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 Mongolia1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.

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Acknowledgement
First of all, I would like to express my gratitude to the Executive Director andResearchers of ADRC for giving me the opportunity to do research and study in Japan,
one of the most developed countries in the world. Through my training, I gained a lot ofknowledge about Japan's disaster management system. I also learned a lot about Japan's
national features, custom and culture.
Also thank you Ms. Miki Kodama, ADRC Researcher and ADRC 2022 Coordinatorfor her excellent facilitation and coordination from the beginning until the last day of
training. Thank you for your help me to participated in many events, conferences, andactivities on disaster risk reduction, during my studies in Japan, and introduced theactivities of many organizations working of the disaster risk reduction.
I would like to thank my mentor, Mr. Yamaguchi, for helping me find the necessary
materials and guide me in my research paper.
I would also like to thank the National Emergency Management Agency (NEMA),
National Institute for Disaster Research (NIDR) and teacher-doctor, (Ph.D), lieutenantcolonel Chimedtseren.P for giving me the opportunity to study this training.
Finally, I would like to wish good luck to visiting researchers from other countries
who studied together at the ADRC training course.

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CONTENTS
INTRODUCTION ........................................................................................................................5
1. AN ANALYSIS OF THE CURRENT SITUATION OF EVACUATION SHELTER DURING
DISASTER .............................................................................................................................7
1.1 Evacuation shelter for use during disaster and its needs ...................................................7
1.2 Common types of disaster and accident in Mongolia, and some experience of evacuation.............................................................................................................................................. 11
1.2.1 About Mongolia: ........................................................................................................ 11
1.2.2 Overview of disaster and accident in Mongolia ......................................................... 14
1.2.3 Some experiences of evacuation during accident and hazardous in Mongolia anddifficulties encountered ...................................................................................................... 20
1.3 Common types of disaster in Japan and some experiences of evacuation shelter........... 21
1.3.1 About Japan.............................................................................................................. 21
1.3.2 Overview of disaster in Japan ................................................................................... 23
1.3.3 Some experiences of used the evacuation shelter during disaster in Japan .............. 27
Conclusion of the chapter 1 ...................................................................................................... 33
2. AN ANALYSIS OF THE LEGAL REGULATION OF EVACUATION SHELTER DURING
DISASTER ........................................................................................................................... 35
2.1 An analysis of legal documents defining evacuation shelter standards in Mongolia ......... 35
2.2 An analysis of legal documents governing evacuation shelter standards in Japan .......... 40
Conclusion of the chapter 2 ..................................................................................................... 67
3. IN JAPAN, IMPLEMENTATION AND GOOD PRACTICES OF REQUIREMENTS FOREVACUATION SHELTER DURING DISASTER .................................................................. 68
3.1 Implementation of requirements for evacuation shelter during disaster ........................... 68
3.2 A comparative study of requirements for evacuation shelter during disaster .................... 76
Conclusion of the chapter 3 ..................................................................................................... 81
CONCLUSION.......................................................................................................................... 82
References: .............................................................................................................................. 86
Appendix................................................................................................................................... 87

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INTRODUCTION
Background:
The number of disasters and accidents and the amount of damage caused in
Mongolia has been increasing in recent years. This is due to factors such as climatechange, population growth, industrialization, and rampant urbanization and it has
becoming one of the factors affecting the safety of the population. For example, thenumber of earthquakes with a magnitude of 3.5 or higher in Mongolia increased from 64
in 2020 to 271 in 2021, indicating that the probability of a strong earthquake in our country
is increasing. According to the geophysical survey, 6 earthquake faults were recorded in
the capital city of Ulaanbaatar and its vicinity, and one of them passes through the city
center. Ulaanbaatar is one of the coldest cities in the world and more than 40% of
Mongolia's population lives there. Also, there are a total of 92360 buildings, of which 2248
are public housing units. According to the survey, there are 152 earthquake-resistantbuilding built before 1961, 111 buildings and 15 earthquake-resistant buildings built in
1961-1973 and 89 building built in 1973-1987, which are not earthquake-resistant. Basedon these facts and research, it can be seen that Ulaanbaatar has a poor ability towithstand the force of a large-scale earthquake.
Hazardous phenomena, accidents and disasters such as building fires, forest andsteppe fires, heavy snow and dust storms, flood and dzud are common in Mongolia.
During these accidents and disasters, possibility of evacuation of the people to asafety place or evacuation shelter until the situation normalizes, so the Government ofMongolia and the National Emergency Management Agency (NEMA) need to beprepared.
Therefore, it is necessary to evacuate people from disasters and accidents,
prepare to the evacuation shelters and in there the basic needs of people (housing,
drinking water, food, blankets, warm clothes, medical and psychological care andsecurity).
In the legal documents in force in Mongolia, the requirements for evacuation
shelters for citizens during disaster are briefly reflected in a too general way, so theirimplementation is insufficient.
Research methodology:
The research paper used the general scientific methods such as analysis,summarize, comparison and observation etc.

