How Persons with Special Needs attimes of Disaster (PSND) wereResponded to during 2007 March Noto
Peninsula Earthquake
Feb. 14th, 2008
Department of Sociology
Doshisha University
Shigeo TATSUKI(www.tatsuki.org/)Assessment Workshops on Responses toNoto Peninsula EQ Disaster for PSND’s•

PHN’s & City Dpt. Care Managers•Presidents of Neighborhood Assoc., District Welfare
Commissioner, Community Center Personnel, Volunteer FireFighter Chiefs （Moro-Oka Area（4 participants, Moro-Oka, May 15,（7 Personels, Monzen Branch, May 15, 2007）

2007）•Presidents of Neighborhood Assoc., District Welfare Commissioner•

District Welfare Commissioner, DWC assistant volunteers(Monzen, &Kuroshima District)（8 participants, Kawarada, May 20th

（10 participants at Monzen Public Health Center, May 21st）•Long-term Care Service Care Manager Meeting•

Community Center Personnel•

City Office Department Personnels（EOC, Monzen Branch, Wajima
Headquaters）（20 Participants, Wajima City Local Health Center, May 21st）（6 Participants, Monzen Branch Office, June 6th）

（19 participants, at Monzen Public Health Center, August 8）•

Individual Interviews to PSND’s & Their Families（10 participants atMonzen, To-ge & Moro-Oka Tem. Housing Projects, August 9th）

2007/May～Aug75
ParticipantsKuroshima

Community (Morooka, Kuroshima,Monzen) Response during the March 25
2007 Noto Peninsula Earthquake

MorookaMonzen

Community Residents (Morooka, Kuroshima, Monzen)
Placards that werehand wash,
used during the
Response (N=281) Gargle,thoroughOctober 2006 disaster
don’t want to be
drill were kept
0～10 “IHours
to move to thearound the evacuation(132 cards)
shelter because I
area, using it madecannot use the toilet
checking attendancethere,” said theof community
4750
elderly with weakresidents possible.
legs who was urged45(Morooka)
to move to the40
34
shelter.

Elderlypersons wereafraid to use
the portable
toilettes

1916

12

The shelter
established its
system of selfgovernance

24

20
10

3ventilation,
100～1000 Hours
separate eating and(73 cards)
sleeping quarters,
Smoothquarantine infected
reception ofpatients, persons incharge of toilets are aid becauseof the selfnot allowed inside
governancethe kitchenin theshelters were29
wellestablished

15
64

14
65

assistance for unevacuatedvictims
local residents responded towater and toilet concerns in theshelters
local residents conducted safety
checks,sanitation measures and boiled
with the ward/town mayor as
leader, started organizing theshelter acting as
started assistance for unevacuated victims（night patrol, coordinate needs
start with cleaning andstraightening own housethe shelter headquarters wasorganized and contact withoutside groups standardized
systematization of sanitation
measures at shelters
create a system of receiving
support from outside groups suchas medical teams andcontinue home visit, consultation
and assistance for those who did
not evacuate
helped with the management
within the community of garbages
incurred due to the earthquake
after the shelters were closed,
was able to finish tidying own
house and cleaning the shelter

Making the welfare maps
enabled the minseiiin tomemorize the maps,
therefore making it easier
to confirm if thevulnerable persons weresheltered.

create list of evacuees

6
confirm whereabouts and safetyofneighbors/evacuation/evacuationassemble evacuees at thetemporary evacuation area(placards and emergency kit were
patrolling around town after
evacuation/guiding
evacuation/persuasion
establish shelters（bolingrice/toilet）

11

confirm whereabouts and safetyof family members

35302520
1510
50

10～100 Hours(76 cards)

The community
members
independently
started managing
the shelters

The safety watch
over unevacuateddisaster victims
started the nextday

Continue safety watch
over vulnerable
individuals whostayed at home, tarp
sheets, garbage,
responding to requests,
pick-up service

Government’s (Departments in charge ofVulnerable Individuals) Response during theMarch 25 2007 Noto Peninsula Earthquake

The prefecture
public health nurse
is in charge ofmanaging
the0～10 Hours
assistancefrom(13%)
medical team,mental care team,18%
care helpers

16%
14%
12%
10%
8%
6%
4%
2%
0%

Consolidating themap intersecting
departments toassist thevulnerable
population took
until the evening tofinish3%
3%

turn over cases of persons urgently in need of temporary
short stay service to caremanagers

