chapter 3 · communication infrastructure internet others figure 3-1-1-3 information terminals...

The FY 2011 White Paper on Information and Com-munications in Japan covered information and commu-nications conditions in northeastern Japan until May 2011 after the Great East Japan Earthquake. Now that more than one year has passed, this chapter builds on the past surveys to once again compile what role ICT played in the Great East Japan Earthquake and what challenges surfaced through the disaster.

Section 1Impact of the Great East Japan Earthquake on Information Be-haviors

1. Information behaviors and ICT’s role in disaster-dam-aged areas

The two parts of Section 1 analyze information behav-iors in the disaster-damaged areas, based on interviews on disaster-affected people’s information behaviors and ICT utilization between the March 11 earthquake-tsuna-mi disaster and late April 2011.

(1) Evaluation of media used upon the disasterRadio, a nearly instantaneous information source, was

given a higher evaluation than other media during the disaster, according to the face sheet (Figure 3-1-1-1). The AM radio was given the highest rating of 60.1%, fol-

lowed by the FM radio. “But the radio failed to inform us of regional disaster conditions, leading us to lag behind in knowing how serious the damage from the tsunami was,” an interviewee said, indicating problems with the radio. After the disaster, the evaluation rose for the inter-active mobile phone and E-mail for safety confi rmation purposes as well as for the terrestrial television broad-casting providing footage. In late April, the rating for the terrestrial TV broadcasting exceeded that for the radio.

(2) Alteration in methods of information-gatheringAn analysis of interview comments regarding infor-

mation-gathering media in the disaster-damaged areas indicates that highly instantaneous broadcasting tools such as the TV, radio and disaster radio were used more frequently than other media for collecting tsunami and other information just after the earthquake’s occur-rence. Particularly, the radio and TV turned out to be very useful. But comments about information-gathering media just after the earthquake occurrence and their evaluation indicate that the percentage share for inter-viewees viewing the radio as the most useful tool was limited to half the radio utilization rate. One comment said, “The radio, though being useful for obtaining infor-mation, failed to provide details.” Mobile phones were given a lower rating. One comment said: “I had believed that wireless mobile phones would be useful upon disas-ters. But I was shocked at fi nding mobile phones not useful.” The radio, for which the utilization rate just after the earthquake occurrence was the highest among in-formation-gathering tools, was evaluated as useful by only 40 plus percent of interviewees, suggesting that providers of nearly instantaneous information should

Figure 3-1-1-1 Evaluation of media used during the disaster

(Source) MIC “Survey on Information and Communications upon Disasters (2012)”

n=328

0

20

40

60

80(％)

At the time of occurrence of the earthquake Immediately after the quake Until the end of April

Phone calls and Emails Broadcasting Internet Others

Immediately after the earthquake, the usefulness of mobile phones, mobile phone messages and terrestrial broadcasts received higher evaluation and at the end of April, the evaluation of the usefulness of mobile phones, mobile phone messages and terrestrial broadcasts exceeded that of radios.

During the period from the occurrence of the earthquake until the end of April, the websites and search sites of administrative agencies and news media received higher evaluation

At the time of occurrence of the quake, AM radios received the highest evaluation (60.1%) followed by FM radios.

Immediately after the earthquake, radios were the only means to obtain information. However, radios were insufficient to grasp the actual state of damage in the area and it took a long time to know of the enormous damage caused by tsunami. We were unable to know who was doing what and felt highly anxiousness.

Others

Words of mouth from neighborhoodsFA

X

Disaster emergency message

board and dial-up provided

by telephone operators and

mobile phone operators

Disaster radio

Other websites

Location based services

Internet broadcasting

Video sharing websites

Twitter

SNS

Search sites

News media’s websites

Administrative agencies’ websites

Internet radios

Temporary radio broadcasting stations

FM radios

AM radios

One segment broadcasting

Cable TV

CS broadcasting

BS broadcasting

Terrestrial broadcasts

Internet Emails

Mobile phone messages

Internet phones

Mobile phones

Fixed line telephones

Pay phones

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Chapter 3Lessons of the Great Earthquake and the Role of ICT

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use multiple information provision channels.Interview comments on media for gathering tsunami

information indicate that the utilization rate was as high as 25% each for the TV, radio and disaster radio.

Administrative information obtained through informa-tion-gathering efforts was described as “suffi cient” by 30.2% of interviewees and as “insuffi cient” by a majority of 53.8%.