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Scope of the research work:
Based on legal documents and actual requirements, the problem of determining
the types and designations of shelters 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 forpeople in case of an earthquake or any other disaster will be compared with the standards
in Mongolia. Then, based on scientific evidence and research, proposals will be made tochange the basic requirements for updating the standards, norms, and rules of evacuation
shelters during disasters in Mongolia.

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1. AN ANALYSIS OF THE CURRENT SITUATION OF EVACUATION SHELTER
DURING DISASTER
1.1 Evacuation shelter for use during disaster and its needs
Disaster management consists of several activities that are implemented in 3
phases: pre-disaster, during the disaster and post-disaster. These include following
activities: prevention, mitigation, preparedness, response and recovery. Disastermitigation activities are part of the disaster implementation phase. This includes activities
such as activating the evacuation shelter, evacuating the disaster-affected and injured
population, opening shelters, providing public assistance, emergency rescue, medical
assistance, firefighting, and urban search and rescue. In the evacuation process, thepeople affected by the disaster are placed at a fixed point, registered, and taken to theshelter specified in the disaster protection plan in a unified manner.
Adequate shelter has a significant impact on human survival in the initial stages ofdisaster. A shelter requires more than just a roof for a space to be habitable. People living
in a shelter must have enough clothing, blankets, mattresses, stoves, fuel, and access toservices such as water and sanitation. Shelters are commonly roofed, secure, hygienic,
and live able locations for people to utilize during periods of disaster until they are able tomove back to their permanent dwellings. Many shelters are designed and planned so thatthey can be erected, dismantled, and stored for future use. These kinds of shelters arelightweight structures that can be used for a several purposes. Shelters include plastic
sheets, tents, prefabricated housing, and public community buildings such as leisurecenters, university halls of residence, places of worship, sports venues, and private
rentals.
In a study, researchers at the School of Civil Defense in England divided shelters
into the following five categories. It includes:-

Emergency shelters;-

Temporary shelters;-

Temporary housing and-Permanent housing.
However, the International Federation of the Red Cross and Red CrescentSocieties have added additional categories to these, such as transitional shelters,
progressive shelters, and core shelters/one-room shelters. Let's explain the role andpurpose of these shelters.

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Emergency Shelter: This type of shelter is used for brief periods of time to deliver
life-saving support and is the most basic kind of shelter support aside from staying inanother permanent building (to be used for a temporary period) for a single night to a few
days during an emergency. This kind of shelter commonly does not allow for the extensive
preparation of food or prolonged medical services.
Temporary Shelters: This type of shelter is meant for short-term use. A simple
tent or a public mass shelter used for a few weeks following a disaster constitute a
temporary shelter. The duration of stay in such shelters may be limited, and therefore,prioritizing speed and limiting costs should be taken to account when constructing thiskind of shelter.
Temporary Housing: This type of shelter is often distributed for long-term periods
such as six months to three years. Temporary housing such as rental houses andprefabricated unit allow people affected by a disaster to return to their normal daily
activities. In many cases, temporary houses are installed on temporary land.
Transitional Shelters: This type of shelter is usually developed by displaced
individuals themselves following a disaster, and such resourcefulness and selfmanagement should be supported. Transitional shelters are commonly relocated from a
temporary site to a permanent location, upgraded into part of a permanent house, resold
to generate income to aid with recovery, recycled for reconstruction, and reused for otherpurposes.
Permanent Housing: Permanent housing may be upgraded from a transitional
shelter, a progressive shelter, a core shelter, or even a new house. Such houses should
be resistant and resilient to future hazards and disasters.
Progressive Shelters: This type of shelter is designed and built to be morepermanent and upgradeable in the future through alterable structural components.
Core Shelters/One-Room Shelters: This type of shelter is designed and built with
the intent of being permanent housing in the future, including a foundation and all or someof the key services, such as plumbing and various utilities. The goal with this type ofshelter is to build at least one or two rooms to meet permanent housing standards andfacilitate improvement. However, these shelters are not intended to be a full permanenthouse.
In the "Requirements for temporary assembly areas, evacuation sites, andevacuation shelters" document, which is in effect in Mongolia, the evacuation shelters,