Outsideassistancestarted/welfare map
was utilized5%
6%

Thoroughimplementationof measuresagainstinfectious
disease (handwashing,sterilization,
separate
sleeping andeating areas,
private roomquarantine）

start assistance for disaster victims moving totemporary housing

measuresduring theHanshinAwaji EQ

refinement of the shelter use

5%start support for personnels

6%
2%

Utilize theguideline forshelter
assistance forvulnerable
individuals
during a disaster
3% 3%（4/5～）
3%
3%

establishment of welfare shelters

adjustment
emerged 16%

start mental health care support for unevacuated victims
by volunteers

10～100 Hours
VariousPlanning based
Manage(47%)
officialon the mapshelters

understood the nursing care tax reduction and proof ofdamage application processHelp

contacting families of elderly persons living alone is time
consuming and tricks are needed to explain things tothem. Were not able to provide regular short stayHelpvisit homes of vulnerable persons who refused toevacuate

Providecontinuing welfare services of unevacuated victims

Receive

response for evacuees in the welfare center

madeassistance/response for shelters (toilet concerns,
problematic cases, distribute hypo-allergenic baby food)3%

implement response for with high medical dependence(medical team dispatch, transport assistance tohospitals)

2%
3%

formulate plan to visit complete collapsed and partiallycollapsed houses

Outsidestrengthen support system for areas with rapid increaseof needs

create relief system (meetings, consultations, order of
dispatch, create maps for home visit)

5%

deliberate future assistance/relief structure

5%

create map intersecting departments to grasp overallsituation

check safety and whereabouts of 4-5 people in theoffice/confirm condition and enforcement of medicaltreatment

Response from Departments in charge ofVulnerable Individuals (N=86)
100～1000 Hours
Nosuch(41%)
16%5%Long-Term Care Service (LTCS)
Care Managers’ Response during theMarch 25 2007 Noto PeninsulaEarthquake

The emergency service
adjustment became anextension of the routine
official work

10%
8%

5%
3%
1%

0%

After 3 days,
the service
adjustments
became aroutine liketheir regulardaily officialwork
administer application for benefits, handling of
new cases and other routine office work

17%

explain tax exemption to clients andapplication assistance

10～100Checking
safety Hours
and location of(40%)
clients finishedafter 3 days

Routinization of emergency service
adjustments due to changes in the individualand his/her environment

Routine services were also administered3%
4%

Consultation and reporting with theprefectural office

Checking the safety andwhereabouts of clients
via telephone and home
visit started the same day

Emergency service adjustments due tochanges in the individual and his/herenvironment

0～10 Hours(26%)

checking up whereabouts and safety ofclients via telephone and home visit took up
3 days to finish

6%

clean up/check whereabouts and safety offellow workers

5%visit clients' homes to check up on them andhelp them evacuate

20%check safety and whereabouts of clients via
telephone25%

check office damage and safety of admittedclients

4%check safety and whereabouts of clients on
the way to workplace5%check damage/condition of workplace via
telephone

Response of Care Managers （N=235）
100～1000 Hours
(34%)

19%
17%

15%

9%

Who did What ?
0 to10hr, 10hr to 100hr, 100 to 1000hr
Disaster Phase Analysis

DRC Framework to Analyze
Organizational Response to DisasterTasks
RoutineNonroutine

Org.
Structure

Same asType IPredisaster
EstablishedType III

New

Type IV

Type II
Expanding

Extending

Emergent

Source：Quarantelli, E.L. What is a Disaster? NY:Routledge, 1998, p.115.

Organizational Response to DisasterCommunity Response：0～10hr
TasksRoutine

Nonroutine

Org.
Structure

Same asType I (Established) Type III(Extending)Predisaster
New
TypeII (Expanding) Type IV(Emergent)
Evacuation
Mobilizing
Assist.
Checking Safety/Residents
Whereabouts
Source：Quarantelli, E.L. What is a Disaster? NY:Routledge, 1998, p.115.

Organizational Response to Disaster
Care Mngr & City Dpt. Response：10～100hr
TasksRoutineNonroutine

Org.
Structure

Same asPredisaster

Work
Type III(Extending)Type I (Established)
Overtime Pref. PHN

NewTypeChecking
II (Expanding)
Safety/Helping Srvc. Receiving
Planning Adjst. Planning

Work
Overtime

Whereabouts
ServiceAdjustment

Type IV(Emergent)
ShelterManagementt

New Prsnl

Source：Quarantelli, E.L. What is a Disaster? NY:Routledge, 1998, p.115.

Organizational Response to Disaster

Care Mngr. Response：100hr～1000hr
Tasks

Org.
Structure

RoutineNonroutineSame asPredisaster

Type I (Established)Type III(Extending)New

Type II (Expanding)

Responding toRegular Clientele

Type IV(Emergent)ServiceAdjustment

Work Overtime
Source：Quarantelli, E.L. What is a Disaster? NY:Routledge, 1998, p.115.