(3) Trends by mediaa. Disaster radio

Of interviewees who were able to hear the disaster radio, 65.6% said they became aware that the tsunami was coming, indicating the recognition that the disaster radio played a key role in leading disaster-affected peo-ple to take evacuation actions.

b. Mobile phoneQuestioned about information terminals that intervie-

wees carried with them upon their evacuation in the di-saster-damaged areas, 95.1% of respondents cited the mobile phone (Figure 3-1-1-3). But a specifi c interview comment said, “I think that if I were able to use the mo-bile phone, I would have been fortunate.” Another com-ment said: “I had believed that wireless mobile phones would be useful upon disasters. But I was shocked at fi nding mobile phones not useful.” After the disaster oc-currence, particularly, mobile phones were left unusable for a long time due to network congestion, physical dam-age to base stations and other facilities, out-of-fuel stand-by power systems and other factors. Interview com-ments indicate that disaster-affected people even with mobile phones remained isolated, failing to confi rm whether their relatives were safe.

c. BroadcastingMany interviewees depended on the radio, TV and

other broadcasting media. They gave high ratings to the provision of regional information using news tickers and community broadcasting. Among comments on needs for regional information through broadcasting media, however, one said, “The radio, though being useful for obtaining information, failed to provide details.” Another said, “I am considering whether some community FM radio system for a limited region can be developed to improve the current situation where it is diffi cult to col-lect town information.” They pointed to some constraints on the capacity of these broadcasting media for provid-ing daily living-related and other detailed regional infor-mation.

d. InternetWhen voice communications and E-mails through

mobile phones were unavailable just after the earth-quake occurrence and when disaster-affected people completed their evacuation, people including advanced Internet users took advantage of blogs, the Google Per-son Finder, Twitter and other Internet services to con-fi rm relatives’ fates and collect detailed regional infor-mation. In the disaster-damaged regions, Internet users were generally limited. But those who effectively used the Internet for gathering daily living-related and other information gave a high rating to the Internet, suggest-ing the Internet’s high potential as an information provi-sion tool for disaster-damaged areas.

(4) ICT conditionsInterviewees’ specifi c requests or needs regarding

communications infrastructure indicate that many (10.8%) of them cited the secured usability, reliability and redundancy of communications infrastructure along

(Source) MIC “Survey on Information and Communications upon Disasters (2012)”

Figure 3-1-1-2 pecifi c requests/needs for ICT toolsDevelopment of secured communicationmeasures capable of delivering correctinformation to residents (ex. Independent

disaster radio system)Provision of local information

through broadcasting

Importance of mobile phonesserving as a life line

Necessity of satellite phones servingas a complimentary or substituting

communication channelImportance of power sources for

preserving communication channels(particularly for charging mobile phones)

Usability, reliability,or redundancyof communication Infrastructures

Quick recovery and enhancementof communication channels

Delivery of correct information, anddiversified information delivery measures

Collection and integratedinformation-management

Effects of Internet

Challenges for the Internet

Utilization of print media

Criticality of preservation of powersources serving as a life line 6.2

2.6

7.7

10.8

1.5

3.1

2.6

10.8

9.3

6.7

16.0

12.9

27.3

0 10 20 30 (%)

※　Note; The parent group has a population of 194 selected out of the all interviewed (306), which consist of respondents who made specific　comments or requirements. Each ratio is a percentage of the respondents who favored the corresponding item to the parent population.

n=194

Disaster Radio

Broadcasting

CommunicationInfrastructure

Internet

Others

Figure 3-1-1-3 Information terminals car-ried by disaster-aff ected people and their relevant specifi c requests/needs

(%)

0

10

20

30

40

50

60

70

80

90

100

Others

Car TVs

Portable TVs

Car radios

Portable radios

Tablet devices

PCs

Mobile phones

2.5

13.020.4

1.24.3

12.3

95.1

[Importance of mobile phones as one of the lifelines]・Nowadays, it has become very common to make contact by mobile phones and we would suffer terribly without them.・I wish mobile phones were available anyhow (at the time of the disaster). Portable tools were almost limited to mobile phones and if they were available somehow, we could send mails or use SNS even if we couldn’t make phone calls.・I was shocked that mobile phone turned out to be completely useless at the time of disaster as I had an idea that wireless mobile phones would be useful at such a time.

[Importance of power supply to secure the use of information and communication tools (especiallymobile phones)]・I faced difficulty in obtaining power supply for mobile phones. As I had installed a solar electric generation in my house, I used them or cars to charge batteries.・I didn’t use the 1seg function of the mobile phone so as to save batteries. The repair of electric system is vital for tools to access information. Smart phones were unavailable for a long time as their batteries needed charging as well. Power supply is the most significant thing.

n=162

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with or rather than a secure power source as a lifeline(cited by 6.2%) .