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temporary assemble area and evacuation site for the evacuation of citizens during
disasters are classified as follows.
Temporary assemble area: A safe area marked for disaster prevention, risk
reduction and population protection
Evacuation site: A safety location marked for evacuation and placement ofpeople and property for the purpose of disaster prevention, risk reduction and protection.
Evacuation shelter: Buildings that have been assessed for earthquake
resistance and general assessment at the administrative and territorial level also refer tomobile homes, tents, and "ger" built according to the season.
In Japan, when a natural disaster occurs, citizens are instructed by local
governments to go to shelters to ensure their own safety. Shelters are classified asfollows:
Emergency evacuation site: A facility or place where residents evacuate in an
emergency to ensure the safety of their lives under imminent danger of a tsunami or flood.
Evacuation shelter: A facility designed to allow evacuees to stay for a necessary
time period until the danger of disaster is over, or to temporarily let residents who areunable to return home stay due to disaster.
These revisions distinguished between places for emergency evacuation at thetime of a natural disaster, and schools and community centers where people could stayfor a specific period and live as evacuees.
Of this range of shelter types, it is best for authorities to understand which type ofshelter is most appropriate for a group of affects’ needs and conditions. Of these, theevacuation shelter will be further considered and studied according to the limitations of
my research plan.
Evacuation shelter needs pre- and post-disaster remains a major challenge forevery country is governments, humanitarian agencies, and, most important of all,survivors. Evacuation shelters are considered vital for personal safety, climate protection,
security, and resistance to disease and ill health.
Such evacuation shelters are commonly used until a displaced group of people
can be re-housed in either their rehabilitated original dwellings or new permanentaccommodations.
A shelter location may be required for periods that extend to several months oreven years after a disaster. Therefore, numerous factors should be taken to account whenplanning and designing shelters, such as their physical location and the wants and needs
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of likely users. Complementary support to shelters should come from all relevant
stakeholders (e.g., local communities, Non-Governmental Organizations (NGOs), local
politicians, and volunteers).
The provision of evacuation shelters is widely accepted as a necessary componentof response and recovery following disasters such as earthquakes, hurricanes, tsunamis,and floods. But the provision and performance of evacuation shelters in certain cases has
been hindered by inappropriate climate, cultural differences, poorly located settings,
camp-related social issues, expenses, overcrowding, poor services, and delays.
Therefore, the following factors should be considered in the evacuation shelter.
Climate change: The weather varies significantly between potential disasterlocations by season. People of different regions with different temperatures may finddifferent types of shelter more appropriate and comfortable based on their homeenvironment. Design details such as high ceilings and verandas can cause shelters in hot
weather to be cooler, and reducing air gaps or including a lobby area can keep shelters
warmer in cold weather.
Survivors should have fuel and stoves available, and they should be protected fromthe ground by mattresses and beds in extremely cold conditions. Furthermore, theyshould be supplied with proper clothing, stoves, and blankets. Ventilation is of vital
importance in hot-dry and hot-humid climates as well as shade from the sun. Shelters for
hot climates should also take to account possible temperature drops, particularly at night,
in open areas such as deserts, and in areas at a high altitude.
Hygienic (water & air): Promoting personal and environmental hygiene is requiredin order to protect people’s health. Water, sanitation and hygiene infrastructure andfacilities have to be adequate on campus. However, each of these is often complex innature and expensive. On the other hand, each are necessary for the health of survivors.
Water supply and sanitation are essential for people to wash themselves, their clothes
and bedding, to dispose of human waste, and to control disease-causing mosquitoes.
Food: Ways to improve affected’ nutrition should be considered, such as theirability to store, prepare, and cook food.
Type of shelter: There are several types of shelters that can be used in disaster
responses, such as plastic sheeting, tents, prefabricated units, and permanent buildings(to be used for a temporary period). A shelter’s structure should be designed so as toprotect its occupants from hazards such as earthquakes, storms and diseases.
Lifetime: The design and planning of shelters should understand their intended lifespans given the standards and conditions of the locations where they are to be built. Thus,10

in a shelter’s design process, it is important to take to account that a shelter may be hardto build rapidly and will require a significant amount of money if it must last a long time.
Sometimes it is preferable for money to be spent on the repair and development of
permanent houses rather than on temporary houses in such a situation.
Livelihood: Livelihood support for shelter users applies for the most part to longterm displacement scenarios. After providing initial shelters to affected people, support
groups can assist locals to begin earning money by helping them to start small businesses.
The psychological recovery process of an affected population can be facilitated byencouraging activities that support life and elevate the socioeconomic status of affected
people. For instance, people began to sell “Tamaki” and friendship bands made out offishing nets, key chains, slippers, and fabric bags were hand-made by women following
The Great Eastern Japan Earthquake.
Communication: Communication in the early stages of disaster recovery has asignificant impact on survivors, and their participation in recovery decisions during these
periods can reduce negative impacts and help them to think about requirements such as
their future living locations and needs. There are several possible means ofcommunication for a community to develop strong social networks: television, radio,
internet, mobile phone, newspapers, leaflets, posters, information packs, committees,
workshops, and training.
Evacuation and emergency shelter planning is part of broader emergency planningand preparedness. So, it is important to coordinate emergency shelter with evacuation
planning.
1.2 Common types of disaster and accident in Mongolia, andsome experience of evacuation
1.2.1 About Mongolia:
The territory of Mongolia is located in the central part of Asia between 41°35"52°08" of latitude and 87°44" -119°55" of longitude, neighboring with Russia along 3543
km in the north and with China along 4709.6 km in the south.
Mongolia comprises 1564.1 thousand square kilometers of land and the 7th largest
country in the Asia.
The capital city, Ulaanbaatar, has an independent administrative status as amunicipality, which consists of several urban districts.
The country is administratively organized into 21 provinces (Figure 1).

