For functional improvement of school facilities for disaster prevention～Investigative research report on disaster prevention capability at school
facilities when utilized as an emergency evacuation site～

August 2007
(Partial addition made in July 2008)

National Institute for Educational Policy Research - Japan
Educational Facilities Research Center“Investigative research on disaster prevention capability at school facilities
when utilized as emergency evacuation site” Workshop

Preface
The role that school facilities should play in case of disasters such as large-scale earthquakes is to firstand foremost ensure the security of the students and teaching staff during the disaster. Because school
facilities are required to be utilized as emergency evacuation sites for the community residents, thesefacilities must be built to be quakeproof and be equipped to allow displaced people to live temporarily.
It is widely known that school facilities have been utilized by a number of evacuated local residents
when large-scale earthquake occurred such as the Hanshin-Awaji Great Earthquake and Med-Niigata
Prefecture Earthquake. On the other hand, many evacuated people felt inconvenient and uncomfortable
while living in the school facilities just because of the fact that school facilities were originally designed to
be used as educational facilities and not as evacuation facilities. Therefore, it is important for all local
disaster prevention personnel and school designers to learn from the past and use these lessons in futureplanning.
With these perspectives the National Institute of Educational Policy/Center of Research for
Educational Facilities has established a workshop named “Investigative research of disaster prevention
capability at school facilities when used as emergency evacuation sites” in April 2006. This workshop
focuses on measures to improve the functionality of school facilities used as evacuation sites after alarge-scale earthquake. The workshop members are organized by observers from the Cabinet Office,Ministry of Internal Affairs and Communications, Ministry of Education, Culture, Sports Science andTechnology, Ministry of Health, Labor, and Welfare, and Ministry of Land, Infrastructure, Transportation
and Tourism. Experts in the areas of architecture, disaster prevention, and a supervisor from local publicauthorities also participated in the workshop. During a year long process, we have verified the lessons
learned from the previous large-scale earthquakes, identified current disaster prevention capability at
school facilities, and considered concepts and measures to improve school facilities’ disaster preventionfunctions. We are now presenting this report as the final product of our workshop.
In Chapter 1, the report talks about the necessity of functional improvement for disaster prevention at
school facilities and also the shape of evacuation area by decree.
In the chapter 2, the report talks about conditions that have actually been experienced by evacuees atschool facilities when used as a shelter. It also references a result from an investigation about disasterprevention capability at school facilities that are designated for sites.
In the chapter 3, it shows basic ideas on how to improve disaster prevention capability at school
facilities and measures to respond the issues that are mentioned in the chapter 2. It reports to promotemeasures to improve disaster prevention capability. In the chapter 4, the report sites detailed caseexamples on measures that have already been implemented to improve disaster prevention by local publicauthorities based on the information obtained from the site survey and inquiry survey.
In addition, surveillance results are compiled in this report in regard to process to establish the
emergency evacuation site at school facilities in the aftermath of the Noto Peninsula Earthquake that
occurred on 25 March 2007. We conducted an inquiry survey to Wajima municipal office staff, schoolstaff, and representatives of evacuees from the disaster area to research on how the support operations werepractically facilitated.
Although we published the report for the purpose to promote improvement of disaster prevention
capability focusing on public elementary and lower secondary schools when utilized as emergency
evacuation site at a time of disaster, we assume that it is also useful to refer for consideration of ways toobtain necessary functions to support at occurrence of disaster when national universities and private
schools are required to be utilized as emergency evacuation sites.

For functional improvement of school facilities for disaster prevention～Investigative research report on disaster prevention capability at
school facilities when utilized as an emergency evacuation site～
Table of contents
Chapter 1 Condition of school facilities designated as emergency evacuation site.............. ……………1
1. Necessity to enhance disaster prevention capability at school facilities……………... ……………1
2. Evacuation sites from a legal standpoint……………………………………………………………3
Chapter 2 Current disaster prevention capabilities and conditions of the school facilities designated as
evacuation sites…………………………………………………………………………………4
1. Past issues regarding disaster prevention capabilities at school facilities during major
Prefacedisasters...........................................................................................................................……………4(1) Concerns with the safety of the facilities(2) Concerns about necessary capabilities for evacuation facilities(3) Concerns about how to operate the evacuation site(4) Concerns about the prompt restart of educational activities in the schools
2. Understanding the current condition of disaster prevention capability of school facilities
and equipment ……………...……………...………………………………………………………11(1) Summary of the Inquiry survey(2) Result of the survey on disaster prevention capability at school facilities(3) Result of the survey on projecting and designing school facilities to support thecommunity by serving as evacuation sites
Chapter 3 Measures to enhance the disaster prevention capability at school facilities utilized as evacuation
facilities..........................................................................……………………………………17
1. Basic concept..............................................................................................................……………17
2. Specific measures for the enhancement of disaster prevention capabilities at school facilities…18(1) Ensuring of seismic resisting facilities(2) Necessary functions and capabilities for an evacuation facility(3) Establishing operational measures for evacuation facility(4) Prompt restart of educational activities in the school
3. Promoting measures to enhance disaster prevention capability for school facilities.....………26(1) Exploitation of various fiscal support systems(2) Improvement of disaster prevention capabilities simultaneously with either the initial or
expanding construction or large-scale rehabilitation(3) Providing information of exemplary advanced project(4) Understanding the condition of disaster prevention capabilities
Chapter 4 Example of a project that enhances disaster prevention capability that can also be used as an
educational activity. .................................................................................................... … ………………29
1. Example of a project for enhancing disaster prevention capabilities (Facility).........……………30
2. Example of a project for enhancing disaster prevention capabilities (Operation)......…………38

References
Part 1 I School facilities utilized as evacuation sites for the Noto Peninsula Earthquake .. ...………43
II School facilities utilized as evacuation sites for the Niigata Prefecture Chuetsu Offshore
Earthquake………………………………………………………………………….55
Part 2 Reference material

Chapter 1 Condition of school facilities designated as emergency evacuation site
1.

Necessity to enhance the disaster prevention capability of school facilitie“Securing the safety and comfort” of people’s everyday lives is fundamental and it is also a major
challenge for the central government. In accordance with the Basic Law of Anti-Disaster Measures, various
response plans for a large-scale earthquake are being prepared such as The Large Scale Earthquake
Countermeasures Act (*1) and countermeasures against earthquake disaster (*2). Evacuation plans (*3) for
occurrence of vertical earthquake in metropolitan area were considered at the special panel of Central Disaster
Prevention Council. Evacuation plans (*4) for local residents who need special care were considered at the
Cabinet Office.
According to the research (*5) of The Fire Defense Agency in The Ministry of Public
Management, Home Affairs, Posts and Telecommunications (hereinafter called “Fire Defense Agency”), at
the end of the fiscal year of 2006, 60% of public facilities designated as disaster prevention sites are school
facilities.
School facilities are required to be utilized as evacuation sites, therefore school facilities must
play a critical role as evacuation facilities during a disaster.

Social welfare facility

Educational facilities (School

Government buildingbuilding, gymnasium)

Gymnasium

Prefectural hall/Community hall

Police headquarters,

Medical facilities

Police station

Fire headquargers, Fire department

Public housing

School staff building

OthersFigure 1-1 Ratio of public facilities designated as disaster evacuation site (as of end of FY 2006)

Fire Defense Agency, Protection of lives and assets, Disaster Prevention Department, Disaster Prevention Section “Reprot on promoting
earthquake-resistance reinforcement of public facilities to become disaster prevention facilities”(March 2007)

In fact, many school facilities have played important roles as evacuation facilities for the local population
after previous large-scale earthquakes.

*1 The Large Scale Earthquake Countermeasures Act (Law No. 73 of 15 June 1978), Emergency improvement measures for earthquake in area under intensified measuresagainst rarthquake disasterAct on Special Measures concerning National Fiscal Support on Improvement Project. (Law No. 63 of 28 May 1980), The Earthquake Countermeasures Act (Law No.
101 of 16 June 1995), Act on Special Measures for promoting earthquake resistance concerning East-Nankai and Nankai Earthquake (Law No. 92 of 26 July 2002), Act
on Special Measures for promoting earthquake resistance concerning oceanic trench earthquake surrounding Japan Trench and Chishima Trench (Law No. 92 of 26 July
2002)
*2 Countermeasures against earthquake disaster (March 2005), Countermeasures against metropolitan vertical earthquake (April 2006), General principals ofcountermeasures against Kokai earthquake (May 2003), General principals of countermeasures against East-Nankai and Nankai Earthquake (December 2003), Generalprincipals of countermeasures against metropolitan vertical earthquake (September 2005), General principals of countermeasures against oceanic trench earthquake
surrounding Japan Trench and Chishima Trench (February 2003) and etc.
*3 Expert panel on evacuation measures at occurrence of metropolitan vertical earthquake (Established by Central Disaster Prevention Council on 21 April 2006)*4 As for evacuation measures for people who need support at disaster, the Cabinet Office has been conducting “Investigative commission on measures of informationtransmission and evacuation support for the elderly during concentrated downpour” since October 2004, “Investigative commission on evacuation measures for people
who need support at disaster” since September 2005, “Imvestibative commission on cooperation between welfare and disaster prevention concerning evacuation ofpeople who need support at disaster” since July 2006, and “Council on evacuation plan for people who need support and information transmission plan at disaster” sinceJune 2006.
*5 Report on conditions of earthquake resistance reinforcement at public facilities as disaster prevention center
http://www.fdma.go.jp/htm1/new/191115_houkoku/191115_bk00､pdf

１After The Mid Niigata Prefecture Earthquake in 2004, 600 public facilities were utilized by over 100,000
evacuees. Of this, 118 schools were utilized by 40,000 evacuees.
These school facilities functioned as emergency evacuation sites and played various roles as main
support bases to collect and disseminate information as well as distribute food and life support supplies.
However, these facilities weren’t equipped with adequate disaster prevention functions required forevacuation facilities such as seismic resistance capability, a satisfying number of toilets, sufficient water andelectricity, and also appropriate condition for people’s temporary living spaces. Therefore it was insufficient
to house the evacuees comfortably. These conditions were criticized by different groups of people in theaftermath of earthquake which lead to the existing disaster prevention capability of school facilities
designated as evacuation facilities to be discussed by the Diet.
In a response to these social requirements, the areas that have been struck or are likely to be struck by alarge-scale earthquake are being proactive in improving emergency disaster prevention capability at school
facilities and writing a manual for the operation of evacuation facilities. However, those areas that havenever been struck by a large-scale earthquake are still taking it slow.
Our country is prone to earthquakes. Considering that a large-scale earthquake could happen atanytime and anywhere the enhancement of the disaster prevention capability of school facilities utilized as
evacuation sites is an important issue for our country hereafter.

２

2. Evacuation site from a legal standpoint
There are two major acts regarding evacuation facilities. The first act is The Basic Law on Natural
Disaster that provides the basics for disaster prevention measures. The other act is The Disaster Relief Act that
describes emergency relief activities for a large-scale earthquake.. The Basic Law on Natural Disaster (*6)
provides that the national government shall formulate basic disaster prevention plan (*7) and describes thebasic measures for disaster prevention, disaster emergency relief activities, and disaster recovery efforts.
Based on the basic disaster prevention project, local public authorities formulate and execute a specificdisaster prevention plan (*8) for the local community. Local public authorities are required to follow
concerning establishment of the evacuation facility listed in The National Basic Measures for Disaster
Preventions. (*9)
Local public authorities shall designate evacuation sites beforehand and disseminate theselocations upon obtaining the agreement of the manager of a public facility such as a public park,community center, or school.
z
Designated locations shall maintain adequate ventilation, lighting and others for theoperation of an evacuation facility.
z
Facility improvements for a water storage tank, water well, portable toilets, sleeping matsand communication devices are necessary. The capability to accept physically challenged people (*10)
shall be addressed. Communication devices such as a television and radio will be provided so that
evacuees can obtain necessary information.
z
Pre-positioned stocks such as food, water, an emergency generator, medicine, kitchenequipment, and blankets that are required for evacuees temporary life in shelter shall be located at adesignated site or near-by location,.
z
Local public authorities shall disseminate any necessary knowledge regarding theoperation and management of evacuation facilities to local residents.
z

Local public authorities are required to provide a shelter facility (*12) by The Disaster Relief Act. (*11)
Public notice of The Ministry of Health, Labor and Welfare as relating law states that an evacuation facility is“shelter for people who are victims or potential victims of a disaster” and “In principle, existing buildingssuch as schools and community centers are utilized”. (*13) Furthermore, buildings designated for use as ashelter will be anti-seismic and fire resistant. These buildings will also barrier-free (*14) if at all possible.
As stated here, basic requirements for evacuation facilities are outlined in the Act. Local publicauthorities formed respective provision stating the definition and layout of evacuation facilities that were
determined depending on the differences of the regional conditions. (Reference material 1)

*6
*7
*8
*9

The Basic Law on Natural Disaster (Act No. 223 of 15 November 1961)
The Basic Law on Natural Disaster Section 34
The Basic Law on Natural Disaster Section 40(1), Section 42(1)Basic disaster prevention plan (Central Disaster Prevention Council settlement on July 2005) Part 2 Countermeasure against disaster, Chapter 1
Prevention of disaste, Section 2 Preparation for prompt and smooth disaster relief plan, recovery and reconstruction from disaster 5 Evacuation andshelter activities (2) Evacuation site
*10 Any person who requires comprehensive support at disaster including obtaining recessary information for a prompt and accurate evacuation andevacuate to a safe area to protect from disaster. In general, it indicates elderly, disabled, foreigner, infant, and pregnant woman.
*11 Disaster Relief Act (Act No. 118 of 18 October 1947)*12 Disaster Relief Act Art. 23, Para. 1, Item 1*13 Ministry of Health. Labor and Welfare notification (Notification No. 144 of 31 March 2000) “Standard of rescue level, method, length of time, andreimbursement of actual expense according to the Disaster Relief Act” Art. 2, Para. 1, Item 1*14 Guidelines of emergency rescue activity at a large-scale disaster Anouncement of Ministry of Health, Labor, and Welfare, Social welfare agency,
chief of protection section No. 122 of 30 June 1997 (Rvision of 20 March 2002, No. 0320001) (Reference Material 2)

３

Chapter 2 Current disaster prevention capabilities and conditions of the school facilities designated as
evacuation facility
1. Past issues regarding disaster prevention capabilities at school facilities during majordisasters
Various issues have occurred at school facilities that were utilized as evacuation facilities during theaftermath of large-scale earthquakes such as the Great Hanshin-Awaji Earthquake and The Mid Niigata
Prefecture Earthquake. In this chapter we will look at four of these issues s based on data obtained fromprevious large-scale earthquakes. The four subjects are (1) safety of the facilities, (2) Required
capabilities for evacuees’ life in shelter (3) Methods of evacuation facility operation, and (4) Prompt restartof school educational activities.
(1) Issues concerning safety of the facilities
1) Damage of the building itself
There were school buildings that could not be used as an emergency evacuation facility because of
the collapse of building itself caused by a lack of seismic resistance in the construction. There werereports of a large number of cracks in posts and beams, exposed rebar, slanted building by land
sinkage.

Actual examples observed in the past earthquakeszzDamaged school was utilized for evacuation site without assuring its’ safety capability.
A school building that had already been utilized failed the expert’s emergency safety check(*15). Local residents who evacuated to the facility had to move to another evacuation
facility

2) Damage to the inside of the building, equipped devices, and furniture
Although the building itself wasn’t damaged, utilization as evacuation facility was still disrupted
because pieces of the ceiling fell or sank from classrooms and gymnasium (*16), hallway floors sankor warped, broken windows and furniture either broke or fell apart. (Chart 2-1, 2-2)

Actual examples observed in the past earthquakesz

Gymnasium didn’t qualify as an evacuation facility because the ceiling and lights either
sank or pieces fell in.

z

The escape routes were blocked because the building’s entrance doors and connecting
corridor where the students used daily were broken and also the automatic rolling fire
doors shut down.

z

Hazardous chemicals were scattered and could have started a fire.

z

Heavy objects such as a safe, television, and piano fell or dropped.

zdangerous.
The special classroom with a heating system couldn’t be used because devices andfurnishings were scattered on the floor.

The site was very

*15 Emergency safety check. To prevent from the secondary damages immediate after a large-scale earthquake, it is an evaluation for the risk of falling andbreaking and judge the acceptability of affected building, the conpound, and surrounding buildings*16 Indoor facility to do physical activities and usually indicates gymnasium, martial arts room and etc.

４Chart 2-1 Damage condition of classroom and other areas(Kobe city)

Fell ceiling sunk floor ofclassroom
Fell ceiling and sunk floor of
special classroom
Fell ceiling ofauditorium/gymnasium

Chart 2-2 Fell or dropped equipment and furnishing(Top 10 items) (Kobe city)

No. ofschoolNo. of place

51306(No. of classroom)

68

201(No. of classroom)

143

1,001

Broken window glass

205

About 4,400 pieces

Closure of fire door

115

745

Unavailable connecting corridor

30

62Unavailable entrance doors

31

85

Unavailable emergency staircase

９14

Kobe Board of Education“Step to educational reconstruction and creation of Kobe after the Great
Hanshin-Awaji Earthquake”

Affected ratio(％)

No. of affected
furnishing

No. of total
furnishing

1. Fell bookcase in library

25.4

818

3,221

2. Fell bookcase

23.7

1,264

5,335

3. Dropped computer

19.9

597

3,007

4. Fell vault of important
document

19.2

129

673

5. Fell locker of cleaning tool

18.7

1,287

6,865

6. Fell television

18.0

1,020

5,656

7. Fell pharmaceutical closet

15.4

117

762

8. Fell computer

12.0

361

3,007

9. Fell refrigerator

8.5

86

1,012

10. Fell OHP

7.6

219

2,892

Equipment/Furnishing(2) Concerns about necessary capabilities for evacuation facilities
1) Toilet and shower
Toilets which are an indispensable while living in a evacuation facility were unusable for a long
period of time because of insufficient amounts of water and contamination. That imposed a heavy
mental and physical burden on evacuated local residents.
Unusable showers and bathing room also
caused sanitation problems.
Actual examples observed in the past earthquakesz

Toilets were unusable because of a water shortagez

The backup water supply for the toilet system located in a rooftop swimming pool wasgone because the earthquake caused a crack in the plumbing

Because evacuatedresidents were unable to use toilets, they had to use either an open sewage hatch or a large
garbage bag as a toiletz

Toilets became unusable because how it got dirty too quickly to clean.

z

Evacuated local residents had to dig a hole in the ground to use as toilet because there
were not enough portable toiletszSome evacuees tried not to eat or drink and got sick because they were afraid that theywould not be able to use the bathroom.

z

Since there was no electricity in the aftermath of earthquake, evacuees had to use theportable toilets outside in complete darkness.

z

Some people were too scared to use it or

had to use it with the door open
Some children suffered from eczema because they were unable to take a shower or bathfor three consecutive days.

５

(%)

2) Electricity, Water, and Gas
Considerable damage to the infrastructure of the
facility such as electricity, water, and gas
interfered with the daily lives of local residents
and the operation of the evacuation facility caused
various problems.
(Figure 2-1)

Dates of full recovery
Restart of school/kindergarten 2/24

Kobe Board of Education“Step to educational reconstruction and creation of Kobe after theGreat Hanshin-Awaji Earthquake”
Figure 2-1

Telephone

2/21

Electricity

3/28

Sewege system

6/5

Water supply

6/16

Gas

6/30

Recovery of infrastructure at school/kindergarten (Full recovery) (Kobe city)

Actual examples observed in the past earthquakes

z

z

z

z

z

z

z

z

Various support activities including medical treatment to the casualties were limited because of nothaving lights.
Although a generator was provided 3 days after the earthquake, the circuit breaker was often trippedcausing an electricity outage. This was a result of too many electric devices being used whichcaused the generator to overload.
Because recovery of water supply system was delayed, drinking water support and water for toilet
flush were insufficient. Restart of school educational activities was delayed because the recovery
of water supply was delayed as well.
Even after the water supply system near the school was repaired no water was offered to evacuees atschool facilities due to the damage to the water tank on the schools rooftop.
The sewage pipes in the school facilities were either too narrow or bent and often got clogged
because many evacuees used the toilets at the same time.
Dirt got into the cracks in the sewage pipes causing sewage water to back flush which caused
further damage to the pipes and toilets to break.
Broken gas pipes took the longest time among infrastructure to repair. Showers and baths were
unavailable during this time.
All the water, sewage, and gas pipes in school building and on school property were damaged by theearthquake because they were not seismic-proof. Even after the entire infrastructure in thesurrounding community recovered, water and gas were still not available at the school.

3) Means of conveying information
There were communication problems between
the school and members of the education board
because of delays in restoring telephone lines or
establishing temporary telephones. This also
affected local residents within the evacuation
facilities.
Some schools did not have anadequate wiring for televisions even though this is
one of the main sources of information forevacuees (Figure 2-2).

Neighboors

TV

Radio
Newspaper

TV
Newspaper
PublicNeighboors

Administration

Radio

Public administration

Days paased

After 7PM
Figure 2-2 Means of obtaining information by residents (Kobe city)
Kobe Board of Education“Step to educational reconstruction and creation of Kobe after the Great
Hanshin-Awaji Earthquake”

６Actual examples observed in the past earthquakes
The installment of temporary telephone lines in the evacuation facility was delayed andz

there were not enough existing telephone lines. This caused the lines got flooded andunavailable for use.
Rooms provided for living space were not equipped with telephone lines or radiosztherefore evacuated residents had difficulty obtaining necessary information.
Gymnasium did not have telephones and was located away from the school building thatz

did have telephones. Telephone cables for extending lines from the school to thegymnasium were not available.
In the aftermath of earthquake, portable handy microphone was used for emergencyzannouncements due to electricity outage. However, the microphones could not containenough power in the battery so the announcements were not heard by everybody.
In the aftermath of earthquake, it was difficult to communicate through cell phones as well as
regular telephones but cell phone emails were connected without a problem.
4) Indoor environment
Inadequate lighting, temperature control, and privacy in the rooms of the facility had a poor
influence on evacuees both mentally and physically.
Actual examples observed in the past earthquakes
When the evacuation facility first opened many people were able to sleep in spite of thezlighting in gymnasium. However, after numerous days passed the lighting becamestressful and caused people to not be able to sleep. Having a blanket on the cold floor of
the gymnasium wasn’t enough to keep evacuees warm. .
zMany people came down with pneumonia because there was no heating system in thezevacuation facility.
The lack of privacy at gymnasium caused some people to get sick after a long period oftime.

Chart 2-3 Comparison of the number of patients seen by a doctor when they did not have a heater versus when they did have a heater. (At The Great
Hanshin-Awaji Earthquake)(Consultaion rate (%)=No. of the consulted/No. evacuee)
W
Elementary
shool
X
Lower
secondaryschoolY
KindergartenHeater

1/24

1/25

No

9.2

Yes

3.5

1/26

1/27

1/28

1/30

1/31

2/1

2/3

2/4

2/5

2/6

2/7

2/8

2/9

2/10

2/11

2/12

2/13

7.7

7.2

7.4

11.0

10.8

11.7

10.0

11.1

10.2

10.7

12.3

15.0

10.2

9.2

11.6

10.8

6.1

2.1

2.6

5.2

2.1

|.6

4.8

1.6

2.4

2.4

4.0

0.0

2.4

1.8

5.8

3.9

3.3

1.7

2.5

2.5

6.8

0.0

1.7

1.7

(Date)
(%)
(%)

Yes

10.4

12.6

9.8

Japan Federation of Architects & Building Engineers Associations
Newsletter vol. 44, No. 516

5) Response to physical challenged people
Various issues occurred when evacuation facilities were not equipped with barrier-free facilities.