As for ICT tools available at evacuation centers, many comments said evacuees depended only on the radio when almost all other ICT tools were unavailable due to blackouts in the fi rst week after the disaster. On ICT needs at evacuation centers, one interview comment said: “There were great needs for mobile phones. Al-though mobile phones gradually became usable, mobile communications were unstable. I wanted mobile phone communications to be more stable.” Among information and communications tools, the mobile phone posted the highest popularity rating of 52.6%, followed by the TV and radio.

Opportunities to match the supply and demand of ICT tools were seen by 28.8% of respondents. Such opportu-nities were also seen by 41.2% of local governments and by 47.4% of residents at temporary houses Information-rich administrative organizations and residents of tem-porary houses during the post-disaster restoration/re-construction period saw more opportunities to match ICT tool supply and demand.

(5) Handling of personal information and consideration to elderly peopleAs for handling of personal information in the disas-

ter-damaged areas, 86.7% of residents said they saw no particular problems. Meanwhile, 45.4% of local govern-ments said they had experienced considerable diffi culty in collecting and disclosing personal information. There was a consciousness gap between residents feeling no particular problems and local governments making pain-ful efforts.

People affected by the Great East Japan Earthquake included many elderly persons. Interviewees were asked about how consideration was given to elderly persons in information conveyance. A majority of 67.7% said they saw no special consideration given to elderly people. But 8.1% said multiple information provision means were used. This indicates that consideration was given to el-

derly people in some cases.

2. Information behaviors of metropolitan residents upon the disaster

We here would like to analyze “Joint Research on An-shin in Internet Usage,” a joint study by the University of Tokyo, Toyo University, Kansai University and Nippon Telegraph & Telephone Co. on information behaviors of residents in the Tokyo metropolitan region. The study is based on an Internet poll of residents in Tokyo and the three neighboring prefectures of Kanagawa, Saitama and Chiba.

(1) Through what media or means did you initially know of the earthquake?Looking at the media through which respondents fi rst

knew of the earthquake, the TV was cited by 53.4% of respondents, the highest percentage followed by 16.1% for news sites and 11.3% for one-seg broadcasting, indi-cating that mass media served as a main information channel (Figure 3-1-2-1). Percentage shares for respon-dents citing social media were lower, including 0.9% for SNS (social network services) through personal com-puters and mobile phones and 0.7% for Twitter.

(2) What communications means did you attempt to use on the earthquake day?Nearly 80% of respondents attempted to use the voice

communications of the mobile phone. A similar percent-age of respondents were planning to use the mobile phone E-mail. We would like to check the availability of communications means on the earthquake day for re-spondents who attempted to use some means and found them unavailable. The mobile phone voice communica-tions was the most diffi cult to be connected among com-munications means, cited by 65.4% as unavailable. Fol-lowing this was the fi xed-line phone communications

Figure 3-1-2-1 Through what media did you know about the earthquake fi rst?

(Source) The University of Tokyo Interfaculty Initiative in Information Studies, Research Survey Reports in Information Studies 2012 No. 28, “Information Behaviors in Tokyo Metropolitan Area after the Great East Japan Earthquake”

TV broadcastNews websiteOne segment broadcastingRadioWord of mouth from a friend, etc.Email or phone call from a friend, etc.SNS, etc. (on PCs or mobile phones)TwitterOthers

53.4%

0.6%

16.1%

11.3%

8.1%

6.7%

2.2%0.9%0.7%

n=2,000

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cited by 55.1% (Figure 3-1-2-2). Far fewer respondents attempted to use the personal computer e-mail or the web service. But only 17.9% of them found the PC e-mail unavailable and 11.3% found the PC web service unavail-able. Indications are that the PC E-mail and web service were far easier to be connected.

(3) Useful media for dealing with the disasterThe TV was cited by 86.3% of respondents as the tool

providing information they wanted (suffi ciently or to some extent) during the week after the disaster. Follow-ing the highest percentages were 71.8% for news sites, 54.7% for newspapers, 51.5% for E-mails or calls from relatives, friends and acquaintances, and 29.3% for the radio.

The TV was the most popular information source for collecting disaster information, cited by 63.1% as the most useful information source for obtaining such infor-mation. The next highest percentages were 12.1% for news sites, 5.8% for the radio, 4.8% for E-mails or calls from relatives, friends or acquaintances, and 3.7% for newspapers (Figure 3-1-2-3).

