ASIAN DISASTER REDUCTION CENTER
Visiting Researcher Program(FY2022)

A study on the issues to be considered in improving
the requirements for evacuation shelter during disaster(Final report)

Visiting Researcher: ARIUNTUNGALAG Batjargal
National Institute for Disaster Research under the National
Emergency Management Agency of Mongolia

Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC member countries.
The views expressed in the report do not necessarily reflect the views of the ADRC. The
boundaries and names shown and the designations used on the maps in the report also do not imply
official endorsement or acceptance by the ADRC.

CONTENT-• Introduction

An analysis of the current situation of evacuation shelter during disaster
Chapter 1

An analysis of the legal regulation of evacuation shelter during disaster
Chapter 2

In Japan, implementation and good practices of requirements for evacuation shelter during
Chapter 3 disaster• Conclusion-

Introduction
Background:
The number of disasters and accidents and the amount of damage caused in Mongolia has been increasing inrecent years.
During disasters, possibility of evacuation of the people to a safety place or evacuation shelter until the situation
normalizes, so the Government of Mongolia and the National Emergency Management Agency need to be prepared.
Therefore, it is necessary to evacuate people from disasters and accidents, prepare to the evacuation shelters and in
there the basic needs of people.
Research methodology:
The research paper used the general scientific methods such as analysis, summarize, comparison andobservation etc.
Scope of the research paper:
Based on legal documents and actual requirements, the problem of determining the types and designations ofshelters specially prepared for the purpose of evacuation shelters disaster affected and injured people until conditions
return to normal, as well as their safety, will be studied.
Research results:
In this research, the standard requirements in Japan for evacuation shelters for people in case of anearthquake or any other disaster will be compared with the standards in Mongolia. Then, based on scientific evidence
and research, proposals will be made to change the basic requirements for updating the standards, norms, and rulesof evacuation shelters during disasters in Mongolia.

Chapter 1.
1. AN ANALYSIS OF THE CURRENT SITUATION OF EVACUATION SHELTER DURING
DISASTER

1.1 Evacuation shelter for use during disaster and its needs
1.2 Common types of disaster and accident in Mongolia, and some experienceevacuation
1.2.1 About Mongolia
1.2.2 Overview of disaster and accident in Mongolia
1.2.3 Some experiences of evacuation during accident and hazardous in Mongolia anddifficulties encountered

1.3 Common types of disaster in Japan and some experiences of evacuation shelter
1.3.1 About Japan
1.3.2 Overview of disaster in Japan
1.3.3 Some experiences of used the evacuation shelter during disaster in Japan
Conclusion of the chapter 1

About Mongolia:
The territory of Mongolia is located in the central
part of Asia, neighboring with Russia along3543 km in the north and with China along
4709.6 km in the south.
Mongolia comprises 1564.1 thousand square
kilometers.
The capital city, Ulaanbaatar, has anindependent administrative status as amunicipality, which consists of several urban
districts.

About Japan
Japan is an island country located in the western
Pacific Ocean.
Total land area is about 378,000 square
kilometers. Japan is divided into 47 administrative
prefectures and eight traditional regions.
The Greater Tokyo Area is the most populous
metropolitan area in the world, with more then 37.2
million residents.

Demographic data:
Mongolia has an estimated population of 3 409 939
people with 1,553,556 km2 of land area.
Climate information:
Mongolian weather is high, cold, and dry. There are
four seasons: winter, spring, summer and autumn.
It has an extreme continental climate with long, cold
winters and short summers, during which mostprecipitation falls.
January and February averages of −20 °C arecommon, with winter nights of −40 °C occurring mostyears.
Summer extremes reach as high as +38 °C in thesouthern Gobi region and +33 °C in Ulaanbaatar.
Economics:
Mongolian economy activities based on livestock,agriculture and mining.
Mongolia has large deposits of coal, fluorite(fluorspar), copper, gold, silver, and other metallic
ores.
Agriculture plays the second largest role in themodern economy, accounting for 35% of employment,
11-20% of GDP,73 30% of exports, and 14% of
foreign exchange revenues.