７(%)

Actual examples observed in the past earthquakeszSome disabled victims did not evacuate because of the difficulties of living with manyother people without having barrier free facilities.

z

The second floor of school facilities was designated as evacuation facility but there was
no ramp for disabled people to go up to the second floor and no multifunctional toilet
on the second floor.

z

It was difficult for the disabled and the elderly who have less physical strength in thezlegs and back to have a western style toilet.
Elderly and disabled people needed assistance to use the toilet because there was nohandrail in the bathroom.

(3) Concerns about how to operate the evacuation site
1) School facilities utilization projectIn the aftermath of the earthquake, school facilities were used as temporary evacuation facility
for evacuees, the storage and distribution of supplies, the collection and transmission of information,
rescue activities and other activities. However, issues about how to operate the evacuation facilities
were discovered because the specific plans for how to use the facilities as an evacuation facility had
never been discussed prior to the actual occurrence of the disaster.

Actual examples observed in the past earthquakesz

Evacuated residents were confused by the fact that there was no designated area inschool for them to go.

The confusion made it impossible to operate the facility

because evacuated residents were using the principal’s office and teaching staff officewhere the facility was supposed to be operated from.
z

The school staff was not notified beforehand of the location of the support supplies so
it took longer to set up the evacuation facility.

z

Emergency and supply vehicles could not even come close to the school because
many evacuees arrived in their own vehicles.

z

In the aftermath of earthquake, the gymnasium and classrooms were full of evacuatedresidents.

z

Each person had a space as big as one blanket.

Evacuees chose their own space as they arrived.
taken first.

The most comfortable places were

People who needed special care arrived later and they had to takeuncomfortable and inconvenient places such as upstairs or a staircase landing.
zLarge amount of supplies arrived all at once making it difficult to find storagez

space. .
There was no space to separate supplies before distribution making it difficult toseparate packages that were sent to individuals.

８2) Structure of evacuation facility operation
Various issues were observed with operating an evacuation facility from the immediate
aftermath of an earthquake as well as a prolonged operation. There was a confusion resulting fromthe fact that some affected residents had arrived at the school to evacuate themselves before theschools staffs had a chance to arrive. In Kobe, 90% of some school’s staff arrived at the facility
within 2 hours after the occurrence of the Great Hanshin-Awaji Earthquake. At that point, theevacuated residents had already settled in different areas of the school facilities. (Figure 2-3, 2-4)

(22.6%)(29.5%)
69 schools andkindergartens

53 schools andkindergartens

Total２３４schools
and kindergartens
schools andkindergartens

Within schoolbuilding
School ground
Surrounding road,park, etc

44 schools andkindergartens

Higashinada・Nada・Chuo
Hyogo・Nagata・Suma
Kita・Tarumi・Nishi
All cities

others(18.8%)

68 schools andkindergartens(29.1%)

Figure 2-3 Residents had already arrived at schools and kindergartens whenschool staff arrived (Kobe city)

Figure 2-4, Time of the first school staff
arrived at school (Kobe city)

Kobe Board of Education“Step to educational reconstruction and creation of Kobe after the Great Hanshin-Awaji Earthquake”

Within a week of establishing the evacuation facilities, some evacuees had organizedself-governing systems at some of the evacuation facilities. They made rules to follow. On theother hand at the evacuation facilities where the school operation didn’t work out, the evacuees’
fatigue and frustration caused problems to occur.
Actual examples observed in the past earthquakes
Initial period (The first several days after the earthquake)z

In some rare cases, a local resident who lived close to the school had been given thekeys to the school to use in case of an emergency.

The resident opened the doors of

the school, so evacuation operation was started promptly.

However, in most cases

the affected residents evacuated to the school facilities before the school staff had
arrived.

At some schools local residents broke down doors and windows to get

inside to evacuate themselves.
zz

The process to get permission to use school facilities as an evacuation site was vague
therefore the establishment of evacuation facilities was delayed.
It was difficult for evacuees to distinguish between the staff and the evacuees. The
evacuation facility staff (local government office staff and school staff) didn’t have
any way to identify themselves by a name tag and the people did not know the staff
before the disaster.
９

Intermediate and later periods (one week after the earthquake)z
One week after the earthquake, some evacuees wanted to be self-sustaining andorganized their own governing systems at some of the evacuation facilities.

On thecontrary at some places evacuees totally relied on the evacuation facility operations anddidn’t try to help themselves.
The supplies that evacuated residents needed kept changing as time went by. Thiszcaused new and different types of supplies to get requested so they were not always on
hand when they were needed.
Insufficient medical and mental care caused evacuees to experience symptoms such asz

colds, difficulty sleeping, and the deterioration of their own chronicle diseases.
Worries about the uncertain future and fatigue from a prolonged time in a shelter
weighed heavily on their minds.
Argument between evacuees and lost or stolen property were common.
Crime prevention issues with outsiders, suspicious individuals’ roaming, and religious
solicitant were raised.

z
z

(4)

Concerns about the prompt restart of educational activities in the schools
Chart 2-4 Situation at school restart (Kobe city)( ) Accumulated total number

School facilities are primaryplaces for education and therefore itis necessary to consider the prompt
restart of educational activities evenafter establishment of an evacuation
facility in a school. However, there
were considerable difficulties withthis process while evacuation
operations got prolonged and there
were many evacuated residents
living in the school facilities.
(Chart 2-4)

No. of schoolthat wasrestarted 6 days
after earthquake
No. of schoolthat wasrestarted 20 days
after earthquake
No. of schoolthat wasrestarted 27 days
after earthquake
No. of schoolthat wasrestarted 34 days
after earthquake
No. of schoolthat wasrestarted 41 days
after earthquake

RateofrestartKindergarten

Elementary
schoolLower
secondary schoolHighschool/Higher
professional
schoolSchools forblind anddisabled
children

Total

39%

18
(18)

74
(74)

41
(41)

2
(2)

0
(0)

135
(135)

71%

35
(53)

39
(113）

27
(68)

6
(8)

3
(3)

110
(245)

87%

6
(59)

34
(147)

14
(82)

1
(9)

0
(3)

55
(300)

98%

11
(70)

22
(169)

0
(82)

4
(13)

0
(3)

37
(337)

100%

1
(71)

4
(173)

2
(84)

0
(13)

3
(6)

10
(347)

Kobe Board of Education “The Great Hanshin-Awaji Earthquake andSchool Education”

Actual examples observed in the past earthquakesz

As the evacuation facility operation got prolonged, more school children’s parents
requested for school restart.

z

When the number of evacuated residents decreased in the school facilities, the people
remaining tried to use more space in different areas.

It was difficult to find enoughspace for classes to restart.
z

School staff gave children the opportunity to communicate with the evacuatedresidents in the school facilities after educational activities had restarted.
There was a time when the evacuated residents and the school staff cooperated to secure enoughspace for school children to have a graduation ceremony.
10

2. Understanding the current condition of disaster prevention capability of school facilities andequipment(1) Summary of inquiry survey
1) How the survey was conducted
The research was conducted with the cooperation of prefectural and municipal governments as well as the educationcommittee. A nationwide survey was conducted about the planning and designing of school facilities to be used for community
disaster prevention.
The survey was initiated on 1 May 2006 by sending questionnaires to The National Institute for Educational Policy Research,the disaster prevention departments of all prefectural and municipal government offices, and The Board of Education.
Questionnaires asked about the disaster prevention capabilities at school facilities and what community disaster prevention
support was considered in the school planning and designing of schools. Replies from all the prefectural and municipal
government offices were sent back by end of June 2006. Research targets were public elementary, lower secondary, highschools, secondary education schools, and schools for special needs education. The questionnaires were summarized by
prefecture, city, or town.
There was no precedent for survey on disaster prevention capabilities at school facilities. It was the first time to investigate
the existing condition of disaster prevention by schools and consideration for community disaster relief support in the planningand designing of schools.
2) Summary of the results from the survey on disaster prevention capability at school facilityz

The number of public school that is designated as evacuation sites is 33,670 that represent 89% of total number of public schools.
The ratio by school type is 9.4% of municipal schools, 63% of prefectural high schools, and 23% of prefectural schools for special
needs education.

z

The current maintenance conditions at schools designated as an evacuation site do not meet the minimum for disaster prevention
capability. . The summary shows more than half of schools are maintain toilets at gymnasium but only 27% of schools areequipped with emergency pre-positioned storage, 27% of schools are equipped with and maintain a water purifier, and 14% ofschools are equipped with an in-house generator.

z

70% of prefectural governments and 59% of municipal governments have disaster response manuals for school facilities. One
third of those schools’ manuals addresszevacuation facility capability concerns.

53% of prefectural and 78% of municipal governments had rules for evacuation site operation already formulated and local
government staffs are to play the role of the main operational staff.

z

17% of prefectural and 28% of municipal governments took all matters concerning use as evacuation site into the planning anddesigning of school facilities.

z

Available financial support systems for school facility improvement to respond to disasters are offered by The Fire and Disaster
Management Agency as well as other organizations including The Cabinet Office, The Ministry of Agriculture, Forestry and
Fisheries of Japan, The Ministry of Economy, Trade and Industry, and The Ministry of Land, Infrastructure, Transport andTourism. This is in addition to the school facility improvement support system offered by The Ministry of Education, Culture,
Sports, Science and Technology. These support systems have been utilized but not frequently..

z

This research summarized the existing disaster prevention capabilities at school facilities designated as evacuation sites nationwide
for the first time. The summary also revealed that the designated schools are not sufficiently equipped with disaster preventionzfunctions to serve as emergency evacuation sites.
Future investigation is needed to gather more specific details to fully understand the actual conditions. The summary also needs tobe analyzed to find out exactly what areas need to be improved to enhance the schools’ disaster prevention capability. Regional
differences should also be further considered.

11(2) Result of the survey on disaster prevention capability at school facilities
1) Number of schools designated as emergency evacuation sites
There are 33,670 public schools throughout the country that are designated as emergency
evacuation site representing 89% of total public schools.

92% of the designated schools (31,064

schools) are municipal schools. (Chart 2-5, Figure 2-5)
By comparison, 94% of municipal schools are designated as evacuation sites, 63% ofprefectural high schools and 23% of schools for special needs education are designated as evacuationsites. There are fewer prefectural schools designated as evacuation sites because of different terrain
conditions and different concept for evacuation site by region.

Chart 2-5 Numbers of designated schools as evacuation site

Total numberof schools

Number of schools designatedas evacuation facility

33,131

31,06493.8

High school

3,843

2,417

62.9

Special-needs
school

821

189

23.0

37,79533,67089.1

Classification
Municipal, town-run school
Prefectural
schools
Total

Rate(％)

Number of municipal/town-run
sxhoolsthat are designated as
evacuation site
31,064 (92.3%)

Municipal schools
Number of schools thatare designated as
evacuation site
33,670Prefectural schools(High school)
Prefectural schools(Special-needs school)

Figure 2-5 Numbers of designated schools as evacuation site122) Current conditions of disaster prevention functions and equipment at school facilities designated as
evacuation sites
Here are 5 basic capabilities in question that must be improved at school facilities designated as
evacuation sites.
-Are there toilet facilities in the gymnasium that are to be mainly used for the evacuation area?
-Are toilet facilities accessible directly from outside?
-Is disaster prevention equipment and pre-positioned supply storage set up either within the school building oron the property?
-Are there water securing facilities? (water purification device on swimming pool, water storage tank, well
water and etc )-Is there an in-house generator in case of an electricity outage?
The survey found that half of the designated schools have toilet facilities in the gymnasium and toilets
accessible from the outside. However only 27% of designated schools have storage space for disasterprevention equipment and pre-positioned supplies, 27% have a water purification device on swimming pools
and a water storage tank, and 14% are equipped with an in-house generator. The survey concluded that thedesignated schools do not necessarily have all of capabilities required for an evacuation site. (Chart 2-6)

Chart 2-6 Current conditions of disaster prevention functions and equipment at school facilities
designated as evacuation sites
Municipal school

Prefectural school

High School
No. ofschooldesignatedasevacuation
facility

No. ofschoolthat own
thefacilityRate(％)

Toilet at gymnasium

31,064

23,813

Outside toilet

31,064

Item

Disaster prevention
storage/Pre-positioned
storage
Water storage tank,
Water purifier
Self-power generator

Total

School for special needs
No. ofschooldesignatedasevacuation
facility

No. ofschoolthat own
thefacilityRate(％)

Rate(％)

No. ofschooldesignatedasevacuation
facility

No. ofschoolthatown
thefacilityRate(％)

1,480

61.2

189

113

59.8

33,67025,406

75.5

2,417

1,730

71.6

189

96

50.8

33,67020,336

60.4

27.8

2,417

443

18.3

189

49

25.9

33,670

9,125

27.1

8,377

27.0

2,417

647

26.8

189

63

33.3

33,670

9,087

27.0

4,092

13.2

2,417

404

16.7

189

119

63.0

33,670

4,615

13.7

No. ofschooldesignatedasevacuation
facility

No. ofschoolthat own
thefacility

76.7

2,417

18,51059.6

31,064

8,633

31,06431,064

Western style toilets for physically challenged people are in 32% of school gymnasiums and 20% of schools
have the toilets accessible in outside areas. (Chart 2-7)
Chart 2-7 Ratio of western style toilet in the gymnasium and outside
Municipal school

Prefectural school
High School

School for special needs

No. ofschool thathave toilet

No. ofschool thathavewesternstyle toilet

rate(％)

No. ofschoolthat havetoiletNo. ofschoolthat havewesternstyle
toilet

30.4

1,480

696

47.0

113

18.9

1,730

441

25.5

96

No. ofschoolthat
have
toiletNo. ofschoolthat havewesternstyle toilet

rate(％)

Toilet at
gymnasium

23,8137,250

Outsidetoilet18,510

3,490

Item

Total

13

No. ofschool thathavewesternstyle toilet

rate(％)

rate(％)

No. ofschoolthat havetoilet92

81.4

25,406

8,038

31.6

56

58.3

20,336

3,987

19.6

(3) Result of the survey on projecting and designing school facilities to support thecommunity by serving as evacuation sites
Local governments were questioned about formulation of school disaster response manual andthe plans and designs of school facilities concerning disaster prevention capability prior to theconstruction
1) Status of disaster response manual regarding evacuation capabilities
70% of prefectural governments and 59% of municipal governments have disaster responsemanuals.

Half of both governments’ manuals were formulated containing necessary functions forevacuation site and that is 1/3 of the total number of regional governments.

Prefectures that createddisasterresponse manual
33(70%)(Figure 2-6)

Municipal borouth and townthat created disaster
response manual
1，106(59%)

Formulated

Total of 47
prefectures

Total of 1863
Municipal
boroughs, towns
and villages

Diaster manual is formulated
but evacuation site is notdescribed
No manual describing responseat school

Figure 2-6 Status of disaster response manual regarding evacuation capabilities

2) Preliminary agreement about evacuation site operations□策定している。
□災害時の学校対応マニュ
Preliminary agreements on the primary operation of evacuation sites arecompleted at 53% of
アル等はあるが、避難所
prefectural governments and 78% of municipal governments. In 49% of prefectural
governments
は盛り込まれていない。
and 69% of municipal governments have planned to take the role of the primary
operational
staff at
□災害時の学校対応マニュ
evacuation site. There is one prefectural school where the school staff conductアルはない。
the primary operationof the evacuation site and there is one school that the primary operation is conducted by the localorganizations. Primary operation of the evacuation site is handled by 4% of municipal schools staff
and 5% of local organizations. (Figure 2-7)
Prefectures that provide rules on
evacuation facility operation
25(53%)

Municipal boroughs, towns andvillages that provide rules on
evacuation facility operation
1,449(78%)

Local government office staff are thedesignated primary operational staff
Total of 47
prefectures

Total of 1863
Municipal boroughs,
towns and villages

School staff are the designated primary
operational staff
Local organizations are the designatedprimary operational staff
Designated staff are not determined.

Figure 2-7 Preliminary agreement about evacuation site operation

14

Others3) Consideration of community support in the planning and designing of school facilities
When school facilities were planned and designed for construction, 17% of prefectural and 28%
of municipal governments assumed for a secondary use of the schools as evacuation sites. In many
towns and villages disaster prevention capabilities are established at all schools regardless of whether
or not school is designated as evacuation site. In many prefectures disaster capabilities are
established only at designated school facilities or if there is a request from the local community.
(Figure 2-8)
Numicipal borough, town andvillages that special concerns forcommunity disaster prevention are
included in planning and designing

Prefectures that special concerns
for community disasterprevention are included inplanning and designing 8(17%)

521(28%)

Concerns are taked to all theschoolTotal of 47
prefectures

Total of 1863
Municipal
boroughs, towns
and villages

Concerns are taken to only
designated schools as evacuation
facilities

No special concerns are taken

Figure 2-8 Consideration of community support in the planning and designing of school facilities
4) Steps taken for the planning and designing of school facilities for community disaster prevention
supportThe following questionnaires were given to local governments (8 prefectural governments and 521
municipal governments) who considered community disaster prevention support in the planning anddesigning of school facilities.
The most local governments discuss the matter with the disaster prevention section staff in local
governments. The rest is to discuss the matter with the school staff, or the local community. (Figure 2-9)
Of the surveyed local governments, 1 prefectural government and 94 municipal governments have adesignated separate area to evacuate physically challenged people.

Prefecture

Municipalborough, town
and village

Discuss with chief ofdisaster prebention
sectionBasically discuss among
schoolofficials (Board of
Education and teaching
staff)
Discuss with local
residents
Request academic experts
for consideration
OthersFigure 2-9 Steps taken concerning community disaster prevention

155) Financial support systems that are available for thefacilities.

improvement of the disaster prevention capability at school(Multiple answers)

One of the questions asked in the survey was about using the available financial support systems for the
improvement of school facilities .

Financial support systems for the improvement of school facilities to respond disasters

are offered by The Fire and Disaster Management Agency and following organizations; The Cabinet Office, The Ministryof Agriculture, Forestry and Fisheries of Japan, The Ministry of the Economy, Trade and Industry, and The Ministry ofLand, Infrastructure, Transport and Tourism. This is in addition to the support system for the improvement of school
facilities offered by The Ministry of Education, Culture, Sports, Science and Technology.
been used only in a few cases.

These support systems have

(Figure 2-10)
Support systems provided bythe
government agencies
Fund support system for school
facility improvement offered by
Minister of Education, Culture,
Sports, Science and Technology
Fund support system offered by
prefecture
Fund support system regarding
fire prevention offered by Fire andDisaster Prevention Agency
Fund support system offered byother national agency

Figure 2-10 Fiscal support systems that have been utilized for facility
improvement for disaster prevention capability (Multiple answer)

The Cabinet
OfficeMinister ofAgriculture,
Forestry and
Fisheries ofJapan

Ministry of
Economy,Trade andIndustry
Ministry ofLand,
Infrastructure, Transport
and Tourism

16

Subsicy for model projectfor facility improvement
at community disasterprevention site
New agricultural
restructure, mountainvillage development, andagriculture and forestry
special countermeasuresprojects
Subsidy for establishingpower plant
Subsidy for establishingoil storage facility
Project for maintenanceof natural energy supply
facility
Subsidy for town
development

Chapter 3 Measures for the enhancement of disaster prevention capability at school
facilities utilized as evacuation facilities
1.Basic concept
It is important for school facilities to enhance their disaster prevention capabilities for the functional
improvement and facility operation in order to play a role of an evacuation site for the local community
during a disaster.
After the Great Hanshin-Awaji Earthquake of 1995, The Ministry of Education, Science, Sports, andCulture in cooperation with academic experts started to research on disaster prevention structure atschool facilities.

(The results of their research are summarized in a report entitled “Repletion ofdisaster prevention structure at school facilities”. (*17) The report was first published in November
1995.

The second publication of the report was in September 1996.

improvements necessary in the structure of school buildings

The report summarized thedesignated as evacuation facilities.

In addition to the aforementioned findings, the research also identified the following 4 basic
concepts for the improvement of disaster prevention capability at school facilities designated as
evacuation sites.

These concepts are based on the reviews of the issues that were observed in previous

large-scale earthquakes, the results survey mentioned in Chapter 2, and existing guidelines concerning
evacuation facilities. (Reference material 2)z

Securement of seismic resistance for facilities
Schools must be safe as evacuation site for local residents. The results of seismic resistancecapability evaluations must be followed and the identified reinforcements or additional
construction must be completed.

The ceilings, interior and exterior materials, electricalequipment, and furnishings must also be constantly reinspected to ensure safety..
z

Functioning necessary capabilities for evacuation facility
School facilities are required to be capable of performing all necessary functions to be used as
an evacuation site.

It is important to secure enough space for displaced residents to live

temporarily as well as space for base operations.

It is also necessary to have working toilets,

electricity, water, gas, communication methods in case of infrastructure failure, maintain a sanitaryindoor environment to keep evacuees healthy, and to provide appropriate support to physicallychallenged people by making buildings barrier-free.
z

Establishment of operational measures for evacuation facility
There must be a specific operation plan that is understood by everyone to ensure the prompt
restart of educational activities.

An organized structure made up of a local government disasterprevention department, a member of the education committee, school, autonomous disasterprevention organization, and the local population is also necessary.

