Damaged ports Severely stricken by the tsunami

city After 1 day

•Securing emergency traffic networks to the tsunami‐affected areas was named as the  “Operation Comb” and promptly executed by the national government. I will talk about  its outline. •Because the tsunami destroyed all the 14 ports on the Pacific, the recovery of the  [transport] functions started from the inland. •The day after the earthquake, the Tohoku Expressway and National Highway [Route] 4,  which run north‐south in the inland, were recovered for emergency traffic. 

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Securing Emergency Traffic in Tsunami Affected Areas 2 “Operation Comb”: 4 days after Earthquake 2. Four days after earthquake (March 15) • Next, to recover the emergency traffic networks, 15 routes were secured from the inland to the Pacific Coast. Secured functions of 15 routes to Sanriku Coast

city

Hwy Ntn ’l

city

4

comb Pacific Ocean

Tohoku Expwy, Ntn’l Hwy 4

Legend Damaged ports Severely stricken by the tsunami

city After 4 days

•Next, to recover the emergency traffic networks from the inland to the Pacific Coast,   15 routes were secured to reach the coastline four days after the earthquake, •This recovery was called the “Operation Comb” because the bird’s‐eye view of the  emergency traffic networks had a similar shape to a comb.

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Securing Emergency Traffic in Tsunami Affected Areas 3 “Operation Comb”: 4 days after Earthquake 2. Four days after earthquake (March 15) • Secured routes from the inland to the coast are winding between mountains.

Ntn ’l

Hwy

4



Legend Damaged ports Severely stricken by the tsunami

•The map on the right is the detail of the map on the left to emphasize the geography  and elevations. •As you can see, the routes from the inland to the coast are winding because they are  surrounded by the steep mountains.

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Securing Emergency Traffic in Tsunami Affected Areas 4 “Operation Comb”: One week after Earthquake 3. One week after earthquake (March 18) • Finally, the transportation functions were recovered along the Pacific Coast. Ntn’l Hwy 45 along the Pacific was reopened except some sections.

4 Hwy

city

Ntn ’l

Tohoku Expwy, Ntn’l Hwy 4

Pacific Ocean

city

city

Legend Damaged ports Severely stricken by the tsunami

After 7 days

•After securing the routes to the coast, the transportation functions were finally  recovered along the Pacific Coast. About 7 days after the earthquake, the traffic for  emergency vehicles was secured to enable the lifesaving activities in the affected areas.  •We recognized that proper preparation and training to secure emergency traffic  networks, as done in the “Operation Comb” according to geographical conditions and  road development are essential in probable areas of large‐scale tsunamis.

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Clearing Roads in Tsunami Stricken Areas

By Iwate Prefecture Government

•This picture shows clearing roads in one of the tsunami stricken areas. •The road administrator of the national government secured traffic for emergency  vehicles by clearing massive debris on the roads in cooperation with the Self Defense  Forces and Police.

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4.Issues in Road Infrastructure: For the “Next” Great Earthquake

The Great East Japan Earthquake revealed two major issues regarding disaster recovery  and the road infrastructure. 

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Effects and Issues of Multilayered Expressways 1 Expressway Network in Eastern Japan and Disaster Areas • Affected areas extend mainly along the Pacific Coast where the massive tsunami hit. - Expressway network in eastern Japan and the tsunami-stricken areas Legend Expressway network Severely damaged by the Tsunami Designated emergency evacuation area of the Fukushima Daiichi Nuclear Plant (30km radius)

•This figure shows the relationship between the expressway network in eastern Japan  and the tsunami‐stricken areas.  •The affected areas extend mainly along the Pacific Coast where the massive tsunami  hit. •The area circled in red is the restricted area around the Fukushima Daiichi Nuclear  Power Station.

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Effects and Issues of Multilayered Expressways 2 Freight Network Functioned as Alternative Route • The freight transport routes along the Sea of Japan functioned as an alternative to the damaged coastal routes along the Pacific. - Traffic volume of Heavyduty vehicles on the Expressways increased after the earthquake

Traffic Increased by 30 to 50%

* Before Earthquake: March 7(Mo)~10(Th), 2011 * After Earthquake: March 14(Mo)~17(Th), 2011

•The freight transport routes along the Sea of Japan functioned as an alternative to the  damaged coastal routes along the Pacific.  •For instance, in the routes in red, the traffic increased by 30 to 50% after the  earthquake. The traffic increase proves the importance of the redundancy that the  multilayered expressway networks provided.

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Effects and Issues of Multilayered Expressways 3 Undamaged Sanriku Expressway • Since the Sanriku Expressway along the Pacific had been designed to avoid tsunamis based on the past tsunamis, it was free of damages. • Reassured the importance of planning road infrastructure taking into account of tsunami risks.