Demographic data:
Japan has a population of 125.4 million, of which 122.8
million are Japanese nationals (2021 estimates).
Climate information:
The climate of Japan is predominantly temperate but
varies greatly from north to south.
The Pacific coast features a humid subtropical climatethat experiences milder winters with occasional snowfall
and hot, humid summers because of the southeast
seasonal wind.
The main rainy season begins in early May in Okinawa,
and the rain front gradually moves north. In late summer
and early autumn, typhoons often bring heavy rain.
Economics:
Japan has the world's third-largest economy by nominal
GDP, after that of the United States and China; and thefourth-largest economy by PPP. As of 2020,
Japan's labor force is the world's eighth-largest, andconsists of 66.5 million workers. As of 2021, Japan has
a low unemployment rate of around 2.8%.
Its main exports are motor vehicles, iron and steel
products, semiconductors, and auto parts.
It ranks highly for competitiveness and economic
freedom.

Some experiences of evacuation during accident and hazardous in Mongolia anddifficulties encountered• In 2012, 5-liter liquefied gas fuel cylinder used by a family on the 7th floor of a public apartment
in Darkhan-Uul province exploded and was released into the air, causing an explosion and a fire.
Also, during the fire there was a power outage.
Since the explosion took place in winter, emergency measures were taken to provide relief topeople, prevent them from getting cold, eliminate the effects of the explosion, and rebuild, andabout 100 people were evacuated to safety places.
• In 2015, the wall of a public apartment building in Bayangol district of Ulaanbaatar city was indanger of collapsing. Therefore, the governor of Bayangol district has issued the orders "To takemeasures to prevent potential dangers and risks" and "To take measures to prevent potential
dangers and risks, and to evacuate citizens from the apartment at risk of collapse" and took thefollowing measures, respectively.
Approximately, 200 people living in the building that was in danger of collapsing were informed
about the situation, advised to move to a safe place immediately, and were released from thebuilding.
• On July 14-16, 2018, mountain floods occurred 3 times in most of Bayan-Olgii province due tocontinuous heavy rains. Approximately, 2500 citizens affected by the flood were evacuated fromthe disaster site.

Some experiences of used the evacuation shelter during disaster in JapanThe Great East Japan Earthquake (GEJE),- Most facilities, such as schools and community centers, were publicly owned and had been
designated as evacuation centers before the GEJE. Right after the GEJE, a number of private
facilities such as hotels and temples were also enlisted as the need for centers far exceeded
expectations.
Within four months after the disaster, about 75 percent of evacuation centers were closed,
although some centers in Tohoku stayed open as long as nine months.
- At peak occupancy, more than 470,000 people were staying at evacuation shelters.

Difficulties encountered in evacuation shelters:- Not enough supplies:
Given the magnitude of the disaster and the number of evacuees, most evacuation facilities lacked
sufficient supplies of food, water, clothes, and blankets. In the first days and weeks following the disaster,transporting these essentials to the centers was hampered by damaged roads and a shortage of vehicles andfuel. This problem was exacerbated by the fact that the many temporary facilities were not formally designatedcenters and therefore had not been stocked with essentials.
- Lack of water and power:
Furthermore, water and power supply systems were damaged in most of the disaster-affected areas, andin some places were not restored even after one month. These problems made life miserable for the evacuees.
The cold weather in northeastern Japan and lack of electric heating in the facilities made many evacuees
vulnerable to illness, especially the elderly.
- Self-management by evacuees:
Although managing evacuation centers is a municipal responsibility, most municipalities in the disasteraffected areas suffered badly from a loss of staff, seriously weakening their capacity to cope with the
emergency.
At the beginning, most facilities were supported by local teachers, volunteers, and other civil society
groups.
As the evacuation period became extended, evacuees themselves started taking a number of initiatives.
At many shelters, a self-governing body emerged, with leaders and members of various committees
selected by the evacuees themselves.