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Figure 1. Map of Mongolia (Political)

Topography
The average altitude is 1580 m and the highest point is the Huiten mountain peakwith 4374 meter above sea level and located in the west while the lowest is the Khokh
Nuur Depression with 532 meter above sea level and located in the east. The average
altitude is 1580 m above sea level and Ulaanbaatar is at 1350 meter.
The Mongolian heartland consists of relatively flat steppes. The southern portionof the country is taken up by the Gobi Desert, while the northern and western portions aremountainous.
The southern region is semi-desert and desert. The Gobi Desert covers about onethird of Mongolia and is composed primarily of rock and cliffs, as well as sand dunes inmore arid regions near the southern border.
Hundreds of lakes are scattered across Mongolia, the largest of which are LakeUvs at 3,350 km2 (1,293 square miles), Lake Khovsgol at 2,620 km2 (1,012 square miles),and Lake Khar Us at 1,852 km2 (715 square miles). The longest rivers are the Orkhon at
1,124 km (698 miles), the Kherlen at 1,090 km (677 miles), and the Selenge at 539 km(335 miles)
The rivers drain in three directions: north to the Arctic Ocean, east to the Pacific,
or into the deserts and the depressions of Inner Asia. Rivers are most extensively
developed in the north, and the country's major river system is that of the Selenge, which
drains into Lake Baikal. Some minor tributaries of Siberia's Yenisei River also rise in themountains of northwestern Mongolia. Rivers in northeastern Mongolia drain into the12Pacific through the Argun and Amur (Heilong Jiang) rivers, while the few streams ofsouthern and western Mongolia do not reach the sea but run into lakes or deserts.
Demographic data:
Mongolia has an estimated population of 3 409 939 people with 1,553,556 km 2 ofland area, Mongolia is the country with the lowest average population density in the world.
It has a little over 2 people per km2 (about 5 people per square mile). Mongolia’s
population is 66% settled and 34% nomadic.
Table 1. Number of population (2017-2021)
Year
Population2017
3 177 899

2018
3 238 479

2019
3 296 866

2020
3 357 542

2021
3 409 939

The ethnic makeup of Mongolia is approximately 83.8% Khalkh, 3.8% Kazakh,
2.6% Durvud, 2% Bayad, 1.4% Buriad, 1.2% Zakhchin, 1.1% Dariganga and 0.8%
Uriankhai.
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 most precipitation falls. The highest winds occur in April and May. January
is the coldest and July is the hottest.
The country averages 257 cloudless days a year, and it is usually at the center ofa region of high atmospheric pressure. Precipitation is highest in the north, which
averages 200 to 350 millimeters (7.9 to 13.8 in) per year, and lowest in the south, which
receives 100 to 200 millimeters (3.9 to 7.9 in).
January and February averages of −20 °C are common, with winter nights of−40 °C occurring most years.
Summer extremes reach as high as +38 °C in the southern Gobi region and +33 °C
in Ulaanbaatar.
Economics:
Mongolian economy activities based on livestock, agriculture and mining.
Approximately four-fifths of the value of agricultural production is accounted for by
millions of sheep, goats, cattle, horses, and camels, which are often referred to as the
livestock (five animals).
In the last several decades, mining has emerged as a dominant economic force,with construction and service sectors (including tourism) also playing a significant role inthe contemporary economy. Mongolia has large deposits of coal, fluorite (fluorspar),13

copper, gold, silver, and other metallic ores. Coal is the predominant mining product,
produced primarily for domestic use although some is exported to other countries.
Agriculture plays the second largest role in the modern economy, accounting for
35% of employment, 11-20% of GDP,73 30% of exports, and 14% of foreign exchange
revenues.
1.2.2 Overview of disaster and accident in Mongolia
The frequency of disasters and their impact has increased over recent years
including Mongolia, as a result of global climate change, with disturbances to ecologicalbalance and urbanization. Disaster can lead to widespread loss of life, directly andindirectly affect large segments of the population and cause significant environmental
damage and large-scale economic and social harm. Classification of natural and humaninduced hazards in Mongolia is shown on Table 2.
Table 2. Natural and human induced hazards in Mongolia
Classification
Type
Disasters
Natural hazards Climatic
Hazardous Snow and dust storm
and disasters
Phenomena
Dzud
Flood
Forest and steppe fireDesertification
Geological threats
Earthquake
Landslides
Biological threats
Livestock and animal infectious diseases
Human infectious disasterSpread of detrimental rodents
Human induced Technological accidents
Building fire
hazards
Traffic accidents
Leakage of chemical and radiologicalsubstances
Explosion
Industrial accidents

The study of the total number of hazards and dangerous incidents in Mongolia canbe seen in Table 3.
Table 3. Recapitulation of natural and human induced hazard and disaster occurrences/2012 - 2021/
Years
Numbersofnaturalandhuman induced
hazardNumber of deaths

2012

2013

2014

2015

2016

2017

2018

2019

2020

2021

4047

4467

4928

5426

4373

3758

4373

4990

4006

12694

237

201

175

198

225

193

208

203

248

2304

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Livestock deaths/thousand heads/