It is important for everyone

to know that there is an evacuation site operating manual on how to use a school facility as anevacuation site available for reference.
z Prompt restart of school educational activities
Prompt restart of school educational activities after a disaster is the first step for recovery to a normallife for the community. In order to ensure the prompt restart of educational activity plans to support
the coexistence of shelter life and educational activity need to be included in the school facility
utilization plan. It is important to have a transition plan beforehand so that teaching staff can focus on
the educational activities.
*17 “Repletion of disaster prevention structure at school facilities”
http://www.mext.go.jp/a_menu/shisetu/bousai/06051221.htm

17

2. Specific measures for the enhancement of disaster prevention capability at school facilities(1) Making facilities earthquake-resistant as a safety measure

1) Current earthquake-resistance capabilities of buildingsz According to The of Ministry of Education, Culture, Sports, Science and Technology, 62% of public
elementary and lower secondary schools have earthquake-resistant buildings as of April 2008. (*18) It
reports that sufficient seismic reinforcement is not fully implemented. It is extremely important toensure that schools are safe. Not only are schools a place of learning and where school children to spend
most of their time during the day. Schools are also utilized as evacuation sites during disasters by the
local populace. The following chart shows guidelines and manuals for seismic diagnosis and seismic
reinforcement of school facilities. (Chart 3-1)
Chart 3-1 guidelines and manuals for seismic diagnosis and seismic reinforcement of school facilities
Name

Date ofpublication

Manual of earthquake-resisntance for school facilities RC construction for shoolbuilding version (Revision 2003) Manual of earthquake-resisntance for school facilities
S construction for gymnasium version (Revision 2003)

March 2003

Publisher

Ministry of
Education, Culture,
Sports, Science, andTechnology

Natuinal Institute for
Educational Policy
Research Educational
Facilities ReseachCenterFoundation ofJapan Disaster
Prevention Building
Association

Guildelines of promoting earthquake-resistance for school building

July 2003

Standard of seismic resistance capacity evaluation at gymnaium

May 2006

Quick learning of earthquake-resisntace School facilities rising above earthquake-Case examples of earthquake-resistance measure-

September 200
6

Manual of earthquake-resistance quality rehabilitation at school facilities

December 20
05

Explanatory of standard seismic resistance capacity evaluation of existing steel frame
concrete building (Revision 2001) Explanatory of guildelines of earthquake-resistance
rehabilitation of existing steel frame concrete building (Revision 2001) Explanatory ofstandard seismic resistance capacity evaluation of existing steel frame concretebuilding/Handbook for applying to the guidelines of designing for rehabilitation(Revision 2001)

October 2001

“Manual of earthquake-resistance rehabilitation for the exterior”for existing steel
frame concrete building – Enforcement by framed steel brace-

September 200
2

Guidelines of seismic resistance capacity evalucation for existing wall brace cast steel
frame concrete building
Simple methods for seimic resistance capacity evaluation for existing steel frame wallconcrete building

May 2003

2) Safety of ceilings, other interior and exterior materials, electrical equipment, andfurnishings
Even if a building structure isn’t damaged by earthquake there is still a danger from damages caused
to nonstructural materials and furnishings such as exterior walls falling down, ceiling materials andlighting equipment, window glass shattering, and falling electrical devices and furnishings can also
harm people. It can also interfere with evacuation site operations.
*18 The result of investigative research on status of rehabilitation for earthquake-resistance at school facilities
http: www.mext.go.jpa_menushotouzyoseitaishinindex.htn118zTherefore it is necessary to constantly inspect and manage school facilities for the possibilityof drop, wreck, or fall of nonstructural materials.

z

Large-spaces like a gymnasium are required to be reinforced especially for hanging ceiling
fixtures and lighting.

It was reported that an entire hanging ceiling fixture fell after a recent

earthquake. Using double sidded glass, wire-reinforced glass, or shatter-prevention film arezeffective methods to prevent windows from shattering.
Effective measures to reinforce nonstructural materials are detailed in the following reports“Research report concerning seismic evaluation of nonstructural materials at school
facilities” (March 2002) and “Examples of seismic evaluation of nonstructural materials at
school facilities” (December 2005). (Chart 3-2)
“Maintaining safe and comfortableschool facilities” (March 2001 ) introduces points for daily maintenance and management ofschool facilities.

Chart 3-2 Example countermeasures for the safety of interior materials and furnishings inschool facilities.

Case example

Example of countermeasures

Preventing ceiling material fromdropping

Install bracing between wall, surface of poles and ceiling materials to closethe clearance gap to stabilize the ceiling to prevent from shaking

Preventing window glass frombreaking

Apply the anti-scattering window sheets with sealing material that can betaped on irregular shape of window frame

Preventing exterior wall material
from falling off

Repair loosen surface-layer and cracks of exterior wall andPreventing lights from dropping

Constant inspection for corrosion of metal parts
Install bracing against shaking

Preventing equipment andfurnishing from falling or
dropping

Stablize air conditioner outdoor equipment
Stablize television to the shelf against slipping out
Stabilize book shelf and locker to ceiling or beam using parts(2) Necessary functions and capabilities of an evacuation facility1) Space required in an evacuation facilityz

It is necessary to secure enough spaces for evacuees’ temporary shelter life and site operationz

by utilizing the existing rooms in the school buildings.
Spaces needed for evacuated residents are a living space, bathroom, changing room, shower,
kitchen, and laundry room.

*19 References for the reports and guildelines published by the Ministry of Education, Culture, Sports, Science and Technology and National Institute for Educational
Policy Research and School Facilities Research Center are available at the following websites:
Guildelines of promotion for earthquake-resistance reinforcement at school facilities http://www.mext.go.jp/a_menu/shisetu/bousai/taishin/0371501.htm
Reports published by Ministry of Education, Culture, Sports, Science and Technology http://www.mext.go.jp/a_menu/shisetu/shuppan/main5_112.htm
Reports published by National Institute of Educational Policy Research, Educational facilities Research Center http://www.nier.go.jp/shisetsu/html/04.html

19zSpaces required for site support operation are an office for the operation staff, working areafor volunteers, meeting room, medical treatment room, food distribution area, break room,
space for supply reception, storage, supply distribution area, and a space for a bulletin board
for collecting and disseminating information.

2) Capabilities of necessary equipment[1] Toilet and showerz

The biggest issue is obtaining toilet facilities since a number of evacuees spend 24 hours at
the evacuation facility.

z

A Specific plan for the possible use of the water in the swimming pool and the water storagetank is necessary in case of a water outage.

z

During times of disaster, it is desirable to make effective use of the toilet and shower
facilities that were prepared for normal open school events.

z

It is desirable to plan the neccessary number of portable toilets, portable showers, theinstallation methods, location of installation, disposal of sewage, and drainage in case of a
toilet and shower facility failure. (Case example: Chapter 4, 1, (1))

z

When planning for toilet facilities and installation of portable toilet facilities, it iszpreferable to include lighting for use of toilet during the night.
For installation of shower facilities at an evacuation site, it is preferable to consider
equipment to generate heated water[2] Electricity, water, and gas(General)z It is necessary to deliberate specific measures to obtain infrastructure such as electricity,water and gas assuming the length of period until recovery.
z If plumbing systems are seismically reinforeced, this will lower the possibility of damage
and contribute to the continuation of infrastructure provision.
(Electricity)z Electricity is usually repaired soon after a disaster.

In case of an electricity outage, it isnecessary to consider installing an emergency generator or using a portable generator.
z Lighting at night offers a great benefit to release evacuees’ anxiety.
consider using a temporary lighting system as needed.

It is necessary to

Also it is conceivable toinstalling a rechargeable lighting system equipped with solar batteries is also an option.
z It is desirable to obtain an adequate number of outlets and sufficient electricity in the
gymnasium since this is where the majority of evacuees reside.
(Water)z

Depending on the intended purpose of water use (drinking, washing, and toilet) during awater outage, it is necessary to consider improvement of the water purifier on theswimming pool anddevice.

plumbing systems as well as the use of a portable pumping(Case example: Chapter 4, 1, (2))

z It is conceivable to use stored rain water and well water in addition to the water storagetank and swimming pool as sources of water supply.
20(Case example: Chapter 4, 1, (3))

(Gas)z It is preferable to store a decent number of portable gas stoves to use forcooking until

the gas supply is restored.
z There must be a plan on how to obtain propane gas and all the necessary devices prior
to the disaster if propane gas is going to be used as an alternative method for heatingwater and cooking,[3] Means for transmitting informationz A means of transmitting information such as a telephone or a fax to communicate withpertinent organizations regarding site support operations at evacuation facility is
indispensible.

Priority telephone lines and regional disaster radio frequencies are

required to be installed at designated school facilities.

The use of cellular phones withemail capability is conceivable since the cell phone signal is usually connected evenduring a disaster.
z Radio and television are important sources of information collection for evacuatedresidents. Telephones and the internet are required means of communication.
Electrical outlets, television cables, telephones, and internet connections are prepared in
the spaces where evacuated residents will use.
z It is desirable to make plans for in-house announcements and a bulletin board forcommunication between the evacuees and the staff.

[4] Indoor environment•

It is necessary to provide evacuees with a healthy and sanitary indoor environment as aplace to live temporarily..

•

In case of the need to utilize a evacuation facility during the winter time, it isnecessary to plan for heating using portable heating equipment.
need to include ventilation.
the cold floor.

•

It is effective to have styrofoam mattes to keep people off(Case example: Chapter 4, 1, (4))

If an evacuation facility will be used during the summer, it is necessary to prepare fansand portable air conditioners.

•

The heating plans

Curtains to block the sun should also be considered.

Inside lights should be adjustable on illuminance or area controllable.
conceivable to use cardboards to make individual shades.

It is also

If these capabilities are

not available, it is preferable to come up with an alternate plan.
•

When there are a large number of evacuees in an open area like a gymnasium, it isdifficult for anyone to have privacy.
longer they stay.

This causes people to become more stressed the

Cardboard can be used to create individual spaces.

This will keepthem warm during winter but it doesn’t allow for air circulation during summer.
•

It is desirable to plan for enough space, necessary tools, and user manuals to manage•

trash, trash collection, drainage from the kitchen and laundry, and hygiene control.
It is desirable to make rules and designate smoking areas as necessary.

21[5] Support plan for physically challenged peoplez For a smooth reception of physically challenged people, school facilities need to havebarrier-free reinforced facilties such as ramps and toilets for the disabled.
z Western style toliets are desirable.

Toilets should not only be barrier-freetheyshould have tables for changing diapers and clothes so that they are useful for otherevacuees. (Case example: Chapter 4, 1, (5))
z It is possible that physically challenged evacuees would need to be separated fromother people since they have other needs such as being able to control room
temperature.

[6] Pre-positioning necessary supplies
It is necessary to store necessary supplies such as food, water, and items required for daily needs
as an emergency response support immediate after the earthquake. The pre-positioned supplies
are required to store in storage facilities near-by or on the property of school facilities. (Caseexample: Chapter 4, 1, (6))3) Facility improvement as school facilities•

When enhancing disaster prevention capabilities at school facilities as an evacuation site, it isdesirable that the modifications also serve other purposes that contribute to the local
community.
(Examples)-The gymnasium should be multipurpose and include toilets, showers, changing rooms, andmeeting room so that the area can be used as an open school facility for the local community and also
as an evacuation site in case of disaster.(Case example: Chapter 4, 1, (7))-To conserve natural resources, a rain water recycling system should be implemented for use ofother than drinking water- Installing an in-house generator and familiarizing the local community with its use promotes
disaster prevention awareness. It can also be used for disaster prevention education.
It is important that any of the facility’s equipment that might be used during a disaster needs to be
used and inspected periodically during peace time.
4) Plans and designing of facilities to be used as an evacuation site
• When building a new school or reconstructing an existing school building, the plans anddesigns should be prioritized for school education based on the “School Facility
Improvement Guideline”*. It is also desirable to take the fact that the school might be used
as an evacuation site into consideration. (Case example: Chapter 4, 1, (8))*20 The School Facility Improvement Guideline addresses the capabilities a facility must have in order to facilitate a diversified
educational contents and methods in a school. http://www.mext.go.jp/a_menu/shisetu/seibi/main7_a12.htm

22

(Examples)- Locate the gymnasium next to school ground where local residents will be evacuated toduring a disaster-Plans for the outside of the school buildings should include paths for transporting supplies andparking.
-The location routinely used for an open school area should also be used for the evacuation of
local residents.
-For planning purposes, it should be assumed that the school management offices will be used as
the site support operations office during a disaster-Have assumed areas for the use by physically challenged people and make the areas barrier-free.
z Whether building a new room or remodeling an existing room it is always possible to makethe room fit the desired purpose. Holding workshops (*21) with local residents to incorporate
their opinions into designing and planning of school facilities enables disaster prevention
capabilities to be suitable to respective regional conditions. This is also an effective way toincrese residents’ disaster awareness. (Case example: Chapter 4, 1, (9))(3) Establishing operational measures for evacuation facility1)Planning how to use the school facilities
z For a smooth evacuation of the residents and an effective use of the facilities, there must be aplan that explains how the school facilities will be used as an evacuation site during adisaster..
z The plan must provide sufficient space for evacuees to stay and for the staff to conduct site
support operations in the school buildings, gymnasium, and athletic ground.

It is also

desirable to put the spaces in order to be available to evacuees.
z It is desirable to formulate an evacuation site operating manual together with the plan.
School staff and all the other pertinent organizations need to have a good understanding of
the plan and the manual.
[1] Deciding how space will be used in the evacuation areaz Generally, gymnasium is the living space for evacuees and ,if necessary regularclassrooms and special classrooms will be used next.

If special classrooms are

utilized as living areas, it is necessary to ensure that there is no furniture or equipmentthat could possibly fall.
z Living space needs to be planned as each person gets enough space (wide enough for a
person to be able to lay down with their belongings at their side: approximately 2-3 ㎡)
with access aisles.

It is necessary to determine how many people will be in eachroom.
z It is effective to put all furniture (desks and chairs) together in several places and set
aside. It is even better to have designated rooms to store furniture.
*21 *Workshop
Workshops are a way to solve problems that occurred in the community and to plan for various matters.
Community residents participate in the workshop to discuss facility planning and community development.

23

z ・It is desirable to ensure the availability of existing vanity room, toilet, changing room,
shower, kitchen, and laundry at times of disaster.

It is also desirable to havedesignated spaces to setup temporary facilities as necessary.
z

It is assumed to the school administration office, teaching staff office and school
dispensary will be used for shelter operations, meetings, and medical treatment.
These operational support offices should be located in one place and completely
separated from evacuees’ living spaces.

z Spaces for the distribution of supplies, transmission of information, andcommunication should be located in common areas such as the lobby, the entrance
area of gymnasium, and the pilotis where both evacuees and non-evacuees haveaccess to.

On the other hand, separating the flow of people between evacuees andnon-evacuees helps avoid confusion at supply distribution points.
z It is desirable to designate areas and to clearly separate temporary facilities, food
distribution space, supply transport vehicles’ route, and emergency vehicle’s route
before providing living space for evacuees.
[2] Ordering spaces in evacuation sitez Considering that the number of disaster victim changes depending on the severity of thedisaster and how much time has passed, a good way is put spaces in order and provide
them in a phased manner.
z It takes more time for people who need special care to evacuate.

Physically challenged

people should be given priority and be given living spaces on floors that haveentrances and are close to the toilet.
z The number of evacuees staying in the evacuation facility will decrease as time passes
after the disaster. The evacuees’ living space should be decreased in the same manner.

2) Cooperation between pertinent organizationsz It is desirable to share plans on how to respond to a disaster among pertinent organizations
such as the local government disaster prevention department, the board of education, theschool an autonomous disaster prevention organization, and the local community in orderfor everyone to have the same understanding on the support structure for disasterprevention. For a smooth establishment of evacuation site, if private schools aredesignated as evacuation facilities, it is necessary to clarify the reporting procedures
beforehand to ensure the evacuation goes smoothly.
z It is desirable to discuss measures to improve disaster prevention capability at evacuation
facilities, the evacuation facility operation manual, and conduct a periodic facility
operation drill that all follow the reporting structure used during a disaster.

It isdesirable that all pertinent organizations cooperate to facilitate the evacuation site
operation during a disaster. (Case example: Chapter 4, 2, (10))
z It is necessary to cooperate with pertinent organizations as well as cooperation among
school children and local residents while in an evacuation facility . It is desirable toconduct evacuation facility operating training and disaster prevention education for asmooth evacuation and shelter life during a disaster. This will increase self-help andmutual help awareness.
(Case example: Chapter 4, 2, (11))

24

3) Writing an evacuation facility operation manual*z

For evacuation facility operations to run smoothly, pertinent organizations must havediscussions about the operating structure, operating methods, communication and assemble
structure and self-disaster prevention organization.

A practical operating manualexplaining the reporting structure to include volunteer groups is necessary.
immediately after a disaster occurrence, first responder operations andz

For the timepractical means ofevacuation facility operations for prolonged shelter life should be included in the manual.
Training on how to operate the evacuation facility should be conducted periodically and bebased on the evacuation facility operation manual. The manual should be reviewed asnecessary for modification.3）(4) The prompt restart of educational activities at schoolz

Restarting educational activities at school facilities used as evacuation facility after a disasteris the first step for recovery and restoring normal life in the community.

z

For the prompt restart of educational activity to occur, the children’s activity space and theevacuees’ living space must be separated.

z

To restart school activities, it is important to have a transition plan that allows the teaching
staff to focus on educational activities.

This transition will be smoother if the discussion

with pertinent organizations about sharing roles in the operation of evacuation facility has
been conducted and stated in the evacuation facility operation manual.
z

Depending on the conditions after disaster, open spaces for evacuees should be decreased
systematically according to the school facility usage plan and taking required spaces such asz*22classrooms, school grounds, and administrative offices back for school activities.
It is necessary for all pertinent organizations to cooperate for the prompt restart of school
educational activities and the closing of the evacuation facility. It is also desirable to makerules about use of evacuation facilities and to obtain the evacuees understanding andcooperation in regards to school education.

When formulating an evacuation facility operating manual, please refer to the case examples taken from local government activities.

(For example, Shizuoka prefecture has already formulated a manual on evacuation facility operation that can be referred to at this website;
http://www.e.quakes.pref.shizuoka.jp/）25

3. Promoting measures to enhance disaster prevention capability for school facilities(1) Exploitation of various fiscal support systemsz In order to improve disaster prevention in the local community, pertinent ministries andagencies provide various kinds of fiscal support systems and some systems can be utilized forschool facilities’ disaster prevention reinforcement.

It is desirable that local governments

utilize the available systems to enhance disaster prevention capabilities at school facilities.
z It is necessary to share information regarding school construction projects between the local
government disaster prevention department and the board of educations committee as a
combined project for the purpose of requesting a budget.
z The Foundation for General Autonomous Community Center provides autonomous disasterprevention organizations with subsidies to purchase tools, equipment, and supplies. Some
prefectural governments also provide a subsidization system for supply acquisition. It is
desirable to utilize these available subsidy systems. (chart 3-3, Reference material 3-1, 3-2)
Chart 3-3 Major national subsidy systems for improvement of community disaster prevention facilities
AgencyIn charge

Contents

Cost for public school
facilities improvement

Local government (Prefectures andmunicipal borough, town, and village)

Disaster prevention
project bondLocal government (Prefectures andmunicipal borough, town, and village)

Facility improvement to enhance disaster prevention capabilities at
evacuation facilities

Subsidy for Fire
Disaster prevention
Facility Improvement

Local government (Prefectures andmunicipal borough, town, and village)

Earthquake-resisting water tank, pre-positioned storage

Building Guidance
Division

Housing and building
remodeling project forearthquake-resistance

Local government (Prefectures andmunicipal borough, town, and village)

Rehabilitation for earthquake-resistance

Town
Development
Promoting
Department,
Urban
Comprehansive
Project Promoting
OfficeSubsidy for Town
Development

Local governments (Municipal
boroughs, towns, and villages)

Community disaster prevention facility: Earthquake-resisting water
storage tank, pre-positioned storage, information transmitting facility,
broadcasting facility, power generation facility, drainage recycling
facility and cost for disaster prevention seminar and emergency
evacuation training

Sewege systemproject section

Emergency
earthquake-resistance
improvement projectfor sewage system

Local government (Prefectures andmunicipal borough, town, and village)

Project for earthquake-resistance and manhole toilet system

Self-governed disasterprevention organization
promoting support
project

Self-governed disaster prevention
organization, women’s disasterprevention organization and it’s grouporganization in town, ward and village

Improvement of facilities or equipment that are necessary for community
disaster prevention activities

Facility Support
Department

Fire andDisasterPrevention
AgencyFire prevention
and medical
emergency section

Foundation for
self-governing
general center

TargetNew or expanding construction of building
Reconstruction of building
Seismic reinforcement of building
Facility improvement in outdoor educational environment
Large-scale remodeling (for aged building or quality improvement ofbuilding)
construction or reconstruction of school swimming pool for seismic
reinforcement

Ministry of
Education,
Culture,Sports, Scienceand Technoloty

Ministry ofLand,
Infractructure,
Transport, andTourism

Name of system－(2) Improvement of disaster prevention capabilities simultaneously with either initial or expanding
construction or large-scale rehabilitationz It is a good opportunity to enhance disaster prevention capabilities at school facilities when conducting
initial or expanding construction or large-scale rehabilitation. Local government should take thisopportunity without hesitation.

In order to do so, it is necessary to include capabilities that require

enhancing in the planning and designing of school buildings. The specific ideas stated in the previous
chapter should be included in the planning and designing if they are required by regional conditions.
z During recent years, countermeasures for earthquakes at school facilities that were built before
implementation of The Seismic Design Standard have caused the biggest issues. Local governments
are conducting seismic reinforcement projects for those schools. This is also a good opportunity toinclude disaster prevention rehabilitation in the reinforcement project. During the initial planning anddesigning for a seismic reinforcement project, it is desirable to have sufficient discussion for enhancing
disaster prevention capabilities to include safety measures to prevent falling ceiling materials, equipment
needed for the facilities such as toilets and a heating device.
26

(3) Providing information of exemplary advanced projectz In some local areas adequate reinforcement projects have been already been started orcompleted.

Among the completed projects, there are many advanced projects that can bereferred to by other local governments.
z However, the information about the advanced projects that have been completed is notnecessarily available for other local governments or school management staff in a timely
manner. Therefore social links among pertinent ministries, agencies, and local governments
on a routine basis would help them in obtaining the necessary information when they need it.
They should also disseminate the information that they obtained to their pertinentorganizations.

(4) Understanding the condition of disaster prevention capabilities
z The Central government should spread notification among local governments on need fordisaster preventing rehabilitation of school facilities. The central government should
constantly be aware of disaster prevention and disseminates information to local governmentsfrom now on.
The government should identify the reasons that any schools have not
improved their disaster prevention capabilities and come up with a plan so the school can makeany necessary improvements.

27

28

Chapter 4 Examples of project that enhance disaster prevention capability that can also be used as an
educational activity
Projects for enhancing disaster prevention capabilities have already been started in some local
communities. Some of these projects are worth being referred to by other local governments. In chapter
4, 11 case examples of completed projects for school facilities are discussed in the results of the inquiry
survey on rehabilitation for disaster readiness and have been suggested to other local governments.
Eleven projects were picked up and introduced in this chapter with the summaries of on-site hearing
survey.
((List of completed projects))
1. Example of a project for enhancing disaster prevention capabilities (Facility)(1) Subsidy for “Project for urgent sewerage improvement against earthquake” provided by The
Ministry of Land, Infrastructure, Transport and Tourism was utilized to establish temporary toilets withconnection to a public sewerage pipe. ....... ....... ....... ....... ....... ....... ....... [Kobe-shi, Hyogo prefecture](2) An emergency water supply system was installed on the swimming pool to supply drinking
water and other essential daily needs in case of a disaster.
. ....... ....... ....... ....... ....... ....... .... [Yoshinogawa-shi, Tokushima prefecture](3) Utilizing water well for disaster response to supply water for daily needs and drinking water.
. ....... ....... ....... ....... ....... ....... ..... ....... ....... ....... ........

[Chofu-shi, Tokyo](4) For disaster that could occur in winter, the gymnasium floor was installed with a heating systemusing the air duct underneath the gymnasium floor.... .............. ....... .....[Sabae-shi, Fukui prefecture](5) Multifunctional toilets were installed during reconstruction and large-scale rehabilitation ofschool buildings.