- Gender sensitivity:
There simply wasn’t enough privacy for anyone, particularly not for female evacuees-many did
not have private spaces where they could change their clothes or breast-feed their babies.
Many centers eventually installed partitions, but it was often too late. It has also been reported
that relief goods delivered to these centers were biased in favor of male evacuees.
This was mainly because it was mostly men who were managing the centers, whether they
were run by municipalities or by evacuees themselves.
- Welfare shelters for those with special needs:
Many experts have pointed out that evacuees tend to suffer from tremendous stress, especiallychildren, and therefore need special mental health care and counseling services as evacuation
periods extend.
But the availability of such services varied from center to center. Taking care of the elderly andothers who needed special attention was another big challenge.
At many centers, all the special needs groups had to share the facilities with the otherevacuees.
- Disaster relief agreement:
In 2006 two cities in Fukushima Prefecture entered into a Disaster Relief Agreement: Naraha
City, which was affected by the nuclear disaster, and Aizu-Misato City, which was not. When the
nuclear disaster happened, most evacuees from Naraha City went to evacuation centers in AizuMisato City that were managed by local officials. This was a rare example of successful cooperation
between two municipalities, strengthened by their long-standing friendly relationship. In Fukushima
most evacuees had to go beyond the prefecture’s jurisdictional boundaries because of radiation risks.

Chapter 2.

2. AN ANALYSIS OF THE LEGAL REGULATION OF EVACUATION SHELTER DURING
DISASTER

2.1 An analysis of legal documents defining evacuation shelter standards in Mongolia

2.2 An analysis of legal documents governing evacuation shelter standards in Japan

Conclusion of the chapter 2

An analysis of legal documents defining the requirements for evacuation shelter during
accident and disaster in Mongolia
From the legal documents in force in Mongolia, the following table shows the documents related toevacuation shelter
Laws and rules"Law on Protection from Disasters"

The purpose
The purpose of this law is to organize prompt and effective disaster prevention
activities, and regulate the relationship between emergency organizations anddisaster prevention management systems, organization, and activities.
The Resolution No. 340 of 2011 of the Government 1. This procedure regulates relations related to the prevention of potentialof Mongolia:
disasters, evacuation and placement of people, livestock, animals and property in
1. “Procedures for the mobilization of forces during a safe environment.
disaster” and2. This procedure regulates relations related to the involvement of manpower and
2. "Procedures for Evacuation of Citizens during equipment for the purpose of carrying out disaster rescue, damage removal, anddisasters"
immediate reconstruction activities.
Deputy Prime Minister's Order No. 75 of 2017 - This rule governs the activities of professional units that aim to prevent potential"Disaster Protection Professional Class Rules"
disasters, search and rescue at disaster sites, eliminate harm, provide medical
and humanitarian aid to victims, and support immediate reconstruction operations.
Disaster management plan for governors
provinces, capitals, sums and districtsof It is a management document for disaster prevention, preparedness, search andrescue, disaster relief, immediate reconstruction, and humanitarian assistance.

Order No. A/305 of 2020 of the Director of the The purpose of this requirement is to evacuate the population from the area of the
National Emergency Management Agency - disaster site, dangerous phenomenon, accident, provide first aid to the victims,"Requirements for temporary assembly areas, organize measures to provide food, prepare temporary assembly areas,evacuation sites, and evacuation shelters"
evacuation sites, and evacuation shelter.

An analysis of legal documents governing evacuation shelter standards in Japan

In Japan, the standard requirements for evacuation shelters are implemented according to thefollowing guidelines.
- "Shelter Management Guidelines"- (Provides an explanation of specific measures andpreparations as they relate to matters described in the Guidelines for Ensuring Satisfactory Living
Conditions at Evacuation Shelters, from the designation of evacuation shelters through to theirclosure);- "Guidelines for Securing and Managing Toilets at Shelters"- (Sets out guidelines for securing
toilets, as one of the matters that administrative bodies supporting those living in evacuation shelters
should deal with) and- "Guidelines for Securing and Managing Welfare Shelters"- (Guidelines that can be used whensetting up and managing welfare evacuation shelters after a disaster has occurred, as well as being
used by municipalities, etc. under normal circumstances when formulating preparedness measuresand manuals).

Chapter 3.