13.1

235.6

13.2

202.9

1059.3536.1

1 417.0

26.2

80.9

155.03

According to the above research, the number of disasters occurring in Mongolia inrecent years tends to increase.
Therefore, it can be seen that the number of people who lost their lives, the numberof dead livestock and the total amount of damage have increased dramatically.
Mongolian economy is heavily reliant on the livestock sector. As the livestock
sector is highly sensitive to extreme weather, and the natural resource represented by
pastureland, rural householders are much more vulnerable to negative impact of climate
hazards such as dzuds and severe snow and dust storms.
Mongolian most populated provinces that situated near the bigger river blanks andalso the nomads that move frequently around the 4 seasons, especially in fall andsummer season on the mount gap, dry pebbles, valley, nearby river are causing andincreasing in the flood risk.
The following disasters are common in Mongolia.
Dzud:
The dzud is a weather-related phenomenon unique to Mongolia due to thecountry’s unusual environment that is landlocked, semi-arid, and given to swings intemperature and precipitation. It is caused by the combination of drought in the summer
followed by severe freezing weather and storms in the winter.
When droughts occur in the summer, animals of the steppe are not able to eat
enough and fail to gain the protective fat that enables them to survive the icy winters.
Additionally, herders are not able to collect enough hay to store throughout winter. Whenthese hot, dry summer conditions are followed by severely cold winters, animals are notable to graze for enough sustenance to build up fat stores and core muscle strength toendure the winters. When feed supplies run out, the livestock weaken until they freeze or
starve to death.
In Mongolia, the following types of dzud are recognized:•

White dzud results from high snowfall that prevents livestock from reaching thegrass. It is a frequent and serious disaster that has caused a great number ofdeaths.

•Black dzud results from a lack of snowfall in grazing areas, leading to both livestockand humans lacking water. this type of dzud does not occur every year, nor does
it affect large areas. it mostly happens in the Gobi desert region.

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•

Iron dzud results from a short wintertime warming, followed by a return to subfreezing temperatures. the snow melts and then freezes again, producing an
impenetrable ice-cover that prevents livestock from grazing.

•

Cold dzud occurs when the temperature drops to very low levels for several days.
the cold temperature and the strong winds prevent livestock from grazing; theanimals have to use most of their energy to keep warm.

•

Combined dzud is a combination of at least two of the above types of dzud.
Mongolian society has historically been nomadic and based on herding, which still

provides the primary source of income for many Mongolians. Agriculture is comprised by
80% herding and is the second largest contributor to the economy, accounting for 19% of
GDP but employing 36% of the working population.
Figure 2 is a bar chart that shows the percentage of national livestock that diedeach winter, with spikes evident during the worst dzuds and severest winters.
Figure 2. Percent of National Livestock that Died Each Winter (1970-2018)

In the 2000s, the country lost tens of millions of head of livestock, with the most
severe mortality occurring in the 2000-2002 and 2010 winters. The 2009-2010 dzud alone
killed 22% of the nation’s livestock.
Dzuds are disastrous for the herders, often bringing an end to their livelihood.
Figure 3. As a result of the Zud disaster, a lot of damage is caused to livestock16

Flood:Mongolia’s exposure to risk of flooding is considered high. The majority ofMongolia’s floods stem from rainfall
The country typically sees three types of floods:-

Spring or snow melt flood wherein river levels slowly rise and overflow their banks over a
relatively longer period of time;-

Rainfall flood wherein a quick rise of water levels from heavy rainfall leads to overflowing
banks;-

Flash flood wherein heavy rainfall over steep riverbeds causes turbulent flows of wateralong with rocks, sediment, and other surface materials.

Flooding affects both rural and urban areas, and in the capital old bridges, roads,
and avenues built without sewage systems have been severely affected.
Figure 4. Flood damage in Mongolia

Snow and dust storms:
Snow and dust storms occur frequently in Mongolia due to natural conditions,geography and climate features. Snow and dust storms severely affect the Mongolian
ecosystem, economy, society and population health, resulting in natural disaster.
Rapid and massive land degradation such as desertification in the past few
decades has contributed to increased occurrences of severe storms in Mongolia. The
Gobi Desert, which comprises about 41% of Mongolia, experiences dust storms for 30100 days per year. Overgrazing also contributes to dust storms, as the total Mongolian
herd has tripled in size in the last three decades.
As a result of strong snow and dust storms, herding families living in rural areas
suffer a lot. They get lost from their homes and their houses collapse and their animals
died. If the strong snow and dust storms last for several days, it is impossible for herders
to reach for help and communication is lost.

17Figure 5. Strong snow and dust storm in Mongolia

Forest and steppe fire:
In Mongolia, forest and steppe fires usually occur in spring and autumn.
Spring weather brings strong, dry winds, which of prevalent from March throughJune, these winds increase fire risk in dry, dead grass from the previous fall.
The little rain Mongolia receives falls primarily in the summer, producing new grass
growth. In the autumn the new grass dries out, becoming potential fuel for wildfires during
September and October.
Winters are usually very cold and dry. Typically, the majority of wildfires in
Mongolia occur in the grasslands or grass understory of the steppe and mountain steppezones.
Forest and steppe fires cause a lot of damage to the environment, animals andplants.
Figure 6. Mongolian economy suffers a lot of damage every year due toforest and steppe fires

Animal diseases:
3.4 million Mongolians have 71 million livestock. Livestock includes cow, sheep,
horse, camel, and goat. About 200,000 families raise livestock in Mongolia. So, there areabout 300-1000 animals in 1 herding family. Because there are so many animals in one
place, there are many infectious diseases in animals. Mongolian people consume themeat, milk, and skin of their livestock, so animal infectious diseases are very damaging
to Mongolian people’s life and Mongolia's economy.