Section 2The Great East Japan Earth-quake and Business Continuity

We conducted a survey of local governments and en-terprises in disaster-damaged and other areas in Japan concerning the Great East Japan Earthquake and busi-ness continuity, looking into how business operations were continued on the occasion of the disaster and what challenges emerged then.

1. Business continuity in disas-ter-damaged areas

Our interview survey on data losses at hospitals and schools through the Great East Japan Earthquake in the disaster-damaged areas indicate that 27.3% of hospitals and 40.0% of schools lost data. One interview comment at a hospital said: “We failed to recover the reception computer and electronic health record data that had not been backed up.” Another said, “USBs were dropped and data lost.” Multiple interviewees at hospitals report-ed substantial data losses. In some cases, hospitals mini-

Figure 3-1-2-2 Availability of communication means


0 10 20 30 40 50 60 70 80 90 100(%)

55.1 31.6 13.3

36.0 27.1 36.8

65.4 29.8 4.9

37.0 50.5 12.4

32.0 38.8 29.2

17.9 21.4 60.8

11.3 18.2 70.5

Tried to use it but was unavailable Tried to use it and was occasionallyavailable

Tried to use it and wasavailable every time

PC websites (n=692)

PC Emails (n=416)

Mobile phone websites (n=582)

Mobile phone messages (n=1,528)

Mobile phone calls (n=1,565)

Pay phone (n=247)

Fixed line telephone (n=879)

Figure 3-1-2-3 What was the most useful information source?


63.1 12.1 5.8 4.8 3.7 2.3

2.1

0.90.20.2

0.1

0.5

1.7 1.51.4

0 10 20 30 40 50 60 70 80 90 100 (%)

Personal websites or blogsFacebook

Electronic bulletin boards

Emails or phone calls from familymembers, friends or acquaintances

TV broadcasts

MixiThe government’s or local government’s twitter

TV news distributed on the Internet

NewspapersNews websites (e.g. Yahoo! News)

Expert’s twitterMedia’s twitter

The government’s or local government’s websites

One segment broadcasting on mobilephones (including smartphones)

Radios

n=2,000

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mized data losses through data backup measures. One interviewee said: “We lost all paper health records and reception data. But we recovered some receipt data by matching data sent to the center.” An interviewee at a school with the school administrative system said, “All data was lost due to fl ooding.”

2. Local governments’ change in thinking after the Great East Japan Earthquake

(1) “What are challenges with information provision to residents upon disasters?”Given the Great East Japan Earthquake, we conduct-

ed a poll of local governments concerning challenges related to information provision to residents during di-sasters. The biggest challenge was the prompt and ac-curate information provision upon a disaster occurrence, cited by 68.5% (Figure 3-2-2-1), indicating that local gov-ernments are very interested in how best to provide in-formation to residents just after a disaster occurrence.

(2) Internet utilization upon disastersResponses from local governments concerning the

utilization of the Internet upon disasters indicate that the Great East Japan Earthquake prompted about 70% of lo-cal governments to change their thinking and enhance the utilization of the Internet (Figure 3-2-2-2). Specifi -cally, their Internet utilization focused on their respec-tive websites. Some local governments cited the utiliza-tion of social media and portal sites, suggesting that the disaster led local governments to make diversifi ed Inter-net utilization efforts.

(3) ICT and business continuity plans based on experiences with the Great East Japan EarthquakeSince the disaster, the importance of business conti-

nuity plans has reportedly attracted attention anew both in the public and private sectors. We asked local govern-ments whether they had worked out business continuity plans. Those that have prepared BCPs are limited to some 10% of the total. While some 40% of prefectural gov-ernments have prepared BCPs, only 3.5% of town and village governments have done so (Figure 3-2-2-3). But the Great East Japan Earthquake has prompted 34.6% of

Figure 3-2-2-1 “What are challenges regarding information provision to residents upon disasters?”

(Source) MIC "Survey on ICT's Eff ects on Economic Growth (2012)"

Assured prompt and correctinformation provisionContinuous provision ofinformation on the damage,evacuation and personal safetyProvision of detailed informationfor daily lifeOthers

Nothing particular

68.5%

20.9%

6.9%

2.9%0.9%

n=802

Figure 3-2-2-2 “What actions are taken for Internet utilization upon disasters based on experiences with the Great East Japan Earthquake?”