.. ....... ....... ......................... .................[Koriyama-shi, Fukushima prefecture](6) Disaster prevention storages were established at elementary and lower secondary schools
designated as a broader evacuation site based on the local government comprehensive plan.
....... ....... ....... ............ .......... .............................[Tajimi-shi, Gifu prefecture](7) Rooms that could be used as office during a disaster were equipped in gymnasium.
......... ....... ....... .......[Honjo elementary school, Kobe-shi, Hyogo prefecture](8) A reconstruction project at a lower secondary school focused on disaster prevention capability
required for an evacuation site........ ....... .........[Higashi lower secondary school, Nagaoka-shi, Niigata prefecture](9) Local residents participated in workshops and discussed a school building reconstruction projectto enhance disaster prevention capability... ....... .........................................[Oyaguchi elementary school, Itabashi-ku, Tokyo]
2. Examples of project for enhancing disaster prevention capabilities (Operation)(10) Evacuation site operating drill with local residents, teaching staff, and local government staff
participating.

....... ....... ....... ....... ....... ..............................................................[Nerima-ku, Tokyo](11) Implementation of disaster education during comprehensive learning class .
......... ....... ....... [Jonai lower secondary school, Shizuoka-shi, Shizuoka prefecture]29

1. Examples of projects for enhancing disaster prevention capabilities (Facility)(1) Subsidy for “Urgent project for the improvement of the sewerage system against earthquakes”
provided by The Ministry of Land, Infrastructure, Transport and Tourism was utilized to establish
temporary toilets with a connection to a public sewerage pipe ................[Kobe-shi, Hyogo prefecture]zz

A manhole cover can be removed during a disaster to set up portable toilets and sectional covers tomake temporary toilets. When not in use, it works just like a regular manhole cover.
There are 5 portable toilet sets per evacuation site in Kobe. (4 western style toilets and 1
multifunctional toilet)
Swimming poolTemporary toilets
are setup here
Drainage retentiontank

Water from swimming pool isretained in the main pipe to
use for temporary toilets.
The main pipe for temporary
teoiletsRetention valveTo
open the retention valve to drain sewage retained from仮瞭トイレを使用して汚物が溜ったら、貯留弁を開け、
temporary
toilets and store water from swimming pool again.
汚水を下水運へ湾して､ふたたびフールの水を溺めます。

Main sewage line

Targeting areas
Designated schools and areas (57 schools and 3
parks as of 2006)
Cost for 1 area (5 toilet set)
Underground implant (not including
earthwork): Approximately 1,000,000 yen(including the plumbing used to connect to thesewerage pipe)
Toilet set and supplies: 600,000 yen
Work budget
Underground implant: “Urgent project for the
improvement of the sewerage system against
earthquakes” subsidy and general accountbudgetToilet set and supplies: General account budget

Background of the work
-The roads were blocked because of damage caused by the earthquake so the
cesspit cleaner truck could not provide support.
- Women avoided the vault toilets after the earthquake.
-The main sewerage pipe didn’t get damaged by the earthquake(2) An emergency water supply system was installed on the swimming pool to provide water for dailyneeds and drinking water in case of a disaster.
zz.... ....... ....... .... [Yoshinogawa-shi, Tokushima prefecture]

In addition to the remodeling of the old swimming pool, a disaster emergency water supply system wasinstalled.
The disaster emergency water supply system is activated during the annual emergency evacuation drill
conducted by autonomous disaster prevention organizations to help the disaster awareness of local
residents.

Surge Tank

Swimming pool
Cycle filtation
DeviceSwimming pool

Pump
Legend symbol

Engine-drive pumpFinal filtation

Secondaryfiltation

Primary
filtation

Main unit of system

Emergency water flow

Sterilizer
Fire-fighting Water for
High-class treatment water
living needs (Drinking water)
water
Emergency water supply
30

Cost per installation
For the whole swimming pool:
Approximately 98,000,000 yen (of this,
5,800,000 yen is for the emergency watersupply system)
Work budget
Subsidy for public school facility
improvement and general account budget
How this improves efficacy
The system can produce 66,000 liters ofwater at disaster (6,000liters for drinking
water and 60,000liters for water for dailyneeds). This amount of water can support
2,000 people for 3 days.

(3) Utilizing well water for disaster response to supply daily needs and drinking water. .... .... .... .... .... .... .... .... .... .... ............... [Chofu-shi, Tokyo]z

As a part of intensification of evacuation facility a water well has been established at every elementaryzand lower secondary schools in Chofu city after the Great-Hanshin Earthquake.
A water purifier is stored in the school pre-positioned storage so that both well water and swimming poolcan be used simultaneously in case of a disaster.

z

Improvement status
Coverage: 28 Public elementary and lowerzzsecondary schools (25 schools are completed)
Cost for installation: 5,500,000 yen for each well
Contract fee for pre-inspection: 2,200,000 yen
Well installation work: 3,300,000 yen
Work budget
General account budget

Supply water for living needs from water well
utilizing water purifierz

Condition for starting the installation
Installation is only started after a boring survey
confirms the water sourcez

Improvements in efficiency
500 liter of water per hour can be supplied. (Thewell water quality will also be inspected toensure that it is safe).

zPlans for future improvements

Training to purify water of swimming poolutilizing water purifier31

(4) For disaster that could occur in winter, the gymnasium floor was installed with a heating systemusing the air duct underneath the gymnasiumz

During the remodeling of gymnasium, floor heating device was installed in the arena to create a livablefacility at disaster occurrence during winter.

System structure diagram



Background of the workzIntellectuals reported that evacuees suffered from the cold when they
were temporarily housed in the school gymnasium.

Ventilator

A floor heating

system was suggested for the evacuees’ health and sanitation at timesof disaster.
Gymnasiumz

Cost to installing and operating the improvement-Installation cost 2,400,000 yen for heated draft duct work andRent part

generator work

Floor

-Operating cost at disaster (per day)
30,000 yen for kerosene oil

Oil tank

30,000 yen for leasez

Work budget
General account budget

Duct

Double floor chamber

Concrete curing
Oil furness method(Heating system)z

Plans for future improvement
It is projected to be installed when public elementary and lower
secondary schools’ are remodeled.

(5) Multifunctional toilets were installed during the remodeling and large-scale rehabilitation ofschool buildings.
......................................[Koriyama-shi, Fukushima prefecture]z When a school building or gymnasium is newly constructed or expanded, or a large-scale
rehabilitation is planned, multifunctional toilets are also installed. Gymnasiums that are planned to be
used as an evacuation facility are equipped with multifunctional toilets.
z

Reason for the improvement
Based on “The 4th comprehensive basic plan”, barrier-free
improvement at school facilities are conducted as an annual
project in Koriyama city.

Multifunctional toilets are

installed in the school buildings of 19 elementary schools
and 8 lower secondary schools, in the gymnasium of 11
elementary schools and 10 lower secondary schools as of

Koriyama Otsuki Lower Secondary School
Koriyama Municipal Mihoda Lower
Secondary School

June 2006.
z

Work budget
Subsidy for public school facility improvement and generalaccount budgetz

Improvement in efficiency
Not only are the school facilities used in case of disaster, it isalso utilized by children daily and local residents during an
open school day for it’s east accessibilities.

32

(6) Based on the municipal general plan, disaster prevention storages sites were established atelementary and lower secondary schools designated as broader evacuation sites....................................[Tajimi-shi, Gifu prefecture]z

Based on the 5th comprehensive plan, Tajimi city established disaster prevention storage locations atz

designated areas at evacuation sites
Whenever a disaster prevention storage location is established, local disaster prevention groups train on
using the rescue support equipment.

Disaster prevention storage Below Physical education
1m above groundequipment storage

Gymnasium

Part of the newly constructed
gymnasium is utilized for pre-positioned
storage of disaster relief supplies

z

z

z

Tajimi municipal Takiro Elementary School

Tajimi city the 5th comprehensive plan (Establishment of disasterprevention storage sites)
General plan: Establishment of disaster prevention storage sites forequipment and related supplies at all designated evacuation sites
2006: 2 schools and 1 gymnasium
2007: 2 schools
2008: 1 school and 1 citizen hall
2009: 1 school and 1 community center
Cost of improvement
Disaster prevention storage building: 370,000 yen per a set of 4
storages
Relating supplies: 8,350,000 for 3 locations
Work budget: General account budget

Training on equipment designed to push
up a collapsed house

Pre-positioned storage of disaster relief
supplies(7) Rooms to be used as a disaster operation office at times of disaster were equipped in the
gymnasium ........................[Honjo elementary school, Kobe-shi, Hyogo prefecture]zzBased on the experience from the Great Hanshin-Awaji Earthquake, meeting rooms to be used as disastercountermeasures office at times of disaster were established in a part of the gymnasium building.
Changing rooms and multifunctional toilets were also established and utilized at event of open
school and PTA activities.

Status of improvements
Emergency telephones, FAX, copier, small
kitchen, and refrigerator are prepared for use in
the community disaster prevention
countermeasures office at occurrence ofdisaster.
33






Cost for improvement per location
Conducted at the same time of gymnasium
reconstruction at a cost of 40,500,000 yen
Budget for work
Subsidy for public school facility improvement
and general account budget

(8) Remodeling project for lower secondary school that is focused on the disaster prevention capability
required for an evacuation site.......[Higashi lower secondary school, Nagaoka-shi, Niigata prefecture]zzWhen the old school building was remodeled, disaster prevention capabilities were improved at
different places of school facilities that are designated as an evacuation site based on the experiencesfrom the Mid Niigata Prefecture Earthquake.
The same places that local residents utilize for open school days are designated as evacuation sites
so that they are already familiar with the areas when they have to live temporarily.

○Background of improvement
At Higashi lower secondary school in Nagaoka city the school teaching staff, PTA, school supporting group, andlocal residents have been planning an overall remodeling of school facilities since 2003 because of old buildings.
The Mid Niigata Prefecture Earthquake of October 2004 occurred during the planning process and having thecapability to serve as an evacuation facilities became the most important issue. Together with municipal office
staff, the mentioned parties had multiple discussions. Planning the design of this project has been completed andthe construction is scheduled to start in 2007.

North roadOpenparking

Big roof(half-outward)

3. Structure: Reinforced concrete structure, partly steel
structure
4. Number of floors: 3 story building

Sidewalk

SchoolCourt buildingsyard

2. Gross floor area: 10,959 ㎡

Sidewalk

Parking for
visitorEntrance

5. Number of class: 12 classes
6. Number of students: 409 students (as of January 2007)
7. Number of households in the school district: 7,800
households
8. Estimated number of evacuees: 2,400 persons (This is theMain approach

Parking for Parking
visitorfor visitor

gymnasium and a part of the school building)
9. Reference: There are many other public facilities in
Higashi school district.

There were 500 actual evacuees

in the Higashi lower secondary school during the Mid

Memorial garden

Niigata Prefecture Earthquake.

Sidewalk

Parking for
visitornumber of people that school can hold using theEast road

西側道路
West road

Gymnasium

1. Lot area: 34,030 ㎡

Parking forschool staff

Outdoor sports
field

Sidewalk

Entrance for open school

Summary of the remodeling plan of Higashi lower
secondary school in Nagaoka city (the design wascompleted in March 2007)

School ground

Lawn and woods
open space

South road
Diagram

34① Inside and outside facilities allocatedfor use by evacuated residents
Rooms for evacuated residents arelocated on the first floor so that the
distribution of supplies can befacilitated smoothly and evacuees
who have difficulties walking will
have easy access.

1st floor plan

Open entrance

Kitchen

Prep
room

Art
Tech
classroom classroom Home
Toileteconomyclassroom
EV
Prep room
Prep room
Exhibition area
Exhibition area
Outside terrace forcreative activity

Outdoor sports
field

ToiletMeeting room

Multipurpos
e HallCounselingElectricity room
Courtyard
Machine room
DisasterMartialarts
room

Schoolmemorial

Hall

Supply room

SupplyManagement

Stage

room

ToiletCounseling

Principal’sCommunicationHall

Conference
room
PTA

ＷＣ

Gymnassium

Entrance

Dispensary
Big Roof(half-outward)

SchoolOperation
CenterClassroom foreasingchildren’smninds△Entrance for classroom foreasing childrend’s minds

All graders

School staff
and visitor① Space for food distribution is located next to the area where evacuated residents stay.
Locating the kitchen next to the gymnasium and outside sports field provides accessibility for the watersupply vehicle and space available outside to locate cooking appliances for food distribution.
② The open space outside is covered with roof so that evacuation support can be conducted when it is snowing
or raining.
Since it is difficult to conduct evacuation support outside when the ground is covered with snow, an open
space with a roof (Big roof) was established to have the necessary space to conduct this support during the③All of the necessary facilities and equipment are located close together to respond to the various
requirements from evacuees.
-A heating system was installed in the martial arts training hall so that children and elderly could stay on awarm tatami matt floor.
-A Water tap is installed to draw drinking water from the water storage tank. Rain water is used forflushing toilets.
-Multifunctional toilets, toilets that are accessible from the outside, and changing rooms equipped withshowers are established.
-The gymnasium which is the primary place for evacuees’ to temporarily live is installed with television,
telephones, and LAN connections.
④ Locating the school dispensary for smooth treatment activities
Locating the school dispensary for smooth treatment activities
The school dispensary is located next to the gymnasium and athletic ground for smooth first aid activity
and ambulance accessibility⑤ Enhancement of disaster awareness by familiartize spaces with local community
The same places that local residents utilize for open school days are designated as evacuationsites so that they are already familiar with the areas when they have to live temporarily.
35

(9) Local residents participated in workshops and discussed the remodeling of the school building
project to enhance disaster prevention capability... ... ... ... ... ......[Oyaguchi elementary school, Itabashi-ku, Tokyo]z

During the remodeling plan for Oyaguchi elementary school in Itabashi-ward, Tokyo, workshops were heldwith local residents and the school staff to exchange opinions.

z

The opinions were reflected in theremodelling plan.
The opinions will also be reflected in future remodeling plans for school facilities in Itabashi-ward.

○Relationship between rehabilitation planningcommittee and workshop
Oyaguchi elementary school
exploratory committee forreconstruction

Oyaguchi elementary
school exploratorycommittee forreconstruction secretaries○Requests presented at the workshop regarding
fulfillment of disaster prevention capability.
-Place for volunteers to gather-Improvement of the required capabilities at theevacuation site
-New construction to make the school barrier-free(Installment of elevator and multifunctional toilet)-Heating system in the gymnasium

Member of committee
Public administration, architectural expert,
school staff, PTA, local residents, and NPO staff

Request
Question
Idea and etc○What was reflected in the reconstruction plan

Answer after
consideration-Rooms to use during an open school day-Free leaning space was created for children.
-Locations of the school principal and otherteaching staff should be located where they
have visibility of entrances and exits..
-Separation between the administrative space
and the open space for the local community-Classrooms with cable connections forcomputer and LAN

WorkshopParticipants: Local residents, PTA, schoolstaff, NPO staff, and member of committee
Children workshop
Participants: 6 graders of Oyaguchi
elementary school○Advantages and important points of workshop
1. Local residents, school staff, and school children became aware that they are part of the school by participating in
the plans to remodel the school.
2. It enables problems to be found that the local government or architectural experts might have overlooked.
3. It takes a great deal of time for the remodeling to begin because the whole community discussions the remodeling.
4. It may cost more money to compile data and conduct briefings to fix problems that were brought up at theworkshop.

36

○Items that were adopted from outcome of the workshop and implemented for the enhancement of disasterprevention taking opinions into the planning
1. Gate was established to open towards a park located next to the school athletic ground to allow local
residents to enter in case of a disaster2. The gymnasium was built on the 1st floor of building and located straight ahead of the main schoolgate to provide easy access to local residents and physically challenged people.
3. The floor was leveled at the primary entrance of school buildings to allow physically challenged
people easy access.. An elevator was also provided for those people.
4. Multifunctional toilets were installed around the gymnasium area.
5.A heating system was installed in the gymnasium.
6. A place for volunteers to gather was established.

School entrance(Kuzunoha gate)

Electricity room
(fire extinction
water below)
Changing room

Open school (after
school lounge)

Entrance forLife Division Large bus andfire engine

Dressingroom

Pre-positioned
storagEntrance foropen school

Dressingroom

Receptionfor
open schol

Equipment

Stage

Equipment

New water
retention tank
Pump room Physical
Education
supplystorage

Large bus

Lunch room

KitchenOutsidetoiletLarge bus

Equipment
Dispensary
Counseling

Gymnasium
Residents’ vehicle
entrance
School entrance
for visitor

Entrance
Entrance forchildrenIndoor stairsA
Bicycle parking
Stairs B
Entrance forvisitorWheel
chairparking

School groundBroadcasting booth
Available area forboth room and outside
shose

Reception

Entrance hallfor schoolt ff

Principals
officeDressing/break room

Manager’s office

Entrance forschool staff

Dressing/break room

Dressing room Audio-visualroomMusic room
Conference room

Outdoor pet
house

Legend symbol
Location of schoolgate
Vehicle entrance
Entrance of building

37

School Entrance
for children

2. Examples of project for enhancing disaster prevention capabilities (Operation)(10) An evacuation site operating drill with local residents, teaching staff, and local government staff
was conducted........................................................................................[Nerima-ku, Tokyo]zzNarima ward government in Tokyo designated 103 public schools as disaster evacuation sites. Local
residents in the respective school district cooperated to support the evacuation facility operation as
operational liaisons.
Residents in the respective school district planed and conducted evacuation facility operation training withthe school teaching staff and the local government office staff.

○ Relationship between local residents, teaching staff, and local government office staff for evacuation site operation

Shelter staff from Nerima ward

School principal(3~6 Ward office staff)

3 parties cooperate to operate theevacuation site

Cooperation
Co-worker

Cooperation

Evacuation site staff from school

Liaison of evacuation site operation(5 excluding the principal)(Local residents, private disaster prevention

Cooperationgroup, PTA, etc)

○ History to establish evacuation site operation liaison meeting-1995-1997:

At 103 public elementary and lower secondary schools in Nerima ward, a disasterprevention storage site using an extra classroom was established with the cooperationof board of education and school staff.
It was necessary to organize the administrative support of the local residents in theschool district.

-1998:

With cooperation by regional disaster prevention organization and the PTA, 50 support
group organizations were established.

-2000~:

Other districts started these organizations as well.

Disaster prevention training has been planned and conducted at each district.

A disasterprevention manual was created.

School disaster prevention
exercise (Cooking training)

38

School disaster prevention exercise(purifier operation training)○ Roles of local residents at an evacuation site operation liaison meeting [Peace time]<Peace Time>-Holding a general assembly and lecture presentationfor educational activities-Creating operational manuals according to theregional characteristics at respective evacuation sites-Inspection of pre-positioned stocks and supply
equipment-Conducting evacuation drill (general)----Training on how to operate the equipment, watersupply training, food distribution training, first aid
training, evacuation escort training, etc.
-Revision of the evacuation site operation manual
based on lessons learned from the training

Training for cooking and food distribution[At disaster]-Room assignment for evacuees-Information dissemination andannouncements in the evacuation
facility-Water and food distribution support-Sanitation activity-Support to restart school educational
activities

Local residents evacuation route map exercise○ Keys to start an evacuation site operation organization by local residents
1. Assign a local government office staff to each evacuation site to begin disaster prevention
planning with the local community.

(Local government office staff already participate inmeetings and trainings held by the evacuation site operation liaison meeting)
2. Each school principal cooperate the activity as the administrative chief of the facility.
(If the school principal is new and came from a different district, the principal should attend
disaster prevention training)
3. Having the residents aware that they are the ones who conduct all the operations at theevacuation site. (Creating a supporting structure among the local residents as the primary operatorsof the evacuation site)39

(11) Implementation of disaster education during comprehensive learning class (ProjectJ)..........[Jonai lower secondary school, Shizuoka-shi, Shizuoka prefecture]zz

Jonai lower secondary school in Shizuoka city facilitates disaster education by using a comprehensive
learning class to teach disaster prevention skills and knowledge to promote over-all disaster prevention
ability.
The school held a forum inviting local residents to discuss a structure to support community disasterprevention. Also 453 students or 87% of the total students participated in community disaster prevention
drill.
○ What is Jochu projest (Project J)?
-It is assumed that the Jonai lower secondary school district is most likely to get damaged if theTokai Earthquake occurs.

Disaster prevention instruction is being provided in a class as well as

starting a project that allows the local community take the initiative to focus on “protecting
invaluable lives”..
-The school inspires the children to be enlightened about what to think and do during the processfrom how to get ready for an earthquake through the actual occurrence of an earthquake to recovery.
○ 3 objects and 7 issues for the projectIn this project, there are 3 objects and 7 issues as shown below.

(3 objects)

1. Work together to “protect invaluable lives”
2. Realistic assumptions
3. Knowing confusion and difficulty at initial posture(7 issues)
1. Keep quake damage to the minimum
2. Obtain enough knowledge and skills to endure the psychological panic
3. Try to bring out distinguishable roles and responsibilities for the individual, home, school, publicorganization, local organization, community, and society.
4. By providing mutual cooperation in a worst case scenario training (convoy system training),
everybody should learn from it and be better prepared for a disaster.
5. Have a hands-on policy to be able to have a flexible response.
6. Self-protection is the best disaster prevention.

Share ideas about how to best go through thedisasterRescue transport training

Evacuation facility replicate booth exhibition

40

○ Organization chart to promote Jochu earthquake project (conception picture)○ Future activities of the project
Based on postulate “protect invaluable lives”, the school staff are considering volunteer activity by the students,
early recovery of school capability as a center of the community, giving students instruction in order for asmooth and autonomous operation by local residents, and edification to students’ parents and local community.

41

41

42

Reference Material Part 1
I School facilities utilized as evacuation sites for the Noto Peninsula Earthquake
Noto Peninsula Earthquake, 2007
Earthquake occurred on 25 March 2007 at 9:42 (Magnitude 6.9)
Maximum seismic intensity 6 upper (Nanao city, Wajima city, Anamizu city)【Summary of research in Wajima city】

Situation at evacuation establishment-Among the 30 designated evacuation facility sites in Wajima city there was 1 school facility utilized
as an evacuation site.
-Total number of evacuees at the peak was 2,662 persons.

The maximum number of evacuees

displaced at school was 270 persons.
-A village that was isolated by a massive landslide,. The Monzennichi elementary school was
designated to accept the isolated people because the school was the closest location and had enoughspace that a decent number of people can stay.
Actual conditions of disaster prevention capability at the school designated as an evacuation facility
 Functions required for an evacuation facility-Since the gymnasium was not large enough for all the evacuated people, classrooms on the 1st floor had
to be opened for the excess people’s living.
-Once some of the evacuees were transferred to a different site the remaining evacuees were gathered in
the gymnasium.
-Even though there was a toilet in gymnasium, water from the swimming pool was used due to a water
outage.
-Temporary portable toilets were avoided due to aftershock and steps at the stool.
-Japan Self-Defense Force supported with a temporary bathing system in the nearby park They also
provided transportation services to hotels and Japanese inns in the neighborhood.
-Cellular phones were utilized to communicate between the chief of evacuation site operations and thedisaster countermeasures office.
-Local cable broadcasting in Monzen district was utilized to transmit information in the community.
-There was no television or cable connection in gymnasium. The installation took time so thenewspaper was the only source to information during the work.
-There was no heating system in gymnasium so it was very cold. The situation improved after acompany put styrofoam sheets on the floor.
-These styrofoam sheets were used to keep off the cold instead of creating partitions for privacy.
-The cold and not being able to properly wash hands contributed to an infectious gastroenteritis
outbreak.
 About operation of evacuation site
-The local government office staff resided in the evacuation site to operate the evacuation site. Schoolstaff took the roles of preparation, clean-up, and answering phone calls to cooperate.
-A smooth evacuation of people occurred after the earthquake because disaster prevention training had
been conducted previously.
 Influence to school activity
Evacuees living in the school on 5 April were moved to a nearby hotel contracted by the local
government and then the evacuation facility was closed. A school entrance ceremony
originally scheduled for 4 April was postponed to 9 April but there were minimal effects onother educational activities.
43

Research on school facilities that were utilized as evacuation sites at Noto Peninsula Earthquake

1. Summary of research
An earthquake with a magnitude of 6.9 occurred offshore of Noto Peninsula on 25 March 2007.
The earthquake affected the center area of Noto in Ishikawa prefecture and caused houses to collapse
and forced the local residents to be evacuate to evacuation sites. An investigation was conducted toresearch the process of how the evacuation site was established and how the school facility was
actually utilized as evacuation facility.
The investigation was conducted at Wajima municipal elementary school that was the biggest and only
evacuation site used. This was done by doing an on-site inquiry survey with representatives from theschool and evacuated residents from the community on the conditions and responses that took place.