18

There are 15 types of serious animal infectious diseases registered worldwide. In
recent years, a number of serious livestock and animal infectious diseases, such as footand-mouth disease, rabies, avian influenza, and anthrax occurred in Mongolia.
Foot-and-mouth disease caused by virus of the Picornaviridae family, althoughthought to be eradicated in Mongolia, in 1973, it reappeared along the Chinese border in
2000. In the last decade, foot-and-mouth disease mostly occurred in the eastern part ofMongolia.
Rabies remains an endemic problem especially among dogs, wolves and livestockcases reported in Mongolia. The peak prevalence of animal rabies occurred in the 1970s.
the number of rabies cases in animals decreased during the 1980s. This may have been
due to a decrease in the number of wild reservoir animals and the improvement ofappropriate veterinary measures. In recent years, animal rabies has prevailed in the
Khangai and western provinces.
Anthrax is endemic throughout Mongolia, except in the semi-desert and desert
areas of the south. The prevalence of anthrax in Mongolia had drastically since the 1950s,
due to the use of anthrax antiserum and vaccines, but the privatization of the animalhusbandry sector and changes in the structure of the veterinary and medical delivery
systems in Mongolia over the last decade has resulted in challenges for disease control.
Animal and human anthrax has become an increasing problem since the mid-1990s.
Highly pathogenic avian influenza (H5N1) was first recognized in late 2005 andsubsequently identified in 2008 and 2009 among the wild birds.
Figure 7. In recent years, the number of infectious diseases of animals has increased.

Earthquake:
Mongolia has a high risk of earthquake hazard, with more than a 20% chance of apotentially damaging earthquake occurring in the next 50 years, and newly discoveredrisks to the capital.
Mongolia has a high risk of earthquake hazard and experienced four magnitude 8
earthquakes during the last century. The highest risks had historically been in the far
northern, southern, and western areas of the country. Smaller magnitude earthquakes
19

occur very frequently, with more than 200 earthquakes of magnitude above 3.5 in every
year.
Mongolia has suffered no catastrophic damages so far, partially due toearthquakes heretofore striking sparsely populated areas outside the capital where therural population live in gers, whose flexible construction make them less prone to damage.
However, recently discovered earthquake risks to the capital are spurring renewed
preparation activities. While Ulaanbaatar’s exposure to earthquake hazard waspreviously considered very low, publications in 2019-2020 detailed the newly discovered
Ulaanbaatar Fault, an active 50-km (31-mile) long fault crossing the urban area of thecapital. Based on its length, the fault is believed to be capable of causing earthquakes
with magnitudes greater than 7, which could result in considerable building damage andheavy casualties in the metropolitan area.
1.2.3 Some experiences of evacuation during accident and hazardous in Mongolia
and difficulties encountered- In 2012, a 5-liter liquefied gas fuel cylinder used by a family on the 7th floor of apublic 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 toprovide relief to people, prevent them from getting cold, eliminate the effects of the
explosion, and rebuild, and approx. 100 people were evacuated to safety places.
Figure 8. The evacuation process of citizens- In 2015, the wall of an apartment building in Bayangol district of Ulaanbaatar city
was in danger 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 ofcollapse" and took the following measures, respectively.
20

About 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 werereleased from the building.
- In July 14-16, 2018, mountain floods occurred 3 times in most of Bayan-Olgii
province due to continuous heavy rains. Approx. 2500 citizens affected by the flood were
evacuated from the disaster site.
Figure 9. The evacuation process

1.3 Common types of disaster in Japan and some experience of evacuation
shelter
1.3.1 About Japan
Japan is an island country located in the western Pacific Ocean. Total land area is
about

378,000

squarekilometers.

Japan

is

dividedinto 47

administrative

prefectures and eight traditional regions. The Greater Tokyo Area is the most populous
metropolitan area in the world, with more than 37.2 million residents.
Figure 10. Map of Japan21