69.6%

30.4%

0 20 40 60

77.1

24.7

4.9

9.0

Reactions such as the use of Internet, as well as the increase in and consideration of such use are madeNo particular reactions

Increasing the use of Internet mainly

by websites

Intensifying the use of Internet including

social media

Considering the use of portal sites

Others

80 (%)

n=590

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city and ward governments and 33.0% of town and village governments to consider preparing BCPs, indicating that local governments have grown more conscious of BCPs irrespective of their size.

(4) Expectations for cloud servicesWhen we questioned local governments on their

cloud service utilization, only 6.3% said they fully intro-duced cloud services. But cloud service users including partial users accounted for 45.0%. Local governments considering introducing cloud services accounted for 79.0% of the total. All prefectural governments are con-sidering doing so (Figure 3-2-2-4). Particularly, 40.2% of all local governments are introducing or considering in-troducing cloud services more proactively in response to the Great East Japan Earthquake. Some 40% of city, ward, town and village governments are doing so. The Great East Japan Earthquake might have prompted lo-cal governments to introduce or consider introducing cloud services.

3. Private enterprises’ change in thinking after the Great East Japan Earthquake

(1) ICT and business continuity plans based on experiences with the Great East Japan EarthquakeWhen we questioned private enterprises about the in-

troduction of BCPs in a poll, 20.8% of them said they had prepared BCPs, indicating that private companies have promoted their BCP preparation efforts more than the abovementioned local governments (Figure 3-2-3-1). But those that had prepared BCPs or were considering their preparation after the disaster were limited to some 40% of all responding enterprises, less than the 60% for local governments. Private enterprises’ change in thinking after the disaster was smaller than that of local govern-ments. Large companies have promoted their BCP prep-aration efforts more than small and medium-sized ones, indicating a BCP preparation gap between size groups.

Figure 3-2-2-3 State of BCP Preparation


33.3 11.1 29.625.9

8.1 24.3 27.534.6

13.033.0 50.4

19.033.5 37.8

0 20 40 60 80 100 (%)

Overall (n=800)

Towns and villages (n=391)

Cities and wards (n=382)

Prefectures (n=27) 0.0

4.0

5.5

2.01.5

5.8

Prepared and was further revised (or is under consideration for revision) following the Great East Japan EarthquakeYet to be prepared but consideration for preparation is made after the occurrence of the Great East Japan EarthquakePrepared but not especially revised following the Great East Japan Earthquake

Yet to be developed but consideration for preparation had been made before the occurrence of Great East Japan EarthquakeYet to be developed and no consideration for preparation has been made

Figure 3-2-2-4 Introduction of cloud services and consideration of cloud service introduction


30.8 23.1 7.7 11.526.9

11.3 18.5 9.0 16.4 19.825.1

18.9 13.77.5 11.9 24.4 23.6

10.1 18.8 24.314.511.3 21.0

0 20 40 60 80 100 (%)

0.0

Overall (n=791)

Towns and villages (n=386)

Cities and wards (n=379)

Prefectures (n=26)

Introduced before the occurrence of the earthquake and actively promoting further introduction in light of the quakeConsideration for introduction had been made before the occurrence of the earthquake and actively promoting further consideration for introduction in light of the earthquakeNo consideration for the introduction was made before the occurrence of the earthquake but actively promoting consideration for introduction in light of the earthquake

Introduced before the occurrence of the earthquake but no changes have been made in light of the earthquake

Consideration for introduction had been made before the occurrence of the earthquake but no changes have been made in light of the earthquakeNo consideration for introduction had been made before the occurrence of the earthquake and no changes have been made in light of the earthquake

Figure 3-2-3-1 State of BCP Preparation (private enterprises)

(Source) MIC “A Survey on ICT’s Eff ects on Growth (2012)”

10.7 10.1 9.410.9 58.9

8.98.511.1 66.0

27.9 15.4 10.910.0 35.8

0 20 40 60 80 100 (%)

Medium/small-sized enterprises (n=2,277)

Large-sized Enterprises (n=699)

Overall (n=2,976)

5.5

Prepared and was further revised (or is under consideration for revision) following the Great East Japan EarthquakeYet to be prepared but consideration for preparation is being made after the occurrence of the Great East Japan EarthquakePrepared but not especially revised following the Great East Japan EarthquakeYet to be developed but consideration for preparation had been made before the occurrence of Great East Japan EarthquakeYet to be developed and no consideration for preparation has been made

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Those that have prepared BCPs accounted for 43.3% of large enterprises compared to only 14.0% of SMEs.