3. IN JAPAN, IMPLEMENTATION AND GOOD PRACTICESOF REQUIREMENTS FOR EVACUATION SHELTER DURING DISASTER

3.1 Implementation of legal documents for evacuation shelters during disaster3.2 A comparative study of requirements for evacuation shelter during disaster

Conclusion of the chapter 3

Implementation of legal documents for evacuation shelters during disaster in Japan
1. Method of Operation evacuation shelters:
Community organizations, mainly the community organizations for disaster and welfare
management, work together to voluntarily operate the shelters. City officers, facility administrators,
and other volunteers will provide assistance as needed. [Examples of the Main Tasks of the Shelter]• Occurrence of a disaster - one month after the disaster: Confirmation of safety, securing
drinking water and food, first-aid station, temporary toilets, etc., installation of baths, acceptance ofvolunteers, etc.
• About one month after the disaster: In addition to the above, formulation of rules and selfgoverning bodies, handling of complaints, etc.
2. Points to Note for Operation
Provide support for those in need of assistance in times of disaster, and consider theperspectives of both male and female, etc.
• Allocate elderly, handicapped, and sick people to the places in the best environmental conditions.
• Provide disaster information for the visually impaired, hearing impaired, and foreigners.
• Promote barrier-free access and improvement of evacuees’ living circumstance (materials andequipment).
• Involve both male and female in decision-making of shelter operation, to consider perspectives ofboth sexes, including the different needs (privacy, changing rooms, bathrooms, etc.).
• Prevent violence against women and children, etc.

The following items must be prepared at the evacuation shelters:• Indoor emergency shelters and evacuation centers:(Municipal elementary and junior high schools and public facilities)• Stockpile emergency food and supplies for 3 days after a disaster (Shelters andstockpiling bases).
Food: water, risotto, cookies, milk, etc. Some items are allergy and halal compliant.
Supplies: blankets, diapers, sanitary products, etc.
• Small generator (floodlight), battery for recharging.
• Infectious disease control supplies:
Partition tents, non-contact thermometers, thermal camera, disinfectant, etc.
• Signing of Disaster Support Agreement:
Coagulant for toilets
Cardboard beds and partitions, tatami mats
Daily commodities and beverages[Supermarkets, convenience stores, home centers, manufacturers]
Stockpiling, accumulation, and delivery [e.g., transportation companies].
• Welfare shelters

Storages belonging to wards and prefectures disaster protection departments and offices
are located next to the evacuation shelters of people in times of disaster.
Miki disaster management park stadium

In Japan, many volunteers are trained and involved in disaster prevention activities. They
are organized into Voluntary Disaster Management Organizations (Community Organization for
Disaster and Welfare Management “Bokomi”).
Members of voluntary organizations are participating in disaster relief activities.

The measures to be taken during the disaster, the location of the evacuation shelter, how to get there,
and what should be there are provided to the citizens as follows.
• Use of social networks:
Using websites such as https://www.bousai.go.jp/index-e.html, https://www.kobe-sonae.jp/, citizens can
get information about transmission of emergency information (Information on evacuation, evacuation shelters,
and disaster damage) and various disaster management information from government. For example, thefollowing information can be obtained from DRR Portal Site "SONAE to U?" - https://www.kobe-sonae.jp/.
• DRR exhibition room, museum and other building constructions:
In Japan, there are many museums, exhibition departments, and organizations that educate people
about the dangers of various disasters such as earthquakes, floods, and landslides, teach people how to copewith disasters with minimal damage, and provide information about evacuation shelters in the times of adisaster. For example,- The “Sonae to U” Exhibition room in Kobe is always open to the public, elementary school students,
domestic and international group visits during business hours except for New Year's Day, and information about
Disaster Management goods, earthquake-proofing and furniture fall prevention goods, DRR education books,
aerial photographs of the floor, types of evacuation toilet etc. can be obtained from here.

• Documentaries and television programs
Documentaries and television programs with interviews and recordings of citizens who lived
during the disaster and were affected by the disaster are very effective tools for understanding thedisaster and the condition of the evacuation shelter at that time.
Documentaries and programs can be viewed at the aforementioned museums and events.
• Books, manuals and newspapers for the general public:
Many books, newspapers, magazines, and manuals are published and distributed to citizens
about the location of evacuation centers and shelters, the way to get there, and how to protect
yourself and others from disasters.