Topography
More than 70 percent of land surface is mountainous.
Japan comprises 14,125 islands extending along the Pacific coast of Asia andfive main islands, from north to south, are Hokkaido, Honshu, Shikoku, Kyushu andOkinawa.
The Ryukyu Islands, which include Okinawa, are a chain to the south of Kyushu.
The Nanpō Islands are south and east of the main islands of Japan. Together they areoften known as the Japanese archipelago. As of 2019, Japan's territory is 377,975.24
km2 (145,937.06 sq mi). Japan has the sixth-longest coastline in the world at 29,751 km2(18,486 mi). Because of its far-flung outlying islands, Japan has the eighth-largest
exclusive economic zone in the world, covering 4,470,000 km2 (1,730,000 sq mi).
The Japanese archipelago is 67% forests and 14% agricultural.
The habitable zones, mainly in the coastal areas, have very high population
densities: Japan is the 40th most densely populated country. Honshu has the highest
population density at 450 persons/km2 (1200/sq mi) as of 2010, while Hokkaido has thelowest density of 64.5 persons/km2 as of 2016. As of 2014, approximately 0.5% of Japan's
total area is reclaimed land (umetatechi). Lake Biwa is an ancient lake and the country's
largest freshwater lake.
Demographic data:
Japan has a population of 125.4 million, of which 122.8 million are Japanesenationals (2021 estimates). A small population of foreign residents makes up theremainder.
In 2019, 92% of the total Japanese population lived in cities. The capital city Tokyo
has a population of 13.9 million (2022).
Japan is an ethnically and culturally homogeneous society, the Japanese people
form 98.1% of the country's population. Minority ethnic groups in the country include theindigenous Ainu and Ryukyuan people. Zainichi Koreans, Chinese, Filipinos, Brazilians
mostly of Japanese descent and Peruvians mostly of Japanese descent are also among
Japan's small minority groups. Burakumin make up a social minority group.
Climate information:
The climate of Japan is predominantly temperate but varies greatly from north tosouth. The northernmost region, Hokkaido, has a humid continental climate with long,cold winters and very warm to cool summers. Precipitation is not heavy, but the islands
usually develop deep snowbanks in the winter.
22

The Pacific coast features a humid subtropical climate that experiences milder
winters with occasional snowfall and hot, humid summers because of the southeast
seasonal wind.
The Ryukyu and Nanpō Islands have a subtropical climate, with warm winters andhot summers. Precipitation is very heavy, especially during the rainy season.
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 theUnited States and China; and the fourth-largest economy by PPP. As of 2020,
Japan's labor force is the world's eighth-largest, and consists of 66.5 million workers. Asof 2021, Japan has a low unemployment rate of around 2.8%.
The Japanese yen is the world's third-largest reserve currency after the US dollar
and the euro.
Japan was the world's fourth-largest exporter and importer in 2021. Its exports
amounted to 15.6% of its total GDP in 2020.
Its main exports are motor vehicles, iron and steel products, semiconductors, andauto parts.
Japan's main imports are machinery and equipment, fossil fuels, foodstuffs,
chemicals, and raw materials for its industries.
It ranks highly for competitiveness and economic freedom.
1.3.2 Overview of disaster in Japan
Japan is affected by Typhoon mostly every year and Volcanic disasters triggeredby eruption and volcanic earthquake. Japan is earthquake prone area due to thegeological formation with plate boundaries of the Pacific plate, the Philippine Sea plate,the Eurasian plate, and the North American plate. Classification of natural disaster inJapan is shown on Table 4.
Table 4. Natural disaster in JapanClassification
Type
Disasters
Natural hazards Climatic
Hazardous Floodand disasters
Phenomena
Typhoons
Heavy Monson rains
Geological threats
Earthquake
TsunamiLandslides
Volcanic eruptions
Snow avalanches
23

The following disasters are common in Japan.
Earthquakes:
Japan is located at a point on the earth’s surface where four of more than 10
tectonic plates covering the globe are crushed against each other, making it earthquakeprone. More than 20% of the world’s earthquakes have occurred in or around Japan.
Figure 11. World Geographic Distribution of Hypocenters and Plates

Japan is well acquainted with the massive inter-plate earthquakes produced byplate subduction and the inland crustal earthquakes caused by plate movement such as
the Great Hanshin-Awaji Earthquake of 1995）.
Table 5. Major earthquakes recorded the past 30 years

1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16

Date
1982.03.21
1993.01.15
1994.10.04
1994.12.28
1995.01.17
1997.05.13
1998.09.03
2000.07.01
2000.10.06
2001.03.24
2003.05.26
2003.07.26
2003.09.26
2004.10.23
2005.03.20
2005.08.16

Earthquakes
Uraga-oki Earthquake
Kushiro-oki Earthquake
Hokkaida-Toho-oki Earthquake
Sanriku-Haruka-oki Earthquake
Great Hanshin-Awaji Earthquake
Sashuma ragion in Kagoshima Prefecture
Northern region in Iwate Prefecture
Niijima and Kozushima Earthquake
Western Tottori Earthquake
Geiyo Earthquake
Miyagi-ken-oki Earthquake
Northern Miyagi Earthquake
Tokachi-oki Earthquake
Nigata-ken-Chuetsu Earthquake
Fukuoka-ken-Seihou-oki Earthquake
Miyagi-ken-oki Earthquake
24

Figure 12. Mechanism of earthquake occurrence around Japan

Tsunami:Surrounded by water on all sides with long and complex coastlines, Japan is highly
vulnerable to earthquake-generated tsunamis. In reality, there has been severe damage
caused by various tsunamis in the past, including the Meiji-Sanriku Earthquake Tsunami(1896), Nihon-kai-Chubu Earthquake (1983), and Hokkaido Nansei-oki Earthquake(1993).
In addition to local tsunamis generated by earthquakes near the coast, Japan has
also suffered major damage from the onslaught of distant tsunamis generated by opensea earthquakes. In 1960, a tsunami generated by the Chile Earthquake crossed thePacific Ocean and reached the shores of Japan about 22 hours later, killing 142 people.
When a tsunami is expected to cause coastal damage, the Japan Meteorological
Agency issues a tsunami warning or advisory within 2-3 minutes after the earthquake andthen follows up with announcements about the estimated height and arrival time of thetsunami. The information is transmitted immediately to disaster management
organizations and media outlets, and further forwarded to residents and maritime vessels.
Table 6. Tsunami history
DisasterYear

