presentation slide-sakane：8-14 parallel-track_1_at_hg19

Administrative Capacity for Reconstruction Procurement:

Lessons Learnt from the Great East Japan Earthquake

Toru SAKANE

Hosei University (Japan)

COMPOSISION

INTRODUCTION

BACKGROUND SITUATIONS

SHORTAGE OF PUBLIC SERVANTS

RECRUITMENT

DISPATCH

SUMMARY

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INTRODUCTION Just After the Tsunami in Minamihama-district, Ishinomaki-city

（provided by Ishinomaki Nichi-Nichi News Paper)

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INTRODUCTION After the Tsunami – Ishinomaki City Hospital and Cultural Center

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INTRODUCTION After the Tsunami – Ishinomaki City Hospital, the Entrance Gate

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INTRODUCTION After the Tsunami – Ishinomaki City Hospital, Grand Floor

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INTRODUCTION Just After the Tsunami at Minamihama-district in Ishinomaki-city

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INTRODUCTION Situation of Minamihama-district in Ishinomaki-city as of 1 Aug 2014

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INTRODUCTION Situation of Minamihama-district in Ishinomaki-city as of 1 Aug 2014

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INTRODUCTION A Bridge damaged by the Tsunami in Minamihama-district,

Ishinomaki-city

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INTRODUCTION A Bridge damaged by the Tsunami in Minamihama-district,

Ishinomaki-city

INTRODUCTION

The Great East Japan Earthquake on 11th March 2011

severely damaged the Pacific coastal area in the Tohoku

region.

A large section of the budget has already been allocated

and spent on these efforts and will continue to be spent in

the future.

The administrative capacity matter is one of the most

important and difficult.

How did various administrative agencies in Japan approach

the administrative capacity matter including civil

engineering procurement capacity?

INTRODUCTION

Municipal Governments and Miyagi Prefecture

Main focus of this paper is on municipal governments.

Municipal governments are city, town and village. Municipal

governments are important for reconstruction because they are regarded

as main responsible for planning and implementing the

reconstruction in each administrative area.

Main focus of this paper is on Miyagi prefecture.

Casualty number in Miyagi is more than 10,000 while numbering

more than 5,000 in Iwate and more than 3,000 in Fukushima. Miyagi is

the biggest prefecture in the Tohoku region in terms of both population

and GDP.

BACKGROUND SITUATIONS Budget Increase after the Earthquake

The tsunami-stricken municipal governments in Miyagi

prefecture faced enormous budget increase after the

tsunami and earthquake.

Especially public investment expense to restorative

construction is marking the tremendous increase.

Public procurement is very important to the process of

the implementation of such public investment expenses.

Table 1: Comparison of Public Investment Expense between Expense between the Original 2010 Fiscal Year Budget and

the 2013 Fiscal Year Budget

Source: Miyagi Prefectural Government. (2013a). “Comparison of Initial Regular Budget before and after the Earthquake -

Investment Expense (2010 and 2013 Fiscal Year)”

BACKGROUND SITUATIONS Comparison of Public Investment Expense Before and After the Disaster

143 1,1332,757Rifu Town

156 52,106133,280Sendai City

2141,9756,207Tagajyo City

308 2,96612,106Natori City

498 1,6019,570Shiogama City

531 3,46721,880Iwanuma City

718 2,03516,645Higashimatsushima City

1432 5,65186,598Ishinomaki City

1979 62913,076Onagawa Town

2587 3178,517Matsushima Town

2623 2,37364,622Kesennuma City

39621496,053Sichigahama Town

8355 52744,560Minamisanriku Town

10716 41945,318Watari Town

11326 23827,194Yamamoto Town

Increase

(%)

2010 fiscal year

(million yen)

2013 fiscal year

(million yen)

143 1,1332,757Rifu Town

156 52,106133,280Sendai City

2141,9756,207Tagajyo City

308 2,96612,106Natori City

498 1,6019,570Shiogama City

531 3,46721,880Iwanuma City

718 2,03516,645Higashimatsushima City

1432 5,65186,598Ishinomaki City

1979 62913,076Onagawa Town

2587 3178,517Matsushima Town

2623 2,37364,622Kesennuma City

39621496,053Sichigahama Town

8355 52744,560Minamisanriku Town

10716 41945,318Watari Town

11326 23827,194Yamamoto Town

Increase

(%)

2010 fiscal year

(million yen)

2013 fiscal year

(million yen)

SHORTAGE OF PUBLIC SERVANTS

Faced with such a dramatic increase of public

investment expense, these 15 heavily tsunami-

stricken Miyagi municipal governments must

prepare additional public servants.