Organizational Response to Disaster
City Dpt. Response：100～1000hr
Tasks
RoutineOrg.
Structure

Same asPredisaster

NonroutineType I (Established)

Work
Pref. PHN
Overtime
Receiving

Administrative jobs associatedwith ending & starting fiscal years

New

Type II (Expanding)Stress Care
OutsideHelp

Medical Team

Elderly Care
Team

Planning
Type III(Extending)Inter-Dprtmnt.
Welfare Shelter
Coordination

Consultation Staff Support

Type IV(Emergent)

TeamSheltering

Temp. Housing
Visit

New Prsnl

Source：Quarantelli, E.L. What is a Disaster? NY:Routledge, 1998, p.115.

Vulnerability as a function ofHazards, Person, & Environment
Vulnerability is NOT intrinsic to a
Person, but is a Social Construction

Hazard Maps are Made Available from Municipality,
Prefecture, & National Government Web Sites

Hazard Maps are Used as a Tool to Warn
Disaster Susceptibility

The Degree of Special Needs at times of Disaster can be
Measured Using Hazard Maps, & Person-Situation Profiles

HazrdPSND
PSN

GIS Mapping of Persons with Special
Needs at times of Disaster (PSND)

Kobe City ProjectLevels of Care Needs
About a half (47%) ofPreCaCarere
LeveCal1
reLeveCal2
reLeveCal3
reLeveCal4
reLevel560504030
20
100

the Respondents haddifficulty to evacuateby themselves

Ｎ＝１２３

Frequency

Social Isolation
Scale Items &Weights

GenderAge

M ale

46

0.411

Female77-0.265

Under 65

14-0.065

65 - 75

210.080

75 - 85

580.108

85 Using Shor- Yes
term Stay
NoService
Using Day- Yes
Care Services
No
Using Home- Yes
Help Services
NoTypes of Single
FamilyCoupleItem options weights
were obtained bymeans of Optimal
Scaling that assigned
weights to maximize
the internal consistency
reliability (Cronbach’salpha).

Weights

30-0.284

170.687

106-0.124

61

0.333

62-0.351

69-0.614

54

0.757

36-1.247

400.889

Living with Son

27-0.009

Living with Daughter

160.463

Living with Partent

11.108

Living with Grandchild2-0.438

Living with Sibling
Alone during Yes
DayNo

10.42157-0.802610.774

N.A.

5Spouse

32

1.091

Son

36-0.577

Daughter

28-0.218

Daughter in Law

50.142Sibling

5-1.145

Other2-0.303

N.A.

15

The Same630.666

The Same Block

7-0.198

The Same Ward13-0.857

Key Person

Key Person
Address

The Same City

8-1.511The Same Prefctr

4-1.251

Outside Prefctr

5-1.469

N.A.

23Female, over 85 yrs
of age, Using
home-help as
opposed to daycare or short-term
stay services, Living
alone, Not Livingwith key person

Housing Structure & Location ofBedroom Index
Frequency
Bedroom Floor

Weight

1st Floor

49-1.078

2nd Floor or above

740.712When the House

Before 198148-0.408

was built

After 1981

750.259

House Structure

Woden

31-1.550

RC-Reinforced

90

0.537

N.A.

2Estimating Relative Importance of the Three
Factors: A Paired Comparison Experiment
FactorRelative Importance

1. Level of Care Needs

2.6

2. Social Isolation
3. Housing Structure &Location of Bedroom

3.3
1.0

The above parameters were estimated from a paired
comparison experiment conducted to 18 caremanagers who responded to PSND’s during 2006 July
Flooding & Landslide Disaster in Shimo-Suwa
Township in Nagano Prefecture.

Kernel Density Mapping of 123 Respondents Who Reside within TonankaiNankai EQ High Tsunami Risk Zone (Population 1210 people)

SelfEvacuation
Ability

Degree ofSocial
Support
Housing
Structure &Location ofBedroom

Weighted Kernel Density Mapping of Persons with Special Needs or PSN’s

SN Index
Low

HighWeighted Kernel Density Mapping of Persons with Special Needs
at times of Disaster or PSND’s

SND Index
Low

High

Strategies for Creating
Individualized Evacuation &Sheltering Plans

Uozaki Tsunami PSND
Assistance Drill by Resident
AssociationsMarch, 2007

A Team Starting From Riverside PlazaA Team Starting from Hama-Park

A Team Starting from Hama-Park