2. Positioning of evacuation sites in Wajima city and the process of establishing the site
According to the Wajima City community disaster prevention plan, the community halls and theschool grounds are designated as places for citizens to gather (temporary collection points) before
designated evacuation sites get established for the reception of the affected people after an earthquake
occurs. Public school gymnasiums serve as the actual designated evacuation sites.
It states in the community disaster prevention plan that the local government office will locate theirstaff at the evacuation site to conduct administrative and operational support under the cooperation of
the facility administrative chief and chairperson of autonomous disaster prevention organizations. It
also states that if any difficulties are experienced by physically challenged people while staying in theevacuation facility, the staff will provide an appropriate evacuation facility (the secondary evacuation
facility) to move those people.
During this disaster, 30 evacuation sites were establlished in the area of Wajima City. Twenty ofthe sites were located in the Monzen District where the damage from the earthquake was considerable.
The total number of evacuees at the peak was 2,662 persons. Three schools in the district that wereused as evacuation sites were Monzen-Nishi elementary school, the gymnasium of Kawai elementary
school, and Monzen-Higashi elementary school. The Kawai elementary school building had no
heating system so the school was not used. Since the Monzen-Higashi elementary school was locatedclose to where the municipal on-site disaster countermeasures headquarters was located, the school was
utilized by the Japan Self-Defense Force for their cantonment area. Therefore the only schoolbuilding that was actually used as an evacuation site was the Monzen-Nishi elementary school.
It was determined to establish an evacuation facility at Monzen-Nishi elementary school was choseas the evacuation site for the people in the village that was isolated by a massive landslide since theschool was located close to the village and it had enough space to accommodate a decent number ofpeople.
After evacuation facilities were established, there was an outbreak of infectious gastroenteritis atMonzen-Nishi elementary school and Morooka community hall. The local government officedesignated Wajimasou governmental hotel, View Sunset and the Tsurugiji governmental hotel as
secondary evacuation facilities. The local government welfare department evacuated physicallychallenged people into hospitals.

44

3. Evacuation facility at Monzen-Nishi elementary school(1) Summary of Monzen-Nishi elementary school evacuation site
-Location: 1-123, Michishita, Touge, Monzenmachi, Wajima-shi-Year of construction: 1983 for both the school building and the gymnasium-Dates the evacuation site was in operation: From 25 March to 5 April 2007
-Maximum number of evacuees: 270 persons (from 26 to 27 March 2007)-Ratio of evacuees who were 65 years or older: 70%-Buildings used: Gymnasium (arena area 595 ㎡), 3 classrooms on the first floor of the school building (Aidstation: examination room, waiting room, and treatment room), 3 classrooms on the second floor of the schoolbuilding (After 2 April, one classroom was used as an isolation room for patients having infectious gastroenteritis)-Status of operation: 1 medical treatment team (consisted of 1 doctor, 3 nurses, and 2 administrators) 2 publichealth nurses, 2 care workers, and 2 personnel from the local government office(2) Timeline of events from the opening to the closing of the evacuation facility at Monzen-Nishi
elementary school
25 March, 9:42

Occurrence of the earthquake

10:00~ Vice-principal of Monzen-Nishi elementary school arrived.

No evacuees had arrived yet.

14:30~ Upon notification of “a possible evacuation site operation”, all the school staff were
notified using the contact information from the emergency roster.

All the school staff arrived at

the school by 16:00.
16:00

The local government disaster countermeasures headquarters ordered the school principal

to establish an evacuation facility to accept 74 evacuees from the Fukami district and the Rokurogi district
that were isolated due to a massive landslide.

The school staff prepared to receive evacuees (moved chairsfrom inside the classrooms to the hallways, spread straw mats, and located 5 heaters) 74 residents from the
Fukami district and the Rokurogi district arrived in a microbus that was provided by the local government.
45

74 evacuees from Fukami
and Rokurogi districts

26 March, Afternoon

A decision was made to evacuate the people in the Kaiso district to theMonzen-Nishi elementary school because a tsunami was predicted to hit the district.

Late afternoon

Completed the evacuation of 200 residents of the Kaiso district(Largest number of evacuees was 270 persons)
200 evacuees
from Kaiso
districts※Excessed evacuees at
gymnasium are housed in theclassrooms

74 evacuees from Fukami andRokurogi districts

28 March

74 persons of 34 households in Fukami district were moved to Agishi Community Hall

74evacuees
evacueesfrom
from74
FukamiandandRokurogi
Rokurogi
Fukami
districts moved to
districts
Agishi community hall

200 evacuees from
Kaiso districts46

2 April, about 20:00

Outbreak of infectious gastroenteritis
9 patients had diarrhea and were vomiting. They were moved to the classroom on the
2nd floor (Number of patient at peak was 11 persons)

2 infectious gastroenteritis patientswere isolated in the classroom on the
2nd floor

200 evacuees from
Kaiso districts

3 April, 11:00~ The school buildings, gymnasium, and surrounding area were sprayed for sterilization
5 April, 13:00~

49 evacuees were moved to the secondary evacuation facility “View Sunset”
so that school educational activities could restart. Transportation was completed by the late afternoon.

9 April

13:30~The school buildings and the gymnasium were sterilized.

15:00

The evacuation site was closed
School enrollment ceremony was conducted.

200 evacuees from Kaiso
district moved to onzen-Nishi
elementary school

74 evacuees from Fukami
andRokurogi districts weremoved to Agishi community
ｉhall

March 25

26

27

28

29

30

April 1

2

Shift of No. of evacuees at Monzen-Nishi elementary school

47

3

4

5

(3) Actual conditions of disaster prevention capabilities at Monzen-Nishi elementary school1) Safety of the facility
The Monzan-Nishi elementary school buildings and gymnasium were built in 1983 and meet the New
Standard of Seismic resistance architectonics.

There was minimal damage consisting of cracks in theconcrete junction of the buildings and damage to the outdoor sumo training area.

The gymnasium that was

designated as evacuation facility in the community disaster prevention plan had no damage.

It can beassumed that the ground is stable when compared with the Monzen-Higashi elementary school and theMonzen lower secondary school since there was less damage to the ground.
2) Capabilities required for an evacuation facility[1] Spaces used for evacuation area
{Living space}
Classrooms were not planned to be used as evacuation areas.

However when 200 residents from the

Kaiso district arrived to the gymnasium that was already holding 74 residents from the Fukami and Rokurogi
districts, some of the Kaiso district evacuees moved into the classrooms because of overcrowding.

When 74

residents of the Fukami and Rokurogi districts moved to Agishi community hall, the rest of evacuees also
moved to the gymnasium.

It was difficult for the elderly people to move repeatedly.

According to the Wajima City community disaster prevention plan, Monzen-Nishi elementary school canhold 350 evacuees in the gymnasium (1.7 ㎡ per person) but it was difficult to hold 270 evacuees (2.2 ㎡ perperson).

Representatives of the disaster prevention department think that of the number of evacuees theschool can hold needs to be revised.
School ground was used for parking space.

Many evacuees stayed in their own cars because there was noheater or privacy in the gymnasium, as well as fear of an aftershock.

Some people came to school only formeals.

Look of evacuationsite at gymnasium{Cooking space}
The school kitchen was initially planned to be used for cooking.

Most of the evacuatedresidents were assumed to go back to their houses to clean up so breakfast had to be provided before
6:00.

The Japan Self-Defense Force and private vendors cooked with their own cooking

appliances so the school kitchen was not used.
hot water.

The home economics classroom was used to make

Food was cooked at one location and provided to 20 different evacuation sites in thecity so containers for food distribution had to be acquired.
48

Food distribution②

Capability of required facilities{Toilet}The Monzen-Nishi elementary school gymnasium has 4 urinals and 2 toilets for men and 3 toillets for

women.

All of the toilets in the gymnasium are Japanese style.

There is one western style toilet each in the

men’s and women’s bathrooms on the first floor of school building.

Water to flush the toilets was deliveredfrom the swimming pool by a bucket brigade until the water system was repaired.
The following portable toilets were installed; 15 Japanese style, 1 western style, 3 disabled stalls, 2 for inside.
The portable toilets were avoided because they had stairs and fear of a possible aftershock. The western style
toilets were not used as much as the Japanese style because the majority of the evacuees were elderly and they
were used to using the Japanese style on a routine basis since this was the custom in the region.

Look of temporary toilets setup{Bathing}
The Japan Self-Defense Force established a temporary bath house at a park close to the school.
After the water system was repaired, evacuated residents were transported by a shuttle bus to thecommunity bath in the third sector enterprise hotel “View Sunset”. A shuttle bus service was also
provided when the evacuated residents were offered to use the hot spring water bath in Wakura hot
springs{Electricity, water, and gas}
Water from a water supply vehicle or bottled water was used from 25 to 30 March until the water system
was repaired.

The sewage system in Monzen-Higashi elementary school and Monzen lower secondary

school areas were heavily damaged but there was no damage at Monzen-Nishi elementary school.
The Monzen-Nishi elementary school had no problems using gas power because their system was fueledby propane.
49

Tank from small water supply vehicle was settled on the ground and refilledwith water every morning
Water was separated for drinking and washing (left: drinking, right: washing){Method of transmitting information}
Cellular phones were used to communicate between the on-site staff of the local government office and the disastercountermeasures headquarters.

Phone lines were disconnected in the immediate aftermath so a pre-existing cablebroadcast was used to disseminate information to the community in The Monzen District.
In the Monzen-Nishi elementary school only the teaching staff room had a telephone.
for outgoing calls were installed for the evacuees to use.

Therefore telephones only

Since the telephone in the teaching staff room was the only

way to receive phone calls, the school staff was on phone duty standing by for incoming phone calls.
There were not so many announcements to make to the evacuees.

However the evacuees were dispersed ingymnasium and classrooms so the phone duty staff had to go around to find someone if they recieved a phone call.
There were not many people who were able to bring a radio or television with them to the evacuation facility.
Most people didn’t bring anything with them so a newspaper distributed in the facility was the only source to obtain
any updated information. Television was very important to provide breaking news after the earthquake but there
was no cable or receiver for television signal in the gymnasium and it took a long time to install a television fromscratch. The on-site staff of the local government made a comment that cable for a television should have beenplaced in gymnasium where the primary evacuation area is.

{Heating}
Although there were many community halls and meeting places that had heaters and tatami mats, theevacuation site of Monzen-Nishi elementary school did not have a heating system.
still cold even though each person had a few blankets.
heat the whole gymnasium.

In the beginning, it was

Portable heaters were located but it was not enough to

The situation got better later on when a supporting vendor company offered

Styrofoam sheets to spread on the floor.

The supporting vendor company also installed a pipeline system todeliver hot water to heat the area up but it didn’t work for the people who stayed away from the pipeline.
The small floor windows were open for about 20 minutes in the morning for ventilation but it accelerated thecoldness.

50

Styroform sheets placed on the floor of gymnasium{Lighting}
All the lights were turned off at 21:00 in the gymnasium.

The on-site staff of the local

government brought a small desk light from home to use as indirect lighting for people who needed
to go use the toilet after the lights were turned off.
{Privacy and noise}
Some evacuees suffered from lack of sleep because of the noise of people coming and going fromthe toilet after the lights were turned off.
newspaper being delivered.

Also some people were woken up by the noise of theSince most of evacuees were elderly and were already familiar witheach other, they wanted to stay together in one area of gymnasium so privacy was not an issue.
Cardboard partitions were not used for privacy because they would take up too much space and theelderly people felt insecure if they could not see what was going on in the gymnasium.

After thenumber of evacuees in the gymnasium decreased, cardboard partitions were set up and allowed for
privacy when changing clothes.
{Outbreak of infectious gastroenteritis}
The cold and insufficient sanitary countermeasures were the most likely cause for the outbreak ofinfectious gastroenteritis.

Infectious gastroenteritis caused intense diarrhea and severe vomiting.

It took the younger people 3-4 days to recover and the elderly took a week to recover.
were isolated in a classroom on the 2nd floor to avoid the spread of the disease.

The patients

School buildings

and the gymnasium were sprayed for sterilization and people were instructed to wash their hands
when they went in and out the evacuation facility.
{Others}
A smoking area was designated outside the building and drinking alcohol was prohibited inside thefacility.

It was stressful because the media reporters often visited and sometimes they came inside

to take pictures without permission bypassing the limit of media coverage.

51

{Response to physically challenged people}
There was nobody who was in a wheelchair among the evacuees in Monzen-Nishi elementary school
so there was no difficulty in supporting.

The Wajima municipal government regularly kept track ofelderly residents in the district and had a map showing houses where the elderly people lived called“Map of elderly and disabled residents”.

The local government social workers visited thoseresidents using the map after the earthquake to ensure their health condition and if necessary escorted
them to hospital or evacuation site.
{Pre-stock of necessary supplies}
Emergency supplies such as water, food and medicine are centrally stocked in Wajima city so thatthe inspection and control of supplies are conducted effectively.
stored at each evacuation site.

Therefore, there are not supplies

The local government transported the necessary supplies to each

evacuation site and distributed them with the help of the Japan Self-Defense Force and local
volunteers.
have.

The prefectural government coordinated for the acquisition of supplies they did notSome vendor companies offered or volunteered to get the necessary supplies.

Supplies sent to evacuation facility③

Operation of evacuation site

{Structure of operation}
The on-site staff of the local government office played a role in conducting the primary operation of
the evacuation facility.

The school teaching staff supported with preparation for establishing thefacility, answering phone calls during the period of evacuation facility operation, and cleaning up
after the closure.

An operation office was not established but instead a corner of gymnasium with adesk and a chair performed an equivalent role.
It is assumed that the situation did not get to the point where an operational structure of evacuatedresidents needed to be established since the period of evacuation site operation was not very long.
{Accepting volunteers}
In Wajima city, volunteers were accepted at the disaster countermeasures headquarters.

5-9

volunteers had served for cleaning at Monzen-Nishi elementary school from 30 March to 2 April.
After 2 April, volunteer activities were limited in the evacuation facility due to an infectious disease
outbreak.
{Disaster prevention drill}
The Town of Monzen had never conducted a disaster prevention drill.
of Wajima City, they conducted their first drill.

Once they bacame a part

Since the residents were already familiar with theevacuation methods the evacuation went smoothly.
52

The establishment and operation of the Monzen-Nishi elementary school evacuation facility went smoothly
because of the appropriate responses by the evacuation site staff and the strong mutual relationship among the
local community.

However, the emergency site staff commented that it is important to create evacuation

facility operations manual and to facilitate a drill for evacuation facility operation.

④[4] Restart of school educational activities
A decision was made in the beginning of April to postpone the school enrollment ceremony thatwas originally scheduled to take place on 4 April to 9 April.

As a result the local government

thought of a prompt restart of school education and evacuated residents’ health first, evacuatedresidents were moved to the third sector hotel “View Sunset” on 5 April. Evacuated residents would
rather stay in a hotel which allowed the evacuation center to close smoothly..
Once the facilities were closed, they were immediately sprayed for sterilization under the supervisionof public health institute to ensure that no student got infected after school started.
Serving as an evacuation facility had a minimal impact on the school because of the previously
detailed actions.

(Reference)
Summary of the 2007 Noto Peninsula Earthquake i (Meteorological Office)
1. Date and time of occurrence: 25 March 2007 about 9:42
2. Location of the epicenter: Offshore of Noto Peninsula
3. Depth of the epicenter: 11 km
4. Magnitude: 6.9
5. Intensity at each location (Intensity 5 lower and above)
Intensity 6 upper: Nanao, Wajima, Anamizu cities in Ishikawa prefecture
Intensity 6 lower: Shiga, Nakanoto, Noto cities in Ishikawa prefecture
Intensity 5 upper: Suzushi city in Ishikawa prefecture
Intensity 5 lower: Hakui, Houdatsushimizucho, Kahoku cities in Ishikawa prefecture
Toyama, Namerikawa, Himi, Oyabe, Imizu cities and Funahashi village inToyama prefecture
Kariba village in Niigata prefecture
Damages caused by the earthquake in Wajima cityz

Deaths and injuries in Wajima city: 1 Death, 111 Injured (as of 18 June 2007)z

Building damage in Wajima city: Complete/half collapse 1,512 buildings (11.43% of total)
940 out of the 1,512 damaged buildings were in theMonzen district

53

54

II School facilities utilized as evacuation sites for the Niigata Prefecture Chuetsu offshore Earthquake
The Niigata Prefecture Chuetsu Offshore Earthquake, 16 July 2007
The earthquake occurred on 16 July 2007 at approximately 10:13 (Magnitude 6.8)
Maximum seismic intensity 6 upper (Nagaoka, Kashiwazaki cities Kariya village in
Niigata prefecture, and Iizunamachi in Nagano prefecture)【Summary of research in Kashiwazaki city】

Summary of evacuation siteszzz

Thirty two designated evacuation sites out of a total of 82 sites in Kashiwazaki city were school facilities.
Four out of the 32 sites were prefectural schools that establishers were different.
The average time a school served as an evacuation site was 23 days and the longest was 41 days.
Total number of evacuees at peak within the city was 11,000 persons. The maximum number of evacuees
displaced at the school was 4,000 persons.

Actual conditions of disaster prevention capability at the school designated as an evacuation facility□ Functions required for an evacuation facility-The primary evacuating location at school was the gymnasium as the primary location evacuees were
temporarily housed but other parts of the school were used for reasons other than living.
-Although damage to the toilets and sewerage system were minimal, the toilets were unusable because of a water
outage.
- Additional lighting devices were acquired because there was no light in temporary toilets.
-A temporary bath house was provided by Japan Self-Defense Force. They also provided a transportation
service for evacuees to go to take a bath at different locations offered for use in the surrounding area.
-Even though there was a shower room in gymnasium, it was not used by evacuees because the shower was notnormally used.
-Infrastructure was restored in the order of electricity, water, and gas. The restoration caused food distribution
to stop.
-Initally there was no telephone facility in the evacuation facility so the telephone in the teaching staff office wasused. This caused the staff to be busy with taking phone calls and messages.
-Since the earthquake occurred in the summer,, measures against heat were considered such as installment of air
conditioners and the distribution of drinks to prevent heat stroke.
-An outside transportation company was hired to sort and distribute supplies quickly because there was difficulty
managing the storage area.
□ Operation of the evacuation site
-Staff from the local government office operated the evacuation facility on a daily rotating basis. They werebacked up by the staff from both the prefectural and municipal government offices.
-The staff from the local government office was dispatched to operate the evacuation facilities at the prefectural
high schools.
-Since the operation staff worked at a daily rotating basis, people complained that it was hard to distinguish who
the operating staff were.
-The evacuated residents were not familiar with the operating staff so the self-help structure was not function
effectively at the evacuation site.
□ Impact on school education-The closing of evacuation sites was done primarily from the school facilities.
-The earthquake occurred just before the school’s summer vacation started. The evacuation sites werecompletely closed by 31 August when the school’s summer vacation ended. Therefore the impact on theschool’s educational activities was minimal.

55

Research on school facilities that were utilized as evacuation sites after The Niigata Prefecture Chuetsu
Offshore Earthquake

1. Summary of research
An earthquake of a 6.8 magnitude occurred offshore of the Joetsu/Chuetsu in Niigata prefecture on 16
July 2007. It had an observed intensity of 6 upper in Kashiwazaki, Nagaoka, and Kariba cities in the
Niigata Prefecture. The earthquake caused the most damage in Kashiwazaki city where 28,000
building collapsed. At the peak over 11,000 residents were forced to live in school facilities orcommunity centers. An investigation on how the evacuation facilities were utilized and its’ conditions
and responses was conducted. An inquiry survey was given to the local government disasterprevention representatives on 29 November 2007, 21 and 22 January 2008.
2. Location of evacuation sites in Wajima city and the process of how they were established(Facilities designated as evacuation sites)
The Kashiwazaki City community disaster prevention plan states that the athletic grounds and cityparks are designated as “evacuation sites” and public facilities such as schools and community centers
are designated as “evacuation sites”.
Public elementary and lower secondary schools are all designated as evacuation facilities.

After adisaster has occurred, the gymnasium is to be used as the primary location so that school education
doesn’t get influenced by the facility operations.

As for prefectural high schools and private collegesin Kashiwazaki city, the schools will be designated as an evacuation site upon making an agreement to
use them..

When establishing an evacuation site, municipal elementary and lower secondary schools

are primarily used.

If the demand exceeds the provided space then prefectural schools are used.

Chart 1 Facilities that are designated as evacuation facilities in the Kashiwazaki
community disaster prevention plan

Schoolfacility

Designated number

Municipal lower secondary school

39

Prefectural high school

8

Private university

350

Kindergarten

23

Community center

28

Other public facility

100

Community facility

1

Total

202

Emergency supplies in Kashiwazaki city such as food, water, blankets, and portable toilets are
dispersed in 7 different storages sites and schools. Generators and lighting equipment are stored ineach community center so that they can be inspected.
(Establishment of evacuation facility and the operational methods)
According to the manual for evacuation facility establishment and operation created by Kashiwazaki
City, the local government office staff who lives nearby the designated school or community center (2 staff
per 1 facility) will keep the keys to the facility.

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When an earthquake with intensity over 5 lower occurs at night or on the weekend, the staff
immediately goes to open the facility.
In principal, the operation of evacuation facility is conducted by the local government office staff.
The local government office staff that keeps the keys to the facility will inspect the safety of the facility
immediately after arrival and take control of the operation until another staff arrives for a shift change.
3. How evacuation facilities were established in Kashiwazaki City after the Niigata Prefecture
Chuetsu Offshore Earthquake
When the earthquake happened, 82 designated sites were designated as evacuation facilities.
There were 27 elementary and lower secondary schools, 4 prefectural high schools, and 1 publickindergarten used as evacuation facilities.

An additional 4 prefectural high schools in the city

wereturned into evacuation facilities at the request of the local government office through the prefectural
government disaster prevention section.

The establishment of evacuation facilities was initiated once

the local government office staff arrived at the prefectural high schools.