However, to secure a sufficient number of

public servants is very difficult.

SHORTAGE OF PUBLIC SERVANTS Needs, Fulfilment and Remaining Shortage of Public Servants

.

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Table 2: Needs, Fulfilment and Remaining Shortage of Public Servants in the 15 Tsunami-stricken Miyagi

Municipal Governments as of 1st March 2014

Source: Miyagi Prefectural Government. (2014a). “Staff Shortage Situation in the 15 Coastal Municipal Governments in 2013 Fiscal Year (as

of 1st March 2014)”

SHORTAGE OF PUBLIC SERVANTS

The shortage is especially severe in civil engineering.

This shortage of civil engineering includes land

readjustment, water and sewerage, collective relocation,

fishery harbour and so on.

Civil engineer is essential to the implementation of

public procurement for the reconstruction of roads,

housing, land adjustments, ports, public facilities and so on.

Table 3: Total Shortage of Public Servants in the 15 Tsunami-stricken Miyagi Municipal Governments listed in Table 2 as of

1st March 2014

Source: Miyagi Prefectural Government. (2014b). “Staff Shortage Situation in the 15 Coastal Municipal Governments in 2013 Fiscal Year:

Classified by Job Category (as of 1st March 2014)”.

SHORTAGE OF PUBLIC SERVANTS Total Shortage of Public Servants

RECRUITMENT Overview of Recruitment

Table 4: Number of Recruited Public Servants to Fulfil the Shortage

Source: Miyagi Prefectural Government. (2014a). “Staff Shortage Situation in the 15 Coastal Municipal Governments in 2013 Fiscal Year (as

of 1st March 2014)”.

RECRUITMENT Recruitment of Fixed-term Public Servants

The Most typical recruitment type is fixed-term

because public reconstruction work is regarded as a non-

permanent administrative activity, limited and rather

intensive.

In reality, recruitment is the supplementary option for

most of the tsunami-stricken Miyagi municipal

governments.

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RECRUITMENT Other Mechanisms

There are several other recruitment mechanisms.

Recruitment of permanent public servants

Recruitment of retired public servants

Reappointment

However, these types of recruitment practices are also not

enough to fulfill the needs.

DISPATCH Overview of Dispatch

Dispatch, not recruitment is the most used

method to fulfil the gap.

Total dispatch number (954) is more than

three times of total recruitment number (289)

as of 1st March 2014.

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Table 5: Number of Dispatched Public Servants Received to Fulfil the Shortage

Source: Miyagi Prefectural Government. (2014a). “Staff Shortage Situation in the 15 Coastal Municipal Governments in 2013 Fiscal Year (as of 1st March

2014)”.

DISPATCH Number of Dispatched Public Servants Received to Fulfill the Shortage

DISPATCH Self-Arrangement

Each tsunami-stricken municipal government arranges

dispatch with other municipal governments and

prefectures. Typical examples are dispatches based on

disaster mutual cooperation agreement and dispatches

based on sister-city or twin town relationship.

However, self-arrangement has lots of varieties.

ex. Tokyo metropolitan government cooperated to some

tsunami-stricken municipal governments even without these

pre-existed agreement or relationship: though 47 have been

employed since September 2012 on a one year fixed-term.

Most of public servants were renewed and 42 are still

working at the 10 municipal governments as of March

2014.

DISPATCH MIC SCHEME

MIC (Ministry of Internal Affairs and Communications) organizes

the dispatch scheme.

MIC gathers information on human resource needs in each

damaged municipal government through each damaged prefecture.

MIC sends cooperation request to municipal governments

across Japan.

MIC gathers dispatch possibilities and offers from municipal

governments.

The important reason why this MIC scheme is so powerful and

effective are MIC’s national-wide influence to local governments.

DISPATCH

Dispatch after Recruitment by Miyagi

prefectural government

The Miyagi prefectural government conducts

advertisement and recruitment activities on behalf of

the tsunami-stricken municipal governments.

In this recruitment, career open seminars are held not only

in Sendai city but also in Tokyo to attract more

candidates.