•Disaster risk reduction events:
In Japan, many events are organized with the aim of providing knowledge to citizens about thedangers of disasters, evacuation shelters, and how to protect oneself and others during disasters. For
examples,- These disaster drill programs, developed and improved by listening to the victims of the Great
Hanshin-Awaji Earthquake in 1995 and those of the Great East Japan Earthquake in 2011, provide not onlyinteresting activities but also practical activities that are helpful at times of earthquake disasters.

•

Use mobile applications:
Easy-to-use apps such as "Japan shelter" and "Safetytips" have been developed that allow citizens to use theirphones to locate evacuation shelters in the times of adisaster.

•Exiting JIS-Prescribed Symbol for Evacuation Sites:
Since 2016, the Hazard Specific Symbols and Hazard Specific Evacuation Guidance Sign System
relating to types of signage for guiding people to evacuation sites using those symbols were
instituted/revised in Japan.

Explanation: 1) Flood; (2) Slope failure, debris flow, and landslide; (3) Storm surge; (4) Earthquake; (5) Tsunami;(6) Widespread fire; (7) Rainfall inundation; (8) Volcano.
The following decisions were made in establishing this JIS.
・ The evacuation methods for tsunami and storm surge are similar, so these have been combined under asingle symbol
・ The evacuation methods for flood and rainfall inundation are similar, so these have been combined under asingle symbol
・ Debris flow and slope failure / landslide are different phenomena, so separate symbols have been established・ Earthquakes are represented by the phenomena that they cause (for example, tsunami, widespread fire, etc.)
・ Volcanoes require evacuation to a shelter or similar, so efforts will be made to notify people of these・ Symbols for tsunami evacuation sites and tsunami evacuation buildings already exist, so these will continue tobe used.

Exiting JIS-Prescribed Symbol for Evacuation Sites

Example for Information Board Using the Hazard Specific Evacuation Guidance Sign System

A comparative study of requirements for evacuation shelter during disaster:
In Japan, the requirements for evacuation shelters are governed by the following guidelines. Its
including:• "Shelter Management Guidelines";• "Guidelines for Securing and Managing Toilets at Shelters" and• "Guidelines for Securing and Managing Welfare Shelters".
"Shelter Management Guidelines" has 4 chapters: Operation to be performed in normal times,
operation of evacuation centers (during disaster), responding to needs and elimination of shelters. These
groups are divided into the following sub-groups and implement the relevant requirements.
In this guideline, there are a number of provisions that can be added to the legal documents of ourcountry and are aimed at citizens staying in evacuation shelters. For examples;- The issue of changing and washing clothes of the people who arrived at the evacuation center was
specially submitted. In doing so, it was legislated that “For disaster victims who evacuated with only theclothes on their backs, clothing should be taken into consideration. Beginning with underwear, try to secureclothing that is appropriate for their gender and age. Once the situation settles down, aim to create anenvironment where the victims can wash their clothes by themselves”.
- The guidelines also address the issue of domestic pets kept by residents who arrived at theevacuation shelter. In doing so, it was legislated that “Consider specific measures such as securing a place
for the pet owner to keep the pet at the shelter responsibly and preparing a cage or other container for thepet”.
- The issue of eliminate and consolidation of resettlement premises is very important, and this issue
will also be regulated by this guideline.

•"Guidelines for Securing and Managing Toilets at Shelters" has 3 chapters: Current station and challenges,
basic approach to securing and managing toilets and specific measures to secure toilets. In each chapter, theissues necessary to implement the relevant requirements were considered as sub-chapters.