(2) Expectations for Cloud ServicesWhen we questioned enterprises about their cloud

service utilization, only 8.9% of responding companies said they had fully introduced such services. Those us-ing cloud services fully or partially accounted for some 30%. This percentage is smaller than for local govern-ments (Figure 3-2-2-3-2). Of large enterprises, 45.2% are unaware or only slightly aware of cloud services or have never used them with no plan to use them in the future. Of SMEs, some 60% are unaware or only slightly aware of cloud services or have never used them with no plans to use them in the future. Private enterprises have not promoted the utilization of cloud services as much as local governments. As for some change in the cloud ser-vice utilization policy after the disaster, some 40% of en-terprises were prompted to more proactively introduce or consider introducing cloud services (Figure 3-2-3-3).

Section 3Lessons of the Great East Japan Earthquake and ICT

We here would like to cite major challenges as indi-cated by surveys that have been introduced so far.

1. Information conveyancein disaster-damagedareas and ICT

(1) Quick, certain information provision using diverse informa-tion conveyance meansIn interview surveys, high ratings were given regard-

ing the performance of the nearly instantaneous radio during the disaster occurrence and to the interactive mobile phones and E-mail just after the disaster, once again indicating the importance of broadcasting and the mobile phone during disasters. While broadcasting means including the community broadcasting were fre-quently used, the highest utilization rate was limited to 40 plus percent for the radio. Broadcasting was found as failing to suffi ciently provide instantaneous and regional information. While information provision through com-munity broadcasting and extra disaster broadcasting stations was conducted along with information gather-ing through personal communications widely, advanced Internet users took advantage of social media for effec-tive information collection. Mobile phones had been ex-pected to be useful and have turned out unusable during the disaster occurrence and during the evacuation. Ad-ministrative information was viewed by many intervie-wees as insuffi cient. But Internet users were among in-terviewees who were more satisfi ed with administrative information. Administrative information was given high ratings by nonprofi t organization offi cials and volunteers who made effective use for the Internet.

Given the abovementioned indications, diverse infor-

Figure 3-2-3-2 State of cloud service utilization (private enterprises)


8.9 20.4 15.7 31.5 23.5

7.2 18.9 34.915.9 23.1

14.5 25.1 15.2 20.4 24.8

0 20 40 60 80 100 (%)

Medium/small-sized enterprises (n=2,277)


Overall (n=2,976)Used on a company-wide basis

Don’ t know about cloud computing serviceNot used and no future plans to useNot used but have future plans to useUsed at some of the divisions

Figure 3-2-3-3 Introduction of cloud services and consideration of cloud service introduction (private enterprises)


10.2 20.812.8 20.918.4 16.8

21.111.5 19.97.9 20.4 19.2

15.7 23.216.1 20.613.6 10.9

0 20 40 60 80 100 (%)

Medium/small-sized enterprises (n=956)


Overall (n=1,339)Introduced before the occurrence of the quake and actively promoting further introduction in light of the earthquake

No consideration for introduction had been made before the occurrence of the earthquake and no changes have been made in light of the earthquake

Consideration for introduction had been made before the occurrence of the earthquake but no changes have been made in light of the earthquakece

Introduced before the occurrence of the earthquake but no changes have been made in light of the earthquake

No consideration for the introduction was made before the occurrence of the quake but actively promoting consideration for introduction in light of the earthquake

Consideration for introduction had been made before the occurrence of the quake and actively promoting further considerations for introduction in light of the earthquake

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mation conveyance means including not only broadcast-ing and mobile phones but also that the Internet and social media should be used simultaneously to secure prompt, accurate information for residents, workers and tourists.

We must take note of the fact that the disaster indi-cated the importance of securing power sources for both the transmitting side (including base stations and broad-casting station equipment) and the receiving side (in-cluding mobile phone terminals and TVs). Meanwhile, Japan is required to diffuse the “public information com-mons” to quickly and effi ciently provide such adminis-trative information as disaster evacuation advisories and orders to relevant local residents through various media including the TV, mobile phones and radio.

(2) Importance of mobile phones during disastersMobile phone terminals are rated high as familiar in-

formation terminals. At the time of the disaster occur-rence and during their evacuation, most people in the disaster-damaged areas carried mobile phone terminals with them. But many of them complained that the im-pact of these terminals’ prolonged unavailability was se-rious. An interviewee went so far as to say, “Measures for securing communications with mobile phones are more necessary than the enhancement of embank-ments.” Interviewees also pointed out that mobile phone functions should be improved to allow emergency infor-mation to reach mobile phone terminals that people al-ways carry with them.