DISPATCH Other Mechanisms

There are other dispatch mechanisms.

The Miyagi prefectural government and other non-

tsunami-stricken municipal governments within Miyagi

also dispatch their own public servants.

The Reconstruction Agency is also arranging a scheme to

attract human resources from private companies.

Direct dispatch from private companies is also

conducted.

However, the number of these dispatches is limited.

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SUMMARY .

Efforts and mechanisms to fulfil reconstruction engineering

capacity and overall administrative human resource capacity in

the tsunami-stricken municipal governments in Miyagi prefecture are

identified. Recruitment and dispatch are two methods.

To increase the number of permanent public servants is only a

special option.

Most typical recruitment is fixed-term.

There are several other recruitment mechanisms such as

recruitment of retired public servants and reappointment, but those are

not so much used.

Recruitment

SUMMARY

Dispatch

The number of dispatched is more than three times the recruitment

number in Miyagi 15 tsunami-stricken municipal governments.

Self-Arrangement : the 15 municipal governments arrange dispatch.

Through the MIC scheme, many public servants are dispatched.

The Miyagi prefectural government’s advertisement and

recruitment efforts let these 15 be possible to receive the recruits.

The Miyagi prefectural government and other non- tsunami-stricken

municipal governments within Miyagi prefecture also dispatch their own

public servants. However, the capacity to send is not so much.

SUMMARY Remaining Challenges

Despite these efforts and results, there are still shortages of

both public servants as a whole and specifically engineering

officers including procurement-related human resources

personal.

-How to fill this remaining gap is a great challenge.

-How to keep this present situation and promote national-

wide cooperation is also the important challenge.

As summarized above, the experiences, efforts and challenges

can be a good lessons in preparation for such future disasters.

REFERENCES Miyagi Prefectural Government. (2013a). “Comparison of Initial Regular Budget before and after the Earthquake -

Investment Expense (2010 and 2013 Fiscal Year)”.

Miyagi Prefectural Government. (2013b). “Current State of Human Resource Assistance to Disaster-stricken Municipal

Governments (Summary of Personnel Division)”, 23rd October 2013.

Miyagi Prefectural Government. (2014a). “Staff Shortage Situation in the 15 Coastal Municipal Governments in 2013

Fiscal Year (as of 1st March 2014)”.

Miyagi Prefectural Government. (2014b). “Staff Shortage Situation in the 15 Coastal Municipal Governments in 2013

Fiscal Year: Classified by Job Category (as of 1st March 2014)”.

MIC (Ministry of Internal Affairs and Communications). (2011). “Request of Human Resource Assistance for the Great

East Japan Earthquake”, 22nd March 2011.

MIC (Ministry of Internal Affairs and Communications). (2012). “Human Resource Assistance of Damaged Municipal

Governments for the Great East Japan Earthquake”, 24th February 2012.

MIC (Ministry of Internal Affairs and Communications). (2013). “Utilization Scheme of Retired Staff (Direct

Recruitment by Municipal Government)”.

Reconstruction Agency. (2014). “Adoption of Human Resource Dispatch from Private Companies through ‘Work for

Tohoku (Project of Establishing Reconstruction Human Resource Platform)’ ”. 28th February2014.

M. Sakamoto and K. Yamori. (2012). “Understanding Mutual Assistance Coordination among Prefectures and

Municipalities in a Multi-location Disaster through the Experience of the Great East Japan Earthquake”. pp. 391-

400. Institute of Social Safety Science (18). November 2012.

S. Takana. (2012). “A Sustainable Public Procurement System for Large-scale Natural Disasters: the Case of the

Temporary Housing Program after the East Japan Earthquake”, Fifth International Public Procurement Conference

roceedings (17-19 August 2012), pp. 3536-3555, Seattle, USA, 2012.

Tokyo Metropolitan Government. (2012). “Application Guide for Tokyo Metropolitan Government Fixed-term General Staff in 2012”,

20th April 2012.

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INTRODUCTION Ishinomaki Kawahiraki Festival on 1 Aug 2014

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INTRODUCTION Ishinomaki Kawahiraki Festival on 1 Aug 2014

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INTRODUCTION Ishinomaki Kawahiraki Festival on 1 Aug 2014

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INTRODUCTION Evening riverside view of Minamihama-district in Ishinomaki-city as

of 1 Aug 2014

Thank You