In this guideline, there are a number of provisions that can be added to the legal documents of our country
and are aimed at citizens staying in evacuation shelters. For examples;- In securing and managing toilets during disasters, efforts should be made to actively incorporate the views of
disabled persons and women on the location of toilets and security measures, and to ensure that toilets fordisabled persons are separate from those for the general public. Also, it has been carefully calculated the
difficulties of using toilets for people with disabilities, children, women, and the elderly.
- The number of toilets required in the evacuation shelter is calculated using a special method based on the
total number of private toilets and emergency toilets in the facility.
- There are 5 different types of toilets used in evacuation centers: portable toilet, simple toilet, temporary toilets,
manhole toilet and other toilets the purpose of each of them is clearly specified in this guideline. Also, toilets
can be combined together. The combination of toilets in shelters during a disaster should be chosen to besuitable according to the passage of time since the disaster, the circumstances of the users and the facilitiesof the shelter, in addition to the lifeline situation and location of the shelter.

•"Guidelines for Securing and Managing Welfare Shelters" has 3 chapters: Efforts in peacetime, Efforts intimes of disaster and Use of welfare shelters, etc. under agreements. In each chapter, the issues
necessary to implement the relevant requirements were considered as sub-chapters. Significance andpurpose of welfare shelters and how to use this guideline, experiences of using welfare shelters are also
included.

In this guideline, there are a number of provisions that can be added to the legal documents of ourcountry and are aimed at citizens staying in evacuation shelters. For examples;- In this guideline, a schematic drawing of the Designated Welfare evacuation shelters and DesignatedGeneral evacuation shelters for people required care.
- The guidelines clearly describe issues such as who is responsible for the essential items in the welfare
shelters. The municipality, in cooperation with the facility manager, will develop the necessary facilities toensure that the facility functions as a designated welfare shelter and that people in need of assistance havea good living environment for their evacuation.
- Municipalities, in cooperation with prefectures, assign staff in charge of welfare shelters to liaise between
designated welfare shelters and disaster response headquarters, etc., and to coordinate volunteers, as wellas to assign specialized personnel and volunteers to designated welfare shelters.
- Issues such as the evacuation and transfer of citizens from welfare evacuation centers were resolved.
- In this guideline, it is legislated to separately regulate the issue of keeping citizens with disabilities,
pregnant and nursing mothers, and elderly people in need of special care in welfare evacuation shelter.

CONCLUSION

As a result of the research, the following conclusions were reached. It includes:❖ In Japan, evacuation shelter requirements are governed by 3 major guidelines: "Shelter Management
Guidelines", "Guidelines for Securing and Managing Toilets at Shelters" and "Guidelines for Securing andManaging Welfare Shelters".
These guidelines have been updated after mega disasters and based on experience gained fromthose disasters. In this way, the requirements for the evacuation shelter will become clearer and theimplementation and control will be improved.
❖ It is considered appropriate to add issues to the requirements for evacuation shelter of legal documents
implemented in Mongolia (Chapter 3.2).
❖ Based on many research, the government of Japanese has taken many measures to increase theparticipation of citizens during disasters. Therefore, citizens were trained in ways to protect others fromdisasters. Retired doctors, nurses, and firemen are also working as trainers, and they are also working inevacuation shelters. In Japan, many volunteers are trained and involved in disaster prevention activities.
In our country, we believe that it will be effective if we legislate how to use the knowledge of volunteer
activists and retired citizens to help others in times of disaster and employ them as trainers.
❖ One of the main indicators of the implementation of legal documents is to make people knowledge ofdisasters.
The measures to be taken during the disaster, the location of the evacuation shelter, how to get there, andwhat should be there are provided to the citizens as follows. For example: use of social networks, DRR
exhibition room, museum and other building constructions; documentaries and television programs; books,
manuals and newspapers for the general public; disaster risk reduction events; Use mobile applicationsetc.

Acknowledgement• I would like to thank you the Executive Director and Researchers of ADRC for giving me
the opportunity to do research and study in Japan. During this training, I learned a lot ofknowledge about disaster risk management and I also learned a lot about Japanesenational culture.
• Also thank you Mrs. Kodama and my mentor, Mr. Yamaguchi, for helping me find thenecessary materials and guide me in my research paper.

• Finally, I would like to wish good luck to the visiting researchers from other countries who
studied together at the ADRC training course.

Thank you for your attention
Arigato gozaimasu