Needs for mobile phones were strong not only during the disaster occurrence but also during evacuation. It could be said that discontent with mobile phones as in-formation sending and receiving tools disappeared with the recovery of the network. .

While the importance of mobile phones has once again been recognized through the disaster, mobile phone companies are required to enhance mobile phone networks’ resistance to disasters and terminals’ func-tions.

(3) Securing ICT toolsRegarding needs for ICT tools in the disaster-dam-

aged areas, we saw strong demand for mobile phones at evacuation centers and for TVs at temporary houses. Supply-demand matching efforts are required to secure supply meeting demand for these basic information ter-minals for people over a wide area forced to live at evacu-ation centers or temporary houses for a long time, as seen after the Great East Japan Earthquake. A majority of interviewees said no special consideration was given to elderly people at evacuation centers. The introduction of tablet computer terminals, etc., to give elderly people easy access to ICT tools has surfaced as a challenge.

2. Information behaviors and usage of ICT in neighboring areas

(1) Importance of Internet-based information provision The disaster seriously affected not only the disaster-

damaged areas but also their neighbors including the Tokyo metropolitan region. Information behaviors of commuters in the metropolitan region indicate that they dominantly used TVs for obtaining information. They saw news sites as more important than newspapers. They pointed out that while it was diffi cult to obtain ser-vice on mobile phones, websites and personal computer E-mails were more accessible. Especially, information through the Internet was very useful. Meanwhile, social media, though attracting much attention after the disas-ter, generally failed to provide necessary information to commuters suffi ciently. How best to make necessary in-formation easily accessible through social media is a challenge.

(2) Smooth provision of transportation information to stranded commuters failing to return homeMainly in the metropolitan region, a large number of

commuters were stranded and failed to return home on the disaster day. What these stranded commuters want-ed for their return home were information-gathering goods, including portable TVs and radios, and batteries for mobile phones. This indicates that it is important to secure various information conveyance means and con-vey information accurately not only in the disaster-dam-aged areas but also in neighboring areas. After the earthquake-tsunami disaster, there were strong needs for information on railway, subway and road transporta-tion services, suggesting that efforts are required to smoothly send such information. Such efforts are dis-cussed as part of measures for stranded commuters fail-ing to return home at a panel of representatives from central and relevant local governments. This summer or autumn plans to compile such measures to be taken on a big earthquake with its epicenter below Tokyo.

3. Business continuity and utilization of ICT in and after disasters

(1) Addressing consciousness and eff ort gap between size groupsGiven that the disaster affected business continuity in

many cases, local governments and private enterprises both in the disaster-damage areas and others have grown more conscious of business continuity. Many of them have prepared and are considering preparing busi-ness continuity plans. However, BCP consciousness and

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effort gaps have emerged between size groups – be-tween prefectural and municipal governments and be-tween large enterprises and small and medium-sized ones. We must appropriately address these gaps in or-der to enhance the entire society’s resistance to disas-ters.

(2) Developing an environment where cloud services are used securelyLocal governments place great expectations on cloud

services to be used for ensuring business continuity and are making cloud service-introduction efforts. But pri-vate enterprises have lagged behind local governments in this respect. Problems with the cloud service intro-duction include the absence of measures to customize cloud services to meet specifi c needs, information leaks and other security fears, and network safety fears. A poll of local governments shows that more than 40% of re-spondents cited these three points. These problems rep-resent challenges facing the entire cloud services. With a view to ensuring business continuity in disasters, we may be required to develop an environment where en-terprises and other entities can securely use cloud ser-vices.

Section 4Enhancing anti-disaster ICT measures based on lessons of the Great East JapanEarthquake1. Government measures(1) Cabinet Offi ce responses

In an effort to thoroughly review earthquake and tsu-nami countermeasures in response to the Great East Japan Earthquake, the Central Disaster Prevention Council on April 27, 2011, established a special panel on earthquake and tsunami countermeasures based on les-sons of the Great East Japan Earthquake. Based on fi nal recommendations given by the panel on September 28, the council revised its basic disaster prevention plan on December 27.

(2) IT Strategy Headquarters responses (IT disaster-prevention lifeline promotion council)On March 9, 2012, the IT Strategy Headquarters es-

tablished an IT disaster-prevention lifeline promotion council to consider and diffuse disaster-prevention life-lines using ICT and enhance information-sharing and cooperation between the public and private sectors.