Other than generalevacuation facilities, 6 welfare evacuation facilities were established.

Two of the facilities were

established using one of the school buildings.
The residents of Kashiwazaki City had the option of evacuating to either a school or a community
center.

Many people had to change locations because the facility that they chose first was already full.

There were 11,000 residents at most evacuated to the facilities.
stayed in school facilities.

Out of the 11,000 evacuees 4,000

The most number of people in the school gymnasium was 500. The

closing of evacuation facilities at the school was facilitated preferentially while repairs were made to
the infrastructure and temporary housed were being constructed.
The average duration of an evacuation facility operation in the city was 25 days and the maximum
was 47 days.

Among these, the average duration at school facilities was 23 days and the maximum

was 47 days.

The rest of evacuees were moved to Japanese-style inns

rented by the local

government by 31 August when all the evacuation facilities were closed.

No. of Evacuees

Figure 1 Change in No. of evacueesin Kashiwazaki city
(Data summarized by Kashiwazaki local government)

Entire Kashiwazaki city

July 16
July 17
July 18
July 19
July 20
July 21
July 22
July 23
July 24
July 25
July 26
July 27
July 28
July 29
July 30
July 31
Aug
1
Aug
2
Aug
3
Aug
4
Aug
5
Aug
6
Aug
7
Aug
8
Aug
9
Aug 10Aug 11
Aug 12
Aug 13
Aug 14
Aug 15
Aug 16
Aug 17
Aug 18Aug 19Aug 20Aug 21Aug 22Aug 23
Aug 24
Aug 25
Aug 26
Aug 27
Aug 28Aug 29Aug 30Aug 31

All the school57

4. Actual condition of the disaster prevention capabilities of the school facility evacuation site(1) Safety of the facility
There are 39 public elementary and lower secondary schools and 8 prefectural high schools in
Kashiwazaki City that were designated as evacuation facilities.

Although there were no school facilities

extensively damaged by the earthquake, evacuation facilities at 2 elementary schools were closed due touncertainty of the safety of the school buildings.

One of the elementary schools had a possible floor

sinkage in gymnasium and another elementary school had aresulted in falling glass.

window frame distortion that could have

The evacuation facilities were closed between 6 and 10 days after earthquake.

(2) Functions required for an evacuation facility1) Spaces to use as evacuation facility
The gymnasium was utilized for evacuated residents at schools that were evacuation facilities A
facility operations office, a small spaces for the school nurse, staff room for evacuation operations, a
break room for volunteers, a changing room and a breast feeding were needed in addition to atemporary living area for evacuees.

Room assignments were determined depending on conditions

such as easy access to the gymnasium or outdoors, availability to compartmentalize rooms so regularschool activities would not be effected and so on.

The gymnasium and the surrounding classrooms

were utilized at a majority of the designated schools.

Rooms that were assigned included a specialclassroom that had a lot of space available, a conference room, and a meeting room that did not havedesks or chairs inside.
A place to use as storage space for food and a rescue supplies where they could be properly
maintained and accounted for was also needed.

Since the supplies were located in the hallway or on

the gymnasium stage, some of the supplies were lost.
were not staying in the evacuation site.
were established.

Supplies were provided to local residents who

Therefore, to avoid confusion, 2 separate distribution points

Furthermore, outside areas such as the school ground and schoolyard were used

for temporary toilets and a bath house, as well as for the Japan Self-Defense Force to support withcooking and food distribution.
and out and for storage.

An outside area with a roof top was used to transport supplies both in

The operation staff at the evacuation site sent a request through the local

government disaster prevention section to the school principal who is also the chief of administration
for use of these spaces.

Gymnasium being utilized as
evacuation facility
582) Capability of necessary facilities[1] Toilet and bath(Toilet)Most of the school gymnasiums in Kashiwazaki City have toilets inside but toilets in some of theschool gymnasiums were out of order due to either a lack of water or damage to the sewage

system

Evacuees used the toilets without water by using water brought from the swimming pool or a water
storage tank.

Toilets that had damaged sewer pipes were not used to prevent the backflow of sewage.

The sewage system was repaired quickly by using alternative plumbing. This was the result of a lesson
learned from The Mid Niigata Prefecture Earthquake in 2006 where the repair of the sewage system wasdelayed.
The local or prefectural government coordinated with outside companies and leased 5-6 toilet stalls at
each evacuation facility. Western style toilets were requested but there were not enough western style
toilets to cover all the evacuation facilities at first.

A toilet was located inside in a corner of the

gymnasium or at the entrance of the building to provide easy access for disabled people.
were leased to provide lighting for the toilet stalls that did not already have it.
prepared hand-carrying toilets but the evacuees would not use them.

Alley lights

The local government

There was no problem for theevacuees to go outside to use the toilets since it was summer time.
(Bath)The Japan Self-Defense Force (JGSDF) deployed a temporary bath house at 27 school grounds in thecity.

They also provided a transportation service to facilities that offered evacuees a place to take abath.

Since it was summer time, it was possible to wipe the body with a wet towel.

The frequencyof the shuttle service to the local accommodation facilities was fewer when compared to the Mid
Niigata Prefecture Earthquake.
gymnasium.

Not all of the schools in Kashiwazaki City had a shower room inSome school only had showers in the swimming pool building.

Even though there wasa shower room in the gymnasium, it was not frequently used because the evacuees were not familiar
with how to use it.

Temporary bath that JGSDF deployed59

[2] Infrastructure
Because of the earthquake, 23,000 households suffered from power outages, 40,000 households suffered fromwater outages, and 30,000 households suffered from gas outages in Kashiwazaki City.

Electricity wascompletely restored on 18 July (2 days after earthquake) and water was completely restored on 4 August (19 days
after earthquake).

Gas was the last utility to be restored and it was completely restored on 27 August.

The gastook a long time restore because each household had to be visited by a gas engineer. The engineer had to open thegas cock to get it to work while simultaneously inspecting to make sure that there was not a gas leak.

The

complete recovery of infrastructure was the reason food was not distributed to anyone but evacuees.
[3] Methods of transmitting information
After the earthquake, there were no problems with telephone lines.

The internet cables were also not damaged

so the on-site operational staff was able to send reports via email.
Because there is a nuclear power plant in Kashiwazaki City, each school and household is equipped with awireless receiver for public announcements which the local government used to transmit announcements after theearthquake. The announcements were also made through outside speakers but they were hard to hear due to thenoise caused by the Japan Self-Defense Force and the mass media.

Announcements from the local government

were also made by the local FM radio station as needed.
Communication between the evacuation facility operations staff and the local government countermeasures
headquarters was made via private cellular phones.

There was no common telephone or FAX in the gymnasium,

so various kinds of phone calls came in to the telephones in the school teaching staff office.

Since the school

teaching staff office and gymnasium are not located together, the staff was busy taking phone calls and conveying
messages. Later, telephone capability was established in the gymnasium.
Community centers and the local government office were equipped with intranet so they could communicate
with each other. At this earthquake, the intranet was not used because the staff that the local government sent forsite operation had not been trained on how to use the intranet and therefore did not know how to use it.
[4] Indoor environment{Coping with the heat and an appropriate indoor environment}
The earthquake occurred in summer so counteracting the heat was a major concern.
It was difficult to find any large air conditioners to lease quickly because they were already leased to campaign
offices for the upcoming election. There were 96 air conditions (200V) donated by U.S. Forces. The air conditioners
were installed in the evacuation facilities including Kashiwazaki elementary school.

The temperature control was

carefully considered because of the different body temperature between young and elderly people.
The air conditioners were not enough to control the heat so several ice pillars (50cm X 20cm X 20cm) werelocated in each evacuation facility. The ice pillars were not very effective in controlling the heat but they
contributed a visual influence and were utilized to cool drinks.
to protect against heat stroke.

Chilled gel sheets and cool drinks were distributed

Cloth curtains were installed over the windows in gymnasium to provide shade.

A local vending company donated partitions so that people could have some privacy but, they were not usedbecause it would cause poor air circulation.
After the Mid Niigata Prefecture Earthquake 3 years ago, evacuated residents who drove to the evacuation facility andstayed in their vehicle developed pulmonary thromboembolism (also known as the economy class syndrome).

This timethe earthquake occurred in the summer so there was no problem for the people to get outside of their cars to walk around.

60

(Countermeasures against sanitary and health problems)
Because it was summer a great deal of attention was paid to ensure that the facility was sanitary.

A largeamount of disinfectant donated for use and was distributed to each evacuation facility.
There was an issue with the sewage giving off a bad odor.

Cooking by Japan Self-Defense Force andvolunteers caused drainage and waste to soak into the ground and give off a bad odor.
on the ground was removed.

Over time, the sandTrash containers with a lid, strainers, and buckets were provided to take care of

the leftover food.
At some evacuation sites, screen windows and mosquito-repellents were used to block mosquitoes andflies.
(5) Response plan for physically challenged people
Initially the physically challenged people were evacuated to a designated evacuation facility.

Several days

after the earthquake, a welfare evacuation facility was established to better care for the physical symptoms,
physical abilities, and the life style of the physically challenged.

The welfare evacuation facility was

operated by outside companies that provided a nursing service requested by the local government.

The

welfare evacuation facility was established within the school property of Kashiwazaki elementary school andKashiwazaki prefectural high school.

(6) Acquiring and stocking supplies(Food)The Japan Self-Defense Force cooked and distributed food using their own equipment so that the school
kitchen did not have to be used.. Hardtacks were the first food to be distributed then bread and rice balls. A
box meal was not provided because of concerns with sanitation during the summer.

At some evacuationsites, the first meal was delivered at about 23:00.
Food was also provided to local residents who were not staying in the evacuation facility. Since food was
distributed to residents both inside and outside shelter, this caused problems with distribution.

Food was sent to evacuation faciity61

(Acquisition and distribution of supplies)
The general public sent supplies to the evacuation facilities even though an announcement made on theinternet told them the supplies would not be accepted.

More storage areas were set up as the supplies

increased and 15 storages areas were eventually set up.

Since expeditious sorting and distributing supplies

was not possible, the local government delegated the job (including shipment as necessary) to an outsidetransportation company. As a result, the distribution of supplies went smoothly, but balancing supply anddemand was difficult. There were complaints that different kinds of supplies were available at different
evacuation sites.

The Japan Self-Defense Force was completly in charge of the delivery and distributionof supplies at each evacuation facility.
3) Result of inquiry survey on necessary capabilities
The Board of Education in Kashiwazaki city conducted an inquiry survey on capabilities that anevacuation site needed to have. The survey was given to the school staff at 22 public elementary andlower secondary schools where an evacuation facility was actually established. The most common
response was that telephones and a FAX needed to be installed in the evacuation facility. Other
common responses about what capabilities were necessary were a television, television cables, andin-house generator.

Figure 2

Required functions for evacuation facility (Summarizedby
Ministry of Education, Culture, Sports, Science, and Technology based on
research by the Kashiwazaki city board of education)

校数

Telephone and FAX for evacuation facility
TV, TV cable, radio
In-house power generator
Heating/cooling system
Western style toilet
Direct water supply for evacuation facility
Lighing at temporary toilet
ShowerBulletin board

Other request：
Elimination of stairs at entrance, power outlet, small room/partitions, separation between school facility and gymnasium,tatami sheet, net window, dining table(3) Operation of evacuation facility
The staffs from the local government office will operate the evacuation facility according to the community
disaster prevention plan in Kashiwazaki City.

The staffs went to the evacuation facility closest to their hometo establish the evacuation facility immediately after the earthquake.
earthquake this time.

The whole city was damaged by the

Therefore a total of 82 evacuation facilities were established and it took a large numberof local government staffs to conduct the operation. From the second day, the operation of evacuation
facilities

was facilitated with the cooperation of prefectural government staffs.

worked 24-hour shifts.

Local government staffs

At some facilities, a briefing was given by the chief of operations, teaching staff,

health nurse, and volunteers at shift change.

Since the operation staff rotated on a day-by-day basis, people

complained that it was hard to distinguish who the operating staffs were.

62

(Participation of school teaching staff in the evacuation facility operation)
Immediately after the earthquake, the school teaching staff ensured the students’ safety, psychologicalcare, and school route safety.
site operation.

The school staff took a stance of supporting the local government staff in

There was a necessity to enter the school teaching staff office to use the telephone andother devices so the school staff, including the principal and the vice-principal, stayed on 24 hour
stand-by to respond to the requirement.

As the operation of the site headed in the right direction, theteaching staff’s overnight shift was gradually decreased.
(Evacuation facility at schools of different establisher)
It was the first time that prefectural high schools were used as evacuation facilities.

The prefectural

high schools were utilized for the accommodation of volunteers (Kashiwazaki Tokiwa high school) andas the cantonment area for the Japan Self-Defense Force (Kashiwazaki Industrial high school).
local government and the prefectural high school rarely communicated on a daily basis.
how to communicate while the evacuation site was being established was confusing.
evacuation site was

The

Figuring out

Once theestablished, there was no significant confusion because the local government

staff were sent to take the responsibility of operating the site.
(Health care administration)
The prefectural health institute, being enhanced with health nurses from different prefectures, sent 2
health nurses to each evacuation facility.
psychological care.

The health nurses worked on the prevention of injury and

The prefectural government also formed medical teams to visit each evacuation

facility and the local community.
stroke and mental diseases.
evacuation facility) and

The team focused on finding pulmonary thromboembolism, heat

The team had their operational headquarters at “Genkikan” (welfare

small bases at several locations in the city that local residents could visit.

The conference room at Kashiwazaki elementary school was one of the bases.
(Self-governed disaster prevention organizations)
The ratio of citizens organizing their own disaster prevention group immediatly after the earthquake was
41%.

Activities were all different by the group.

It was when local population started to organize disasterprevention groups by each community with subordinate neighborhood associations underneath to work on
disaster prevention activities locally by taking the experiences from the Mid Niigata Prefecture Earthquake.
The administrative staff at community centers, who usually communicate with the residents on a daily basis,
participated in the operation of evacuation facilities.
disaster prevention organizations went smoothly.

The facility operation joined by the self-governed

The facility operation at schools were not able to utilize

the self-governed disaster prevention organizations very well because there were a large number of people atschool facilities and the local residents were not familiar with the local government staff who changed shifts
every 24 hours.

(Accepting volunteers)
The social welfare council established a volunteer center to manage the reception and dispatch ofvolunteers.

There were a decent number of people who went directly to the evacuation facilities toprovide help so it was difficult to figure out the actual number of volunteers and their activities.

For

the reason the volunteer center had a difficult time obtaining information on which evacuation center
needed volunteers.
not have enough.

There were some evacuation facilities that had too many volunteers and others did
63

(Coping with the mass media)
The influence of mass media is important in regards to providing various kind of information to abroad area.

It plays an important role but as a result of broadcasting only certain evacuation facilities,

rescue supplies were only sent to the evacuation facilities the media covered.

Complaints were madeby the other facilities.
In general, taking photographs from inside of the evacuation facilities was forbidden but some
reporters did it anyway.

Therefore the basic rules were made as “To take pictures of the back ofevacuees is permitted but permission is required when taking a picture of face”.

Taking pictures fromthe entrance was allowed but taking pictures from inside the facility was off limits”(4) Impact on school education
The earthquake occurred just before the start of the school’s summer vacation.
were completely closed by 31 August.
minimal.

The evacuation sites

Therefore the impact on school educational activities remained(The Mid Niigata Prefecture Earthquake occurred on October 3 years ago and it affected

physical education classes)
The closure of evacuation sites was done primary from school facilities.

As the number of

evacuees decreased, the remaining evacuees were moved from the school to the community center.
The local government rented rooms in Japanese style inns for the last of the evacuees to move to so thatthe evacuation centers could be completely closed on 31 August.
August.

Schools began to restart on 27

The starting ceremony for the second semester was put ahead a few days at some schools forthe start of summer vacation.

Utilized buildings were returned by recovered once the evacuation

facilities had been closed and The Japan Self-Defense Force redeployed.

Completely restoring theschool ground as it was before the earthquake was difficult because heavy vehicles drove in and out thearea.

The ground tends to puddle after rain in the wake of the earthquake.

64

5. Summary of schools where the inquiry survey was conducted(1) Kashiwazaki elementary school evacuation facility
Address: 1-88, Gakkoucho, Kashiwazaki-shi
Summary of the facilities utilized: School building Reinforced concrete 4-story building, 7,629 ㎡ Built
in 1973 (Seismic reinforcement in 2002)
Gymnasium

Steel structure one-story building, 1,261 ㎡
Built in 1975 (Seismic evaluation in 2000 with aresult of IS-score 0.8, q-score 0.5)

Duration of evacuation facility operation: 39 days (16 July to 23 August)The maximum number of evacuees:

501 persons (16-17 July)

Damage condition by earthquake:
Mild (Damage to the expansion joint and etc)
Distinctiveness of evacuation facility: Located in the center area of downtown. The building issurrounded by the Daiichi lower secondary school, Kashiwazakihigh school city hall and other public facilities. The evacuation
facility that was covered frequently by the mass media. The
school is designated for use as a pre-positioned storage site in thecommunity disaster prevention plan. A welfare evacuation
facility was co-locatedNo. of evacuees

Figure 3 Changes in the number of evacuees at Kashiwazaki elementary school

Closure ofevacuative
facility at
Kashiwazaki
elementary
school on the
23rd.

Completeclosure ofevacuation
facility

Conditions at evacuation facility
The school was unlocked by the vice principal who lives nearby and was the first person on the scene. The local
government staff in charge of establishing the evacuation facility arrived five minutes later and 2 local residents had
already evacuated to the school. The local government staff prepared the facility and the school vice-principal dida safety inspection. Damage to the school buildings was mild but a majority of lockers were broken.
The gymnasium was used for evacuees’ living space. The school dispensary was used as a counseling room.
The conference room was provided to the Japan Red-Cross to use as an aid station and a nurse station. The musicclassroom and library were used as break rooms for the operational staff and volunteers. The school parking lot
was used by The Japan Self-Defense Force for the cooking and distribution of food and as a temporary bath house.
Pilotis was used for supply storage and distribution. The school ground was used for The Japan Self-Defense
Force to park the vehicles.
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Utilization of pilotis

Counseling room for easing minds

On the first floor of the north school building a children’s club and welfare facility for the aged were
set up using excess classrooms.

There were 10-16 beds were set up in these rooms and musicclassroom #1 for use as a welfare evacuation facility.

The Meisho private kindergarten was

temporarily closed due to the damage caused by the earthquake so the playroom and music classroom#2 were offered to use as a temporary kindergarten. There was also utilized as an entrance for thewelfare facilities.
Meeting room #1 on the second floor was offered to ensure that the evacuated children have rooms
to play in and study during summer vacation. A temporary living facility was established for 2 weeks
with help from volunteers from The Jochi Educational University and local parents.
There were western style toilets in the mens and womens restroom, and also one for disabled people
in entrance hall.

There was no damage to the toilets or the sewerage system but water from theswimming pool next to gymnasium was used due to a water outage.
to 20 stalls the next day.

Temporary toilets were expanded

Western style toilets were set up 4-5 days after the earthquake.

Hand

sanitizers were placed outside of the temporary toilets.

Hands sterilization area

Temporary toilet

To cope with the heat, 6 air conditioners donated by U.S. Forces were installed in the gymnasium
and window curtains were installed for shade.

66

Swimming
Pool

Trash dump
Temporary
toilets

Water from swimming
pool was used for toilet

Temporary bath
JGSDF Cooking
and food
distribution

Welfare evacuation
Evacuation
facilityJGSDF watersupplyJGSDF Parking

facility

Supply delivery

Figure 4 Layout of the evacuation site at Kashiwazaki elementary school

１

Spaces for temporary bath and food
distribution set up by JGSDF in north parking

JGSDF vehicles on the school ground67

67

Path to temporary toilets

Temporarybath house

Temporary
toilets

Welfareevacuation
facility Entrance to welfare
evacuation facility

Hands sterilization areaClass
preparation
room

Welfarefacility forthe elderlyChildren’sclub

Welfareevacuation
facility

Supply storage

GymnasiumMusicclassroom #1

Evacuation facility(Living space)Welfare evacuation
facility staff breakroom

Japan Red-Cross
Health nurse
officeClassroom for easing
children’s mninds

PilotisEntrance ofevacuation
facility

Food distribution, supply
reception and distribution
Figure 5 Layout of Kashiwazaki elementary school evacuation site (1st Floor)

Supplies pile up in pre-positioned storage

Supplies piled up in the hallwa

68

Meisho Kindergarten
Temporary classroomCounseling
room
Music
classroom #2

Play
room
Library

Reading room #1

Temporary day careroom for chieldren

Break room forvolunteers
Reading room #2

Life study
activities
room

Figure 6 Layout of the evacuation facilities, 2nd floor of Kashiwazaki elementary school building

Temporary classroom of Meisho kindergarten69|l(2) Evacuation facility at Futada elementary school
Address: 1718 Choryo, Nishiyamacho, Kashiwazaki-shi (former Nishiyamacho, merged in 2005)
Summary of the facilities used:

Gymnasium

Steel structure one-story building, 1,024 ㎡
Built in 1992 (New Seismic Standard qualified)

School kitchen

Steel structure one-story building, 389 ㎡
Built in 1992 (New Seismic Standard qualified)Duration of evacuation facility operation: 42 days (16 July to 26 August)The maximum number of evacuees: 500 persons (16 July)
Damages done by the earthquake: Mild (Uneven floors and etc)
Distinctiveness of evacuation facility: Located in the center area of former-Nishiyamacho, outskirts of
Kashiwazaki city, about 400m from Nishiyama Station on JR Echigo Line. There is no community
center in the area. Nishiyama lower secondary school which is the closest designated evacuation
facility was damaged and unable to use. Even though Nida elementary school is located in theoutskirts of Kashiwazaki city, many residents came to evacuate.

No. of evacuee

Figure 7 Changes in the number of evacuee at Futada elementary school

All theevacuation
facilities
wereclosedJuly 16
July 17
July 18
July 19
July 20
July 21
July 22
July 23
July 24
July 25
July 26
July 27
July 28
July 29
July 30
July 31
Aug 1
Aug 2
Aug 3
Aug 4
Aug 5
Aug 6
Aug 7
Aug 8
Aug 9
Aug 10Aug 11
Aug 12
Aug 13
Aug 14
Aug 15
Autg16
Aug 17
Aug 18Aug 19Aug 20Aug 21Aug 22Aug 23
Aug 24
Aug 25
Aug 26
Aug 27
Aug 28Aug 29Aug 30Aug 31

Closure ofevacuation
facility at
Futadaelementary
schoolConditions at evacuation facility
A school teacher who lives near-by arrived first and unlocked the school.

The school principal arrived

one hour later.
The gymnasium was used for evacuees’ living space and the lunch room was used as dining area andplace to store supplies.

The open entrance between the gymnasium and the lunch room was used asa distribution site for community residents who were not staying in the evacuation facility to separate
them from the evacuees. .

The meeting room next to the gymnasium was used to store medical

supplies such as hand sanitizers and medicine.
cooked and distributed food.

In the front yard, The Japan Self-Defense ForceThe JSDF set up a temporary bath house and tents (about 100 tents) on

the school grounds.
70

Look of gymasium

Tents in the ground

Entrance ofevacuation facility

Look of lunch room

Futada elementary school uses purification cistern merger processing system for drainage.