Sendai

Tokyo

Ntn’l Hwy 45 Sanriku Expressway

•Since the Sanriku Expressway along the Pacific coast had been designed to avoid  tsunamis based on the past tsunamis, it was free of damages and served for emergency  traffic from right after the disaster.  •We were reassured the importance of planning road infrastructure taking into account  of tsunami risks. 

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Effects and Issues of Multilayered Expressways 4 Missing Links of Expressway along Sanriku Coast • Sanriku Expressway had been less than 50% complete. • It left several issues as an emergency traffic network. (hr) 600 10

Legend Expressway network

480

8

Travel time: Sendai - Miyako 7h27m

6

360

Sections with missing links

2h55m

4

240

(along Pacific Coast)

120

2

Miyako

00 震災後の Prolonged 実際の所要時間

Sendai

travel time after the quake

三陸道の Estimated 全線開通を想定

travel time with complete Sanriku Expwy

•However, the Sanriku Expressway had been less than 50% complete. The incompletion  left several issues as an emergency traffic network.  •For instance, it took 7 hours to drive the section between Sendai and Miyako due to  detours and congestion after the earthquake. If this section of the expressway had been  completed, it would have only taken 3 hours. •The incompletion clearly caused the congested traffic. If this expressway had been  completed, we believe it could have expedited the rescue after the earthquake.

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Effects and Issues of Multilayered Expressways 5 Expected Tsunami Stricken Areas and Missing Link • Missing links of the expressways in these high-risk flood areas by tsunamis by possible large-scale earthquakes. Legend Expressway network Estimated tsunami affected areas by Tokai, Tonankai, Nankai earthquakes (Predicted in Dec. 2003, Central Disaster Management Council)

Sections with missing links

•In Japan, probability of other Great Earthquakes (e.g. Tokai, Tonankai, Nankai, etc.) has  been pointed out. •The areas in pink are projected flooded areas by tsunamis caused by large‐scale  earthquakes. •There are missing links of expressways in these areas. We recognize that early  development of thorough infrastructure in these areas is a challenge to us.

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Necessary Information on Road Immediately after the Earthquake 1 • After the earthquake, each government provided information separately. National road

National government provided consolidated information

Local road

12 days after the earthquake Legend

:Road Closure

•The next issue is a way to provide information right after an earthquake. •The Great East Japan Earthquake caused road closures at various locations. After the  earthquake, the national, prefectural, and municipal governments provided information  separately. •It required 12 days for the national government to consolidate such information and  provide to the public.

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Necessary Information on Road Immediately after the Earthquake 2 • Road users need information on “available routes” as well as “closed routes” in a situation with a lot of closures. Closed routes: governments’ perspective

Available routes: users’ perspective

目的地 Desti-

目的地 Desti-

nation

nation

Which route Which shouldroute I

should I どこを通れば?? take?? take??

Info. on road closure:

One month after the earthquake Info. on available routes:

•Road users need information on “available routes” as well as “closed routes.” •Providing useful information to road users took one month after the earthquake. •For the future, it is necessary to provide integrated information from each road  authority swiftly as well as providing information of available routes.

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5. Issues and Lessons Learned from the Great East Japan Earthquake

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Issues and Lessons Learned from the Great East Japan Earthquake 1. By having applied the lessons of the past earthquakes, such as the revised standards and associated seismic reinforcements, damages on bridges were significantly reduced. 2. Right after an earthquake, the top priority is to secure emergency traffic networks promptly. 3. We recognized the importance of multilayered expressway networks. 4. Right after disasters, necessary information should not be provided by multiple road administrators separately to avoid confusion. Moreover, road users need information such as available road networks.

•We have a number of issues and lessons learned through this East Japan Great Earthquake. •Let me conclude my presentation by reviewing the major points: z

First, by having applied the lessons of the past earthquakes (especially the Hanshin‐Awaji  Earthquake), such as the revised standards and associated seismic reinforcements, damages  on bridges were significantly reduced.

z

Second, right after an earthquake, the top priority is to secure emergency traffic networks.  At the earthquake, we secured the road networks promptly. This case sets, good practice for  the future.

z

Third, we recognized the importance of multilayered expressway networks to rescue  disaster areas and restoration. In Japan, the road development has been delayed in less‐ populated areas with low traffic volumes. We believe it is our urgent issue to promptly  develop those missing links.

z

Last, right after disasters, necessary information should not be provided by multiple road  administrators separately to avoid confusion. Moreover, road users need information such  as available road networks.

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Thank you for  your kind attention.

Temporary bridge was built in place of previous bridge  washed away by tsunami; A step  toward recovery.

•I’d like to take another moment to thank you for your generous support to our  country.  •Thank you for your kind attention.

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