2. MIC responses – Enhancing ICT’s resistance to disasters

(1) Enhancing communications’ resistance to disastersa. Securing communications in emergencies including large disasters

In April 2011, the Ministry of Internal Affairs and Communications created a panel on how to secure com-munications in emergencies including large disasters. The panel submitted fi nal recommendations on Decem-ber 27, 2011.

b. R&D for enhancing communications infrastructure’s resistance to disas-tersThe MIC has launched research and development ef-

forts to improve communications infrastructure’s resis-tance to disasters under the third FY 2011 supplemen-tary and FY 2012 principal budgets. Under the FY 2012 budget, the MIC is implementing the research, develop-ment and evaluation of “satellite communications net-works effective in disasters” and “technologies to quick-ly increase communications capacity in emergencies” as information and communications network infrastructure technologies to be required for secure information con-veyance in disasters.

c. R&D and demonstrations of information and communications technologies responding to wide-area disastersUnder the FY 2011 budget, the MIC implemented an

early adoption of research and development fruits and demonstration tests in disaster-damaged areas to help contribute to the reconstruction of areas damaged by the Great East Japan Earthquake.

(2) Enhancing broadcasting’s resistance to disastersBased on an analysis and assessment of damage to

broadcasting equipment in the Great East Japan Earth-quake, the Information and Communications Council gave additional consideration to technical conditions for broadcasting safety and reliability that had been under consideration since before the disaster. The council then concluded that blackout countermeasures should be en-hanced. Based on the council’s recommendations re-garding this point (May 17, 2011), the MIC implemented the technical standards for broadcasting safety and reli-ability on June 30, 2011.

3. Restoration and reconstruc-tion from the Great East Ja-pan Earthquake

In order to revive societies and economies and recon-struct the livelihood in the disaster-damaged areas and revitalize the entire Japan, the government must make all-out efforts to promote restoration from the Great

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East Japan Earthquake and far-sighted reconstruction efforts including the creation of safe, secure and future-oriented towns using sophisticated ICT technologies.

Under the FY 2011 supplementary and FY 2012 prin-cipal budgets, the MIC has ensured key communica-tions in the disaster-damaged areas, deployed power source vehicles for disaster countermeasures, support-ed the recovery of information and communications in-frastructure and helped local government’s ICT-using efforts (Figure 3-4-3-1) to promote the post-disaster res-toration and reconstruction. In order to implement these measures steadily, the MIC created a Great East Japan Earthquake Reconstruction Support Offi ce at the To-hoku Regional Bureau of Telecommunications on May 9, 2011. MIC offi cials have been sent to disaster-dam-aged municipalities to support municipal governments’ restoration and reconstruction of the information and communications environment.

Figure 3-4-3-1 Projects subject to the information promotion program for the disaster-damaged areas

… …

電気自動車

City hallHospital

Smart meter

White appliances

Core medical organizations

Temporary housing

Life style and health consultants

Local government

Shelter / meeting hall

Temporary clinics

Specialist physician

Home-area service providers

Solar power-generation

Home gate-way

PC/Audio-visual equipmentEnergy-management system


Local community, etc.

School Building

City hallHospital

Home

Power lineTelecommunication line

Electric vehicle chargersBatteries

Fuel cells

Challenges for employment

Tohoku Medical Bank Project

Core medical organizations

Clinics

Pharmacies Nursing care facilities Clients / residents

Temporary housing

Preparation of health guidance

Life style and health consultants

Local government

Shelter / meeting hall

Clinics/Specialist Physician

Temporary clinics

Remote medical consultation

Specialist physician

Home medical services

Providing collaborative services

Cases of employment of smart-grid-communication interface

Power-line source


Gas-turbinegenerator

Energy-management system

Supports employment of smart meters or introduction of standard communication interface to facilities

Tohoku Medical Bank (Tohoku District Medical Information Integration Infrastructure Development Project)

Development of local medicalinformation integration infrastructure

Local medical information Integration Infrastructure

Accumulation and sharing of medical records, medicationrecords, nursing care records, and etc.

Secure information access at anytime, anyplace

Remote health-consultation

Other areas (provided with back-up support)

University hospitals, Emergency-care facilities

・Determination of the most appropriate 　data format・Preservation of transmission-data　security・Efficient processing of vast amount of 　fragmented data

Developm

ent of complex bio-bank

Smart meter

White appliances

Electric vehicles

Home-area service providers

Home gate-way

PC/Audio-visual equipment


Broadband network

Medical care records Nursing care records

Information recording/ accumulation / browsing

Local medical service block

Health-check records

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