The

purification system did not get damaged but when the water in the storage tank was gone the toilets
were not usable due to a water outage.

Therefore use of the toilet was limited to just thepeople and water from the swimming pool was used.

disabled

When the water supply was restored on 23 July,

the toilets in the gymnasium became usable.
Temporary toilets were installed before nightfall after the earthquake and cleaned once every otherday.

The temporary toilets were not equipped with lights.

be installed in the temporary toilets..

It took a long time to contract for lights toInitially a light bulb was set up using in-house generator andlater alley light was leased to light the whole toilets area.

Hand-carrying toilets were not

pre-positioned so they were obtained afterwards as a part of rescue supplies.
The Japan Self-Defense Force set up a temporary bath house on the school grounds on 19 July. In
the beginning, it was separated by genders but later the usage was separated by time schedule. Water
for the bath house was taken from Bessan River flowing nearby the school. There was left overbottled water from rescue supplies so it was used for face washing.

71Temporary bath that JGSDF deployed

Immediately after the earthquake, a generator was contracted for temporary use on the first night due toa power outage.

On the second day, a generator vehicle arrived and electricity was backed up only inthe school building.
The disaster prevention public administration radio equipped in the school teaching staff office wasbroken.

The radio was installed in the teaching staff office (for the school staff) and the gymnasium(for the evacuation site) after 3-4 days.

Announcements that were transmitted through the public

administration radio were also posted on the bulletin board as necessary.
Communication with the local government disaster prevention countermeasures headquarters wasdone initially by using the telephone in school teaching staff office.
evacuation facility were installed in the gymnasium on 22 July.

Temporary telephones for the

The school television was set up in

Cool air is blowing into gymnasium from air conditioning vehicle

The evacuation facility operations were conducted primarily by the local government office staff.
From the second night, “Futada elementary school evacuation facility planning meeting” was organizedby the teaching staff, the person in charge of evacuation facility operation, the health nurse, andvolunteers. They discussed the baths, toilets, food and other situations in the facility. The meeting
was held daily and continued for 9 days.

72

Reception of evacuation facility

Look of volunteers cooking

Parking area for
JGSDF vehicles

JGSDF tent area
Water fromswimming pool
was used for toilet

School groundAir conditioning
vehiclesTemporary bath
Evacuation
facility

Water from Bessan
river was utilized
Supplyloading

JGSDF foodcooking anddistribution

Temporary
toilets

Figure 8 Layout of The Futada elementary school73

Look of JGSDF cooking

Cooling vehicle
Evacuation facility(Living space)

Cooled air is blowing into
the 2nd floor of gymnasium
through tube

Temporary bath
Gymnasium

Health nurse
break room

Medical supply storage
Evacuation site reception desk
Entrance ofevacuation facility

Lunch room

Temporary toilets
Supply store facility
Supply distribution area tothe evacuees

Figure 9 Layout of The Futada elementary school evacuation facilities

74

(3) Daisan lower secondary school
Address: 1-2-20 Shin-Akasakacho, Kashiwazaki-shi
Summary of facilities used:

Steel structure one-story building, 1,300 ㎡

Gymnasium

Built in 1990 (New Seismic Standard qualified)Martial Arts training hall

Steel structure one-story building, 450 ㎡
Built in 1998 (New Seismic Standard qualified)Duration of evacuation facility operations: 47 days (16 July to 31 August)The maximum number of evacuees: 179 persons (17 July)
Damage caused by the earthquake: None
Distinctiveness of evacuation facility: Residents from a broad area where the evacuation directive
was ordered were staying here.

This was the only school thatwas used as an evacuation facility until 31 August with thelongest duration of operation for 47 days.
Figure 10 Changes in the number of evacuee at Daisan Lower Secondary school
No. of evacuee

July 16
July 17
July 18
July 19
July 20
July 21
July 22
July 23
July 24
July 25
July 26
July 27
July 28
July 29
July 30
July 31
Aug 1
Aug 2
Aug 3
Aug 4
Aug 5
Aug 6
Aug 7
Aug 8
Aug 9
Aug 10Aug 11
Aug 12
Aug 13
Aug 14
Aug 15
Autg16
Aug 17
Aug 18Aug 19Aug 20Aug 21Aug 22Aug 23
Aug 24
Aug 25
Aug 26
Aug 27
Aug 28Aug 29Aug 30Aug 31

Closure ofevacuation
facility at
Daisan lower
secondaryschoolConditions at the evacuation facilities:
School club activities were going on and teachers were present when the earthquake hit.
The gymnasium and martial arts room were provided for evacuees’ living space.
gathered in groups by respective districts.

The evacuees

As the number of evacuees decreased, evacuees who had

been staying in the gymnasium were all moved to the martial arts room. This was so that the students
could use the gymnasium for their club activities.

The martial arts training hall had been used tounload rescue supplies so it was better to allow the evacuees to continue to stay here.

Air conditioners

were set up and the room was separated in several areas using tatami mats for evacuees to gather in one
place by district to reduce discomfort.

Moving the evacuees to the martial arts training hall wascompleted by 2 August.
There was no damage to the toilets or the sewerage system but due to a water outage, toilet water
was delivered from the swimming pool by a bucket brigade. There was one lame evacuee but there
were no western style toilets in the gymnasium. The toilet (western style with heated seat and bidet
function) for the teaching staff located in the school building was offered for the disabled resident.
There were 6 Japanese style and 3 western style temporary toilets set up.

Since the western style

toilets only had a cover around the toilet for privacy, they were not used very often.

75

Look of temporary toilets setup

Look of temporary western style toilets setup

There was no power outage and water recovery was made promptly because a water purification
plant was located next to the school. Initially the telephone in the school teaching staff office wasused and later a temporary telephone was installed in the gymnasium. However, the FAX in theteaching staff office had to be used until the evacuation facility was closed. A cellular phone company
offered some cellular phones for the use during evacuation facility operations. The Japan
Self-Defense Force arrived on the 17th and their supplies were also delivered. They began cooking
and distributing meals on the 18th.

Swimming pool

Evacuation
facility

Water from swimming poo
was delivered to use forflushing toilets

Gymnasium
Temporary toilet
Supply delivery

North building

JGSDF Cooking
and food
distribution

Courtyard

South building

Figure 11 Layout of evacuation facilities at Daisan lower
secondary school

Look of JGSDF cooking

76

Gather all the evacuees into themartial arts training hall

Entrance to temporary
toilets

Gymnasium
Martial arts training hall

Temporary phones
Installed pay phones
Temporary western
Entrance ofstyle toilet
the evacuation
facility
Temporary toilets

Multifunctional toilet (washlet)
Teaching staff toilet was available

Figure 12 Layout of evacuation facilities at Daisan lower secondary school77

(4) Kashiwazaki high school evacuation facility
Address: 4-1, Gakkoucho, Kashiwazaki-shi
Summary of the

facilities used:

Gymnasium

Steel structure two-story building, 5,624 ㎡
Built in 1962 (Old Seismic Standard qualified) (Seismic
reinforcement in 2004)

Seminar house

Wooden two-story building, 450 ㎡
Built in 1992 (New Seismic Standard qualified)Duration of evacuation facility operation: 37 days (17 July to 17 August)The maximum number of evacuees: 172 persons (18 July)
Damage caused by the earthquake: Mild (cracks in the walls, damage to the expansion joints, and damage tothe water storage tank)Distinctiveness of evacuation facility: This school was one of the prefectural high schools that was used as anevacuation facility.
town.

The school is located in the center area of theCity hall, Kashiwazaki elementary school and Daiichi lower

secondary school are neighboring.

The seminar house located within

the school property was used as a welfare evacuation facility.
No. of evacuee

Figure 13 Changes in the number of evacuee at Kashiwazaki high school

All the evacuation facilities
were closed

July 16
July 17
July 18
July 19
July 20
July 21
July 22
July 23
July 24
July 25
July 26
July 27
July 28
July 29
July 30
July 31
Aug 1
Aug 2
Aug 3
Aug 4
Aug 5
Aug 6
Aug 7
Aug 8
Aug 9
Aug 10Aug 11
Aug 12
Aug 13
Aug 14
Aug 15
Autg16
Aug 17
Aug 18Aug 19Aug 20Aug 21Aug 22Aug 23
Aug 24
Aug 25
Aug 26
Aug 27
Aug 28Aug 29Aug 30Aug 31

Closure of evacuation
facility at Kashiwazakihigh school on the 17th

Conditions of evacuation facility:
When the earthquake hit there were 10 teachers, including the vice-principal that were present tosupervise the club activities.

Upon arrival of 2 staff members from the local government office, theevacuation facility was established.
Part of ceiling panels in the gymnasium were loosened by the quake. There was a net being put up
underneath the ceiling so there the use of the facility as an evacuation site was not interuppted. Until
the public government order to establish an evacuation in the late afternoon, the school staff had been
conducting the safety inspection of school buildings.

Slipped ceiling board

Net being put
underneath the ceiling

Ceiling net and loosen board in gymnasium
78

The gymnasium (the second floor of the gymnasium building) was used for evacuees’ living space,pilotis (ground floor of the gymnasium building) was used as to store supplies and the school yard wasused to cook and distribute food.

A smoking area was designated in the pilotis at the request of theevacuees.
A seminar house is located within the school property.

The seminar house is a shared facility withthe other prefectural high schools to use for a club training camp.

A welfare evacuation facility wasestablished at the seminar house on 20 July per the request of the prefectural government.
There was no damage at the toilets or the sewerage system but due to a water outage, the use ofwater facilities was banned and 4 temporary toilets were set up instead.
Fans were set up and utilized to keep the room cool because an air conditioner could not be installedon the second floor of the gymnasium.

Since the gymnasium is higher than the ground and thelocation was close to the ocean, it was relatively drafty.

JGSDF Cooking
and distribution
Evacuation
facility

Gymnasium

Temporary toilets

Welfare evacuation
facility
Seminar house

Figure 14 Layout of evacuation facilities at Kashiwazaki high school79

Evacuation facility(living space)

Supply storage facility

Entrance to evacuation
facility

Toilets in gymnasium

Figure 15 Layout of evacuation facilities at Kashiwazaki high school(Reference)
Summary of the Niigata Prefecture Chuetsu offshore Earthquake in 2007 (Meteorological Office)
1. Date and time of occurrence: 19 July 2007 at about 10:13
2. Location of the epicenter: Offshore of Jo-Chuetsu, Niigata prefecture
3. Depth of the epicenter: 17 km
4. Magnitude: 6.8 (Estimate)
5. Intensity at each location (over Intensity 5 upper)
Intensity 6 upper: Nagaoka, Kashiwazaki cities, Kariba village in Niigata prefecture, andIizuna town in Nagano prefecture
Intensity 6 lower: Joetsu, Ojiya cities, Izumozaki town in Niigata prefecture
Intensity 5 upper: Sanjo, Tokaichimachi, Manami-Uonuma, Tsubame cities in Niigata prefecture
Nakano, Iiyama cities, and Shinano town in Nagano prefecture
Summary of the damages caused by the earthquake in Kashiwazaki city (as of 1March 2008)z

Human damage in Kashiwazaki city: 14 Deaths, 1,664 Injuriesz

Building damage in Kashiwazaki city: Completely collapsed 1,113 households
Large-scale half collapsed 675 buildings
Half collapsed 4,372 households
Partially destroyed 22,583 households

80Location of school facilities used as evacuation facilities
Schools used as evacuation facility
Schools on-site survey was conducted
Other schools

81

82

Part II

Reference Materials（Reference material 1） Classification and definition of evacuation facility in community disaster prevention plan
Local
government

Tokyo

Shizuokaprefecture

Year ofrevision

Name

Definition

Standard and concept of designation

Evacuation
site

Open spaces such as large-sized park,
green space and etc that have a necessary
dimensions to protect life of evacuees
from extended fires or other threats thatare occurred as a consequence of alarg-scale earthquake.

・Evacuation to the designated site is instructed by themayor of respective ward based on the district assignment
plan which was formed by the assumption of people’s
rush after disaster・Evacuation site is required tohave 1 ㎡ per person in principal. That is available
space for a resident considering radiant heat from the fire.
The space is figured out by taking the projected numberof evacuees with the size of the designated site after
excluding buildings based on the district assignment plan.

Temporarycollection
pointSpaces where people can be safe such as
school ground and precincts of temple
and shrines. Local residents can meet
temporarity to see how the situation
changes, or residents get together once
before proceeding further evacuation.

Temporary collection points require enough space tosecure residents’ safety, and the place shall be within theresidents’ livelihood sphere such as school ground,
precincts of temple or shrine, park, green park, playground of apartment complex

Evacuation
facility

Conctructions such as school buildings
and community centers to offer atemporary safe environment to people
whose houses were subject to damage ordestroy by the blaze, or whose houses arein danger of getting damaged.

a. It is designated by neighborhood association or school
district. b. Constructions (school, community center) thatare seismic reinforced and fire preteced, and steel framed
are utilized c. Average number of evacuee in a room is 2
persons per room of size 3.3 ㎡.

Secondaryevacuation
facility(Welfareevacuation
facility

Facilities such as social welfare facility
or community center are designated by
local governments to temporarily accept
people who have difficulties staying at
home or require medical or nursing carebecause of the damages after earthquake.

Utilizing constructions shall be seismis resisting,renovated for fire and barrier-free.

Broad area
evacuation
site

Broad area that enables both to ensure
evacuees’ lives from fire disaster inurban area and to have equipments
established in the area to support withcapabilitie of rescue and information
provisiona. It shall be areas where there is no threat of massive firein urban district, tsunami, or landslide. b. Distance to theevacuation site shall be within 3km. c. Open area
dimension shall be over 10,000 ㎡ d. Space shall be morethan 2 ㎡ per person.

In evacuation required district, it is anintermediary point before getting to abroad evacuation site. The purpose of
locating this facility is to ease people’sanxiety and confusion and also to provide
guidance for evacuation and necessary
information. Disaster prevention
storage and aid station are set up. It
shall be the center of rescue activities in
the community.
Indoor place to accept people who lost
living space due to disaster. The placeis also used as a base of rescue and firstaid activities.

a. Location half way to a broad area evacuation site. b.
Lengh of evacuation is within 1km. c. It has enoughspace more than 2 ㎡ per person.

2007

FY2005

Temporaryevacuation
point

Evacuation
facility
Evacuation
facility forthephysicallychallenged
Broad area
evacuation
site

Kobe city

FY2006

Temporaryevacuation
site

Indoor facility to accept elderly andphysically challenged people who needspecial care and are determined to havedifficulties staying in the regular
evacuation facility.
Open spaces that have a necessary
dimensions and structures to protect lifeand health of evacuees from massive fireoccurred in urban district as aconsequence of a larg-scale earthquake.
Emergency temporary evacuation site
immediately after earthquake
Collecting evacuation facility after all therisk factors are cleared after earthquake.

Collecting
evacuation
facility

83

The facility shall be constructed for disaster resistance.
It shall have a cooling facility, be available to attachcooking function or be capable of food carrying-in
service. It shall be able to provide about 3 ㎡ per person
and capable of accepting more than 100 people.
Social welfare facility, etc

1. In principal, public area with decent open space
2.Open space of more than 10ha or safe place less than
10ha surrounded by constructions made of fire resisting orradiant heat blocking 3. Distance to the evacuation site
shall be within 2km. 4. Space shall be more than 1 ㎡
per person
In principal, designated areas shall be school grounds andparks within the district. Depending on circumstances,indoor area shall be utilized.
Indoor space in elementary and lower secondary schoolsthat are designated as evacuation facility. As necessary,
outdoor space such as park shall also be appointed if tents
are set up. Residents to accept in each evacuation
facility shall be determined by school district andappropriate change shall be made accordingly.

（Reference material 2）Statements concerning equipment of evacuation facility in existing guidelines
Guideline of elementary school facility improvement (Abstruct of statements relating to evacuation facility)
Educational Facilities Project Department, Secretariat of Ministry of Education, Culture, Sports, Science and Technology(July 2007)
Chapter 1
GeneralProvisions

Section 1 Basic policy of shool facility
improvement

3 Facility improvement as thecore of community forlifelong education and town
development

Part 2 Facility
improvement for safe,
cram-free, and gracefulenvironment

3 Securement of earthquake
resistance

Chapter 3 Floor planningPart 3 Gymnastic
facility

1 Common items

Chapter 4 Room planningPart 3 Gymnasium andother facility

2 Gymnasium

Section 2
Response toissuesconcerningschool facility
improvement

3 Indoor swimming pool

Chapter 8 Facility designing

Part 6 Club house (Place
for cooperation ofparents or local
residents
Part 1 Basic items

4 Toilet and lavatory

3 Functionality

As the most familiar public facility to
the community residents, it ispromoted actively to utilize thefacilily for lifeling education andtown development. The facility
shall be renovated for barrier-free andas necessary cooperate with othereducational facilities and welfare
facilities for the elderly, and play acore role of community disasterprevention . It is important toimprove the facility to contribute fortownscape and landscape.
(2) It is important to develop a plan toreinforce school facilities withnecessary seismic resistancecapabilities since school facilities are
required to be utilized as emergency
evacuation facilities for the local
residents at times of disasteroccurrence.
(1) It is important that gymnastic
facility contains necessary space forphysical education class, sports
events, and open school. It is also
important to develop a plan ofdisaster prevention facility asnecessary.
(5) Preparing to use as evacuation
facility in case of disaster, it iseffective to develop a plan of toilet,
changing room, pre-positioned
storage and etc.
(9) It is effective to develop a plan ofwater supply for use of fire
prevention and flushing toilet incase of disaster.
(4) It is effective to develop a plan of
toilet facility concerning use by
evacuated residents in case ofdisaster.
(4) As necessary, it is effective to planfor improvement of water storagetank, swimming pool with water
purifying capability, and in-house
generator to secure water, electricity
and toilet capability at times ofearthquake or disaster occurrence.

Guidelines for promoting barrier-free renovation of school facilities (Abstruct relating to evacuation facility)

Educational Facilities Project Department, Secretariat of Ministry of Education, Culture, Sports, Science andTechnology (March 2004)
Chapter 1 Basic concept of promoting 1 Viewpoint of barrier-free (5) Concerns to becoce emergency It is required for school facilities tobecome emergency evacuation facilities
evacuation facility at times ofbarrier-free renovation of school
renovation of schoolat times of disaster occurrence, so
disaster
facilities
facilities
planning and designing of the facilities
are concerned for use by local residents.

Guidelines for promotion of earthquake-resistance of school building (Abstruct relating to evacuation facility)

Educational Facilities Project Department, Secretariat of Ministry of Education, Culture, Sports, Science andTechnology (March 2004)
1 Necessity ofChapter 1 Basic concept ofearthquake-resistance reinforcement for earthquake-resistance forschool facilities
school facilities(2) Emergency evacuation site for
local residents at disaster84

School facility is the most familiar
place for local residents. School
facility is a place of learning andcommunication for school children andlocal residents, and it plays a role ofemergency evacuation site at times ofdisasters. Therefore it is important toreinforce school buildings to function
the necessary capabilities as
evacuation facility.

Guidelines of emergency rescue activity at a large-scale disaster of Ministry of Health, Labor, and Welfare (Abstruct of descriptions
related to evacuation facility) Notification by Social welfare agency, chief of protection section No. 122 of 30 June 1997 (Rvision of 20
March 2002, No. 0320001)
Part 2 Conduct
emergency rescue

1 Establishment ofevacuation facility(1) Designationof evacuation
facility(2) Clarificationof the usage(4)
Pre-posiitoned
stock forevacuation
facility(6) Securementofcommunication
method(7) Preparationof living
circumstancesat evacuation
facilitya. It is assumed that a great number of local residents in the community will
evacuate at disaster. Therefore it is important to ensure that the facility haveenough space prior to the designation.
b. Basically, facilities to designate as evacuation facilities shall be reinforced withearthquake-resistance, fire-resistance, and steel structure. If at all possible,
facilities to be designated shall be public facilities where obstacles to interfere
people’s daily life are already eliminated amd rehabilitated into barrier-freefacilities such as public meeting house, school, welfare center, sports center, andlibrary.
b. As for designating schools as evacuation facilities, consideration for school
facilities to be primary place for educational activities will be highly taken. Also,
coordination with the Board of Education and other pertinent organizations shall be
conducted beforehand understanding the fact that school facilities are used as
evacuation site only temporarily.
c. For this case, report on “Fulfillment of disaster prevention readiness at school”(February 1996) from “Cooperators meeting for fulfillment of disaster prevention
readiness at school” has already been provided to the Board of Education. It is
recommended to take the report as a reference.
a. It is desirable to store supplies such as food, water, and items for daily use thatwill be urgently required in the designated evacuation facilities.

Radio, television, telephones, FAX, computers shall be installed in theevacuation facility to provide information to the evacuees, confirm each other’ssafety, and obtain information of other victims outside the evacuation facility. It
is required to coordinate with volunteers to provide support to the physicallychallenged people by assisting to use the electrical devices for obtaining
information. When the volunteers are assisting to physically challenged people
with the electrical devices, the volunteers are required to show them various ways
to obtain the necessary information.
b. If a prolonged evacuation period is assumed, a better living circumstance needs
to be provided to evacuees by gathering evacuees to a certain area of school
facility. It is preferable to improve evacuees’ living circumstances by separated
them in a small group and move them to small rooms, and as necessary, preparing
the following items to secure privcy and provide temperature control capability andopportunities for bathing, and laundry.
(a) Tatami mates, rag, carpet(b) Pertitions(c) Heating and cooling equipments(d) Washing machine, drying(e) Temporary bathing system, shower(f) Temporary toilet(g) Televition, radio(h) Portable kitchen, cooking tool(i) Other necessary equipments/tools
c. When designating facilities as evacuation facilities where physical obstacles are
not eliminated (barrier-free), temporary toilets, ramps and other necessary fuctions
shall be established to proved physically challenged people with an easy
accessibility.
d. For an adequately functioned evacuation facility, it is required to have rules tocontrol the sanitation and also prepare enough capacity for electricity.

Part 3 Support forphysicallychallenged people
at emergency
rescue3 Support plan atevacuation facility(9) Creation ofmanual for
evacuation
facility
operatoina. For a smooth operation of evacuation facility, evacuation facility operation
manual that clarifies the operation standard and methods is required to be
formulated beforehand. Necessary supports (reference “Part 3 Support forphysically challenged people at emergency rescue activity”) for physicallychallenged people shall be described in the manual.

(14) Prompt
closure ofevacuation
facilitya. Since establishment of evacuation facility is only temporary, prompt restart ofthe primary function of the facility is required.
b. If the evacuation facilities were established at schools, prompt restart ofeducational activities will be promoted .

(1) Eliminationof physicalbarriers(Barrier-free
implementation)

When designating facilities as evacuation facilities where physical obstacles are noteliminated (barrier-free), temporary toilets, ramps and other necessary fuctions
shall be established to proved physically challenged people with an easy
accessibility.

(3) Designationof welfare
evacuation
facilityb. Basically, facilities to designate as welfare evacuation facilities shall be selectedamong centers for the elderly and schools for the special needs where
reinforcement for earthquake-resistance, fire-resistance, steel structure andelimination of physical obstacles (barrier-free) have already been completed.
Also project that has implemented in 2000 for remodeling communication spacefor community into disaster prevention facility within the property of designatedevacuation site is promoted to utilize to improve as welfare evacuation facility.

85

（Reference material 3-1）Fiscal support systems to utilize for disaster prevention capability enhancement

at school facilities

Cost for public school facilities improvement
In charge

Contents

Funding rate

TargetRemarks

Ministry of Education, Culture, Sports, Science and Technology, Facility Support
Department
・ New construction or reconstruction of building
・ Rehabilitation of building・ Reinforcement of building for earthquake-resistance・Improvement of outdoor educational facility
Examples: Improvement of facilities for disaster prevention(Green space fordisaster prevention, Sprinklers, Water well, Emergency water storage tank,
Water supply tank, Pre-positioned stock storage, outside toilets)
・Large-scale restructure (for aged building), large-scale rehabilitation (for agedbuilding) Large-scale restructure (capability enhancement)
Examples: Installment of LAN in school facilities, installation of air circulation
system, remodeling of toilets, remodeling facilities for disabled children(slopes, elevator, toilets for the disabled)
・New construction, reconstruction and earthquake-resistance reinforcement
Examples: Installing a water purifier to the swimming pool in outdoor, rooftop, orindoor.
New construction and reconstruction: ½ (basis)
Rehabilitation and large-scale remodeling project: 1/3 (basis)
Local government (Prefectures and municipal borough, town, and village)
・ To solve the shortage of classroom, the central government will provide fundpartially for new construction or expanding projests of school buildings,
gymnasium, and dormitory.
・ Reconstruction means a project for rehabilitation of school buildings that werediagnosed to be in a structural dangerous condition
・ Subsidy for making safe and comfort school facilities will be funded for the
project that local government developed and fits in the categories that are listed in
the facility improvement plan.
・ Funding conditions are setup by the kind of works of the large-scale remodeling.
・ Cost for rehabilitation of swimming pool will be partially funded when the project
includes the ground improvement work and installment of water purification
system. The funding will not be provided if the ground improvement work is
not planned or only portable water purifier is planned to be attached.

86Disaster prevention project bondIn charge

Fire and Disaster Management Agency, Fire prevention and medical emergency
sectionContents

・Project for structural improvement of fire prevention
Examples: Improvement of disaster prevention facilities Facility improvement
to enhance disaster prevention capabilities at evacuation facilities①Remodeling and rehabilitation of spaces for temporary living and storage forpre-positioned stock ②Installment of toilets, shower, kitchen, and in-house
generator③Water purifier installment at swimming pool and water well
①Setting up night lighing systems in the school ground
Earthquake-resistance project for public facilities

Funding rate

Project for structural improvement of fire prevention：Money appropriated to project 75%, inclusion rate of the local grant tax 30%
For the most promoted projects: Money appropriated to project 90%, inclusion
rate of the local grant tax 50%
Project for earthquake-resistance reinforcement at public facilities: Money
appropriated to project 90%, inclusion rate of the local grant tax 50%

TargetLocal governments (Prefectures and municipal boroughs, towns, and villages)

Remarks

The most promoted projects are ①facilities improved by firecompanies②facilities improved with disaster prevention administration wirelessdigital method and nation-wide instant notification system (J-Alert) ③Fire
prevention transmission/order facility (Conderning fire prevention widening)

Subsidy for Fire Disaster prevention Facility
Improvement
In charge

Fire and Disaster Management Agency, Fire prevention and medical emergency
sectionContents

Earthquake-resisting water tank, pre-positioned storage, and etc.

Funding rate

Within 1/2 or 1/3 (partial increase of fund is possible)

TargetLocal governments (Prefectures and municipal boroughs, towns, and villages)

Remarks-Earthquake-resisting water tank and pre-positioned storage have to meet thestandards that are described in the notification of standard funding list and in the
appended table 3 in the grant summary of the subsidy for fire disaster prevention
facility improvement (Example: Total floor space of pre-positioned storage must
be more than 30 ㎡)-Types of earthquake-resisting water tank that are applied for the funding are
ground-based storage and purifier for drinking water installed storage-Subsidy is not funded if the total amount of all the fundings is less than85,000,000yen for prefectures and government-designated cities or less than
8,500,000yen for municipal boroughs, towns, and villages.

87Housing and building remodeling project for earthquake-resistance
In charge

Ministry of Land, Infractructure, Transport and Tourism
Housing Administration Building Guidance Division
Countermeasures against disaster for building officeContents

Seismic resistance capasity evaluation of building, Remodelingproject for earthquake-resistance(Example) Public high school facilities, private school
facilities, public university facilities

Funding rate
○Seismic resistance capacity evaluation
・Project that local government implements : Central
government 1/3＊For buildings on the side of emergency
transportation road: Central government 1/2
・Project other than local government implements: 2/3＝
Central government1/3 十 Local government 1/3○Rehabilitation for earthquake-resistance・Project that local government implements : Central
government 7.6%
・Project other than local government implements: 15.2%＝
Central government7.6%十 Local government 7.6%
＊For buildings on the side of emergency transportation road
(Over the fixed hight)
・Project that local government implements : Central
government 33.3%
・Project other than local government implements: 66.6%＝
Central government33.3%十 Local government 33.3%
TargetLocal governments (Prefectures and municipal boroughs,
towns, and villages)(Indirect support through local governemt to privateorganization)

Remarks＜Earthquake-resistance rehabilitation＞○ District ：DID district, nation-wide (Densely Inhabited
District)○ Condition for approval：Building that has been certified
based on the Special Law for promoting seismic-resistance
rehabilitation or Building Standard Law○ Condition for dimension：Total floor space is more than
1,000 ㎡ or the number of floor excluding basement floor ismore than 3 stories.
○ Amount of limit for funding: 47,300yen per 1 ㎡(Special
construction method: 80,000yen per 1 ㎡

88

Subsidy for Town Development
In charge

Ministry of Land, Infractructure, Transport and Tourism, Town Development Promoting Department,
Urban Comprehansive Project Promoting OfficeContents

Community disaster prevention facility (Outside constructure)(Example) Earthquake-resisting water storage tank, pre-positioned storage, information transmitting
facility, broadcasting facility, power generation facility, drainage recycling facility
Cost for disaster prevention seminar and emergency evacuation training

Funding rate

About 40%

TargetLocal governments (Municipal boroughs, towns, and villages)

Remarks-The funding is provided for a project that is created basing on the town renewal and improvement projectthat local government developed (Effective period about 3-5 years).
-It is necessary to specify in the improvement plans by showing the numerical purposes and indicatiors forthe improving area.
-Targets are road, park, community disaster prevention facility (basic project) and also project that issuggested by local government (suggested project).
-Personnel cost for local government office staff when they conduct disaster prevention seminar andemergency evacuation training.
-Subsidy is not funded if the total amount of all the fundings is less than 85,000,000yen for prefectures andgovernment-designated cities or less than 8,500,000yen for municipal boroughs, towns, and villages.

Emergency earthquake-resistance improvement project for sewage system
In charge

Ministry of Land, Infractructure, Transport and Tourism, Sewege system project section

Contents(1)Project for earthquake-resistance for facilities that are stated in the community disaster prevention
plan (evacuation site or disaster prevention site) and plumbing system connecting the terminal treatment
plant.
(2) Project for manhole toilet system at the facilities that are stated in the community disaster prevention
plan (evacuation site or disaster prevention site)(3) Project for pre-positioned storage or earthquake resisting water tank that is planned to be establishedat sewage facilities (limited to disaster prevention site or evacuation site that lot area is more than 2ha)that is stated in the community disaster prevention plan

Funding rate

1/2

TargetLocal governments

Remarks-Project to implement for earthquake-resisnting sewage system in government-designated cities, seats ofthe prefectural government, and area requiring the implementation of enhanced earthquake preparatory
measures with respect to an earthquake (based on the Large Scale Earthquake Countermeasures Act)
-It is necessary to obtain agreement from the Ministry of Land, Infractructure, Transport and Tourism bycreating “Emergency improvement plan for earthquake-resisting sewage system”that includes
summary of the targeted area and purpose of improvement.
-Regarding to the (2) project, funding is provided for the structural object under the manhole that lot areaof the facility is more than 1ha.

89Self-governed disaster prevention organization promoting support project
In charge

Foundation for self-governing general center

Contents

Improvement of facilities or equipment that are necessary for community disaster prevention activities(Example) Equipment for information and communication (portable radio system, portable radio)
Fire extinction supplies (fire prevention water tank, fire prevention outfit, helmet, etc)
Water prevention supplies (Rescue boat, rescue suit, rope, water prevention sheet, and etc)
Rescue and relief supplies (AED, tent, first-aid bag, blanket, portable bed, and etc)
Food and water supplies (Water supply tank, emergency water purifier, drinking water tank, andetc)
Evacuation site and evacuating (Power generator, portable toilet, portable lighting device,
sleeping bag, sectional shower and etc)
Disaster prevention education supplies (Simulated fire extinction tranining device, broadcasting
equipment, assembling water tank, CPR training mannequin and etc)
Others (Portable equipment storage, snowplow, etc)

Grant money

a. Newly established self-governed disaster prevention organization
More than 300,000yen and less than 2,000,000yen
b. Existing disaster prevention organization that has never received any funding
More than 300,000yen and less than 1,500,000yenc. Self-governed disaster prevention organization that does community comfort and safety station
improvement project
More than 300,000yen and less than 1,000,000yend. Project that other self-governed disaster prevention organization (including alliance) or local
government provide or lend to self-governed disaster prevention organization
More than 300,000yen and less than 1,000,000yen

TargetSelf-governed disaster prevention organization, women’s disaster prevention organization and it’s grouporganization in town, ward and village or other alliance

Remarks-Improved facilities shall belong to a self-governed disaster prevention organization, not to local
government.
-Implementing project shall be unappropriated by national subsidy or locan government bond-Basically it shall not be facility or improvement that can be consumed or break in a short period of time.
-The request shall be accepted up to 3 organizations per prefecture for the category of “a” stated in the“Grant money”, up to 4 organizations per prefecture for the category of “b” and “c”, and up to 6
organization per prefecture for the category of “d”.
-Since this project is funded out of the PR budget for lottery dissemination, a statement saying “Thisfacility was improved bythe lottery dissemination fund” on posters, any advertisements or newsletters oforganizations when the related facilities host events.

90

( (Reference Material 3-2) Relation between measures to enhance disaster prevention capability at school facilities
designated as evacuation facilities and public fiscal support systems (Examples)
Examples showing below are to refer public fiscal support systems by category of project. Examples can be refered to determine the mostrelated system to fund a developing a project indicated in the “Specific measures to enhance disaster prevention capabilities for school facilities” in
Chapter 3 in this report.
This examples are listed for practical convenience. It is requested to keep in mind of the primary purpose of each project when referring.
Since the list is only showing examples, there may be many other kinds of construction works that could be applied for the support systems,
such as comprehensive improvement of a facility for community disaster prevention being projected based on the urban reconstruction plan, thewhole school facilities are being newly constructed and large-scale rehabilitation is being conducted.
Each fiscal support system has conditions for funding. It is recommended to ask or consult with respective government agancis as well as
referring the material 4-1.
Items stated as "specific measures" inthis report(1) Ensuring safety at faciligy

Examples of specific project for capability fulfillment

Available national fiscal support systems

Earthquake-resistance(reinforcement)

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)
Disaster prevention project bond (Fire and Disaster Management
Agency)Subsidy for Town Development (Ministry of Land, Infrastructure,
Transport and Tourism)
Housing and building remodeling project for earthquake-resistance(Ministry of Land, Infrastructure, Transport and Tourism)
Housing and building remodeling project for earthquake-resistance(Ministry of Land, Infrastructure, Transport and Tourism)

rehabilitationofbuilding

Seismic resistance capacity evaluation of building(2) Ensuring to havecapabilities
1. Toilet and shower

Earthquake-resistance reinforcement of swimming pool

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)

Toilet remodeling

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)
Disaster prevention project bond (Fire and Disaster Management
Agency)Emergency earthquake-resistance improvement project for sewage
system (Ministry of Land, Infrastructure, Transport and Tourism)
Disaster prevention project bond (Fire and Disaster Management
Agency)Disaster prevention project bond (Fire and Disaster Management
Agency)Subsidy for Town Development (Ministry of Land, Infrastructure,
Transport and Tourism)
Subsidy for Fire Disaster prevention Facility Improvement (Fire andDisaster Management Agency)
Disaster prevention project bond (Fire and Disaster Management
Agency)Subsidy for Town Development (Ministry of Land, Infrastructure,
Transport and Tourism)
Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)
Disaster prevention project bond (Fire and Disaster Management
Agency)Disaster prevention project bond (Fire and Disaster Management
Agency)Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)
Subsidy for Town Development (Ministry of Land, Infrastructure,
Transport and Tourism)

requiredInstallment of toilet or shower
Improvement of manhole toilet system
Installment of lighting system in school ground
Installment of in-house power generator
2. Electricity, water and gas

Improvement of power plant
Earthquake-resistance improvement of water storage tank

Installment of water purifier to swimming pool
Improvement of disaster prevention water well
Installment of water purifier to swimming pool or water well
Improvement of unpurified water use and solar power
facility
Improvement of drainage recycling facility

3. Information transmission methods

Installment of LAN cable in school facilities
Disaster prevention public administration radio

4. Indoor environment

5. Support for physically challenged
people6. Necessary supply stock

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)
Disaster prevention project bond (Fire and Disaster Management
Agency)Installment of air control system

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)

Improvement of facility for barrier-free

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)

Establishment of Japanese-style room

Cost for public school facilities improvement (Ministry of Education,
Culture, Sports, Science and Technology)

Improvement of pre-positioned storage facility

Subsidy for Fire Disaster prevention Facility Improvement (Fire andDisaster Management Agency)
Disaster prevention project bond (Fire and Disaster Management
Agency)Subsidy for Town Development (Ministry of Land, Infrastructure,
Transport and Tourism)

Note: The examples are facility improvement related. For equipment and furnishings, please refer the material 4-1“Self-governed disaster prevention organization project”

91(Reference Matirial 4) Questionnaires for actual condition survey on disaster prevention capabilities
at school facilities
Form 1-1 Inquiry survey on concerns for community disaster prevention during planning and designing ofschool facilities (For municipal borough, town or village)
Name of municipal borough, town or village:
Q1. Is a school response manual that includes concerns to be utilized as evacuation facility at a time of disaster formulated?
a. Manual is formulated.
b. School response manual at disaster excluding concerns to be utilized as evacuation facility is formulated.
c. No school response manual at disaster is formulated
Q2. Is the operational structure for evacuation faciities already determined for the case that school facilities are used as evacuation
facilities?
a. The primary operation is conducted by local government office staff
b. The primary operation is conducted by school staff
c．The primary operation is conducted by local organizations
d．The operational structure is not determined
e．Others（）

Q3. Are concerns for community disaster prevention such as evacuation facilities incorporated into the planning and designing ofschool facilities?
a． The concerns are incorporated in the planning and designing whether or not the facility is designated as evacuation
facilityb．The concerns are incorporated only for the schools are designated as evacuation facility or when requested by the local
community.
c．Not incorporated（Please answer if your answer was either a. or b. at Q3）
Q4. How are your concerns for local community in regard to disaster prevention considered while planning and designing of school
facilities? (Multiple answeres allowed)
a．Basically the consideration are discussed among school staff (including the board of education and the teaching staff)
b．Consult with the chief of disaster prevention relating section in local government
c．Discuss with local residents
d．Request academic experts for consideration
e．Others（）
Q5. Are there designated spaces such as Japanese-style room or dispensary for physically challenged people to use in case ofdisaster that are separated from spaces for other evacuees?
a．There are designated spaces in the school facilities that are for physically challenged people to use in case of disaster.
b．There are no designated space in the school facilities that are for physically challenged people to use in case of disaster.
Q6. What are the fiscal support systems that your school has used when improving the facilities and equipment for enhancing
disaster prevention capability? (Multiple answeres allowed)
a．Subsidy concerning facility improvement at school offered by the Ministry of Education, Culture, Sports, Science andTechnology
b．Subsidy offered by prefectural government
c．Support system related to fire-prevention by the Fire and Disaster Prevention Agencyd．Support system offered by other government agency (Name of agency：，Name of support system
e．Other support system（Name of offering organization：，Name of support system
Q7. Please introduce an example of disaster prevention capability improvement for school facilities(Example)
Plumbing system to use water in the rooftop swimming pool for flushing toilets in case of disaster
Prpane gas tanks are equipped to the kitchen as the secondary resource in case of city gas outage at disaster92））

Form 1-2 Inquiry survey on concerns for community disaster prevention during planning and designing ofschool facilities (For prefecture)
Name of municiple

Responsible Department

Responsible

e-mail

Q1. Is a school response manual that includes concerns to be utilized as evacuation facility at a time of disaster formulated?
a. Manual is formulated.
b. School response manual at disaster excluding concerns to be utilized as evacuation facility is formulated.
c. No school response manual at disaster is formulated
Q2. Is the operational structure for evacuation faciities already determined for the case that school facilities are used as evacuation
facilities?
a. The primary operation is conducted by prefectural government office staff
b. The primary operation is conducted by school staff
c．The primary operation is conducted by local organizations
d．The operational structure is not determined
e．Others（）
Q3. Are concerns for community disaster prevention such as evacuation facilities incorporated into the planning and designing of school
facilities?
a． The concerns are incorporated in the planning and designing whether or not the facility is designated as evacuation facility
b．The concerns are incorporated only for the schools are designated as evacuation facility or when requested by the local
community.
c．Not incorporated（Please answer if your answer was either a. or b. at Q3）
Q4. How are your concerns for local community in regard to disaster prevention considered while planning and designing of school
facilities? (Multiple answeres allowed)
a．Basically the consideration are discussed among school staff (including the board of education and the teaching staff)
b．Consult with the chief of disaster prevention relating section in local government
c．Discuss with local residents
d．Request academic experts for consideration
e．Others（）
Q5. Are there designated spaces such as Japanese-style room or dispensary for physically challenged people to use in case of disaster thatare separated from spaces for other evacuees?
a．There are designated spaces in the school facilities that are for physically challenged people to use in case of disaster.
b．There are no designated space in the school facilities that are for physically challenged people to use in case of disaster.
Q6. What are the fiscal support systems that your school has used when improving the facilities and equipment for enhancing disasterprevention capability? (Multiple answeres allowed)

Ｊa．Subsidy concerning facility improvement at school offered by the Ministry of Education, Culture, Sports, Science andTechnology
b．Subsidy offered by prefectural government
c．Support system related to fire-prevention by the Fire and Disaster Prevention Agencyd．Support system offered by other government agency (Name of agency：，Name of support system
e．Other support system（Name of offering organization：，Name of support system
Q7. Please introduce an example of disaster prevention capability improvement for school facilities(Example)
Plumbing system to use water in the rooftop swimming pool for flushing toilets in case of disaster
Prpane gas tanks are equipped to the kitchen as the secondary resource in case of city gas outage at disaster

93

）
）

(Reference Material 5) List of background materials
Category of materials

Name of material

Author, editor, date

Collected records

Getting over the earthquake disaster~A decade of creative reconstructionof education and the next step totomorrow~

Hyogo prefecture, the board of education (March 2005)

Collected records

The Great Hanshin-Awaji Earthquake
Steps to renaissance and creation of
education in Kobe

Kobe city, the board of education (January 1996)

Collected records

Record of reconstruction from theGreat Hanshin-Awaji Earthquake Vol.
1~Vol.3

Foundation of Hyogo prefecture 21st century Hyogo
creation association
Vol.1 March 1997
Vol.2 March 1998
Vol. 3 March 1999

Collected records

Record of Kobe as affected area fromthe Gread Hanshin-Awaji Earthquake

Association of conveying lessons from Kobe 1.17
May 1996

General biblio

Reseach on evacuation site at theGreat Hanshin-Awaji Earthquake

Shiro Kashiwabara, Jun Ueno, Takao Morita
Osaka University Pulication Group
January 1998

Collected records

School education of Ojiya city and the
Mid Niigata Prefecture Earthquake-How schools and the board ofeducation reacted and got over-

Ojiya city, Niigata prefecture, the board of education
March 2005

ReportReport of research for actual situationof disaster prevention relatedorganization's activities at the Mid
Niigata Prefecture Earthquake

The Cabinet Office
March 2005

Collected records

Verification of disaster
Learn
from experiences of being the victim
and disaster response

Nagaoka city, Niigata prefecture
2005

General biblio

the Mid Niigata Prefecture Earthquake-Did the crisis management of
neigborhood association function?-

Edition of Nagaoka city countermeasures against disaster
headquarters
Publication of Gyosei Co., Ltd.
15 July 2005

94

Investigative research on disaster prevention capabilities at school facilities
designated as evacuation facilities
11 April 2006
29 March 2007 Partially modified
National Insitute for Educational Policy Research
1

PurposeSchool facilities are expected to be used as emergency evacuation facilities at times of disasters.
However, according to the past experiences of being used as evacuation site, it has been pointed out that
school facilities are not sufficiently equipped with required capabilities as evacuation facilities.
With this situation in mind, necessary disaster preventing capabilities shall be clarified and theinforcement measures shall be considered for enhancing disaster prevention capabilities at school
facilities.
2

Investigative research matters:（１）Actual conditions and issues for disaster prevention capabilities at school facilities designated as
evacuation facilities（２）Consideration of promoting measures for disaster prevention capabilities at school facilities（３）Others
3 Reseach methods
The investigative research was cooporated by the academic experts listed on the attachment.
4 Period of implementation of research
From 11 April 2006 to 31 March 2008

（Attachmen）
Research collaborators for the investigation on disaster prevention capabilities at school facilities designated as evauation facilities（Committee）
Hajime Kagiya
Junko Kobayashi
Satoshi Tanaka
Makoto Hasegawa○

Akihiko Watanabe

Director of Itabashi Ward Welfare Section Itabashi Welfare Office
Representative of Gondora Ltd., Architectural Design Office
Associate Professor of Fuji-Tokoha University Environmental disaster prevention
Department
Director of Administration for Education, Niigata prefecture Nagaoka city Board of
Education Committee
Director of Toyohashi Science and Technology University Engineering Education
International Cooperation Center
Professor of Architectural Engineering（Alphabetical order ○Mark: Organizer of research conference）（Observers）
Policy Controller, Cabinet Office（Disaster Prevention Division）
Fire and Disaster Management Agency Protection of lives/Disaster prevention Department, Disaster prevention
Division
Ministry of Land, Infractructure, Transport and Tourism Housing Administration Building Guidance Division
Ministry of Health, Labor, and Welfare Community Relief Division Administration section
Ministry of Education, Culture, Sports, Science, and Technoloty Minister’s Secretariat Educational Facilities
Planning
Department Educational Facilities Planning Division
Officials from the National Institute for Educational Policy Research who took charge of the research are listed below.
Hiroyuki Tanzawa
Director of Educational Facilities Research Center（Until 10 July 2006）
Koichi Shinpo
Same as above（From 11 July 2006）
Seiichirou Yamamoto
General Researcher of Educational Facilities Research Center
Shinji Takeuchi
Plans Section of Educational Facilities Research Center95