Meiji Sanriki Earthquake Tsunami
Showa Sanriki Earthquake Tsunami
Tonankai Earthquake
Nankai Earthquake
Chile Earthquake Tsunami

1896
1933
1944
1946
1960
25

Number of casualties andmissing /approx..people/
22000
3064
1223
1443
142

1968 Tokachi-oki Earthquake
1983 Nihon-kai-hubu Earthquake
2003 Hokkaida-Nansei-oki Earthquake

1968
1983
1993

52
104
230

Volcano:Located along the circum-Pacific volcanic zone, Japan has 108 active volcanoes,
about 10% of all the world’s active volcanoes.
Eruptions or other abnormal events are observed at about 15 volcanoes annually.
Most recently, there were eruptions at Mt. Usu and Miyake Island in 2000, and at Mt.
Asama in 2004.
Volcanic eruptions lead to the occurrence of various phenomena such as lava
flows, pyroclastic flows, ash fall and mudflows, and cause massive damage.
Such disasters may continue for long periods of time, as in the case of Miyake
Island, where the entire population was forced to evacuate the island and stay away for
four and half years.
Storm and Flood:
Japan is prone to a variety of disasters including flooding, landslides, tidal waves
and storm hazards, owing to meteorological conditions such as typhoons and active
weather-front systems and geographical conditions such as precipitous terrains andsteep rivers, as well as social conditions where many of the cities are built on river plains.
Figure 13. Storm and Flood disasters in Japan

One-half of the population is concentrated in possible inundation areas, which
accounts for about 10% of the national land. Although there has been a large reductionin the area inundated by floods owing to soil conservation and flood control projects overmany years, the amount of general assets damaged in flooded areas has quickly
increased in recent years.

26

Figure 14. Increasing tendency of torrential rainfall

1.3.3 Some experiences of used the evacuation shelter during disaster in JapanThe Great East japan Earthquake
On March 11, 2011, an earthquake of magnitude 9.0 occurred in the Pacific Ocean
off the coast of Japan’s Tohoku region. The quake shook the ground as far away as
western Japan and lasted for several minutes.
Figure 15. The Great East Japan Earthquake27

A half-hour later, a tsunami of unprecedented force broke over 650 kilometers (km)of coastline, toppling sea walls and other defenses, flooding more than 500 square
kilometers (km2) of land, and washing away entire towns and villages.
Figure 16. Intensity of earthquake and height of tsunami

The devastation left some 20,000 people dead or missing, with most of the deaths
caused by drowning (Table7). The tsunami leveled 130,000 houses and severely
damaged 270,000 more. About 270 railway lines ceased operation immediately following
the disaster, and 15 expressways, 69 national highways, and 638 prefectural andmunicipal roads were closed. Some 24,000 hectares of agricultural land were flooded.
The areas worst hit were the Fukushima, Iwate, and Miyagi prefectures.
Table 7. The Great East japan Earthquake of 2011 in figures*
Magnitude of earthquake
Mw 9.0 Depth: 24 Km
Deaths19 759Missing
2 553
Injured
6 242
Totally or partially destroyed houses
405 166
Economic damage
approx. 17 trillion yen*-Reference: cabinet Office,https://www.bousai.go.jp/2011daishinsai/pdf/torimatome20220308.pdf

Situation and organization of evacuation shelters:
After the Great East Japan Earthquake (GEJE), nearly 2,500 evacuation centerswere established in the disaster-affected Tohoku region; additional centers were also
located outside of Tohoku. At peak occupancy, more than 470,000 people were staying
at these centers (figure 17). Most facilities, such as schools and community centers, were
publicly owned and had been designated as evacuation centers even before the GEJE.
28

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 (figure 18); also, a number of
evacuees stayed with their relatives or friends.
Figure 17. Number of evacuees after the GEJE

Figure 18. Number of evacuation centers

Evacuees gradually moved out of the centers as the construction of transition
shelters progressed. Within four months after the disaster, about 75 percent of evacuation29

centers were closed, although some centers in Tohoku stayed open as long as ninemonths.
Figure 19. Number of times people in Fukushima had to evacuate

The evacuation pattern in Fukushima,
where the nuclear accident occurred after
the GEJE, was very different from otherdisaster-affected areas in Tohoku. In
Fukushima many people had to relocatefrom one center to another, moving
further from the crippled nuclear power
plant as information became available on
the risk of radiation exposure. More than 10,000 people had to change evacuation
centers three or more times, with some people moving as many as 10 times(Figure 19).
Difficulties encountered in evacuation shelters:
The following difficulties were encountered in the 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 washampered by damaged roads and a shortage of vehicles and fuel. This problem wasexacerbated 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 thedisaster-affected areas, and in some places were not restored even after one month.
These problems made life miserable for the evacuees. For example, they had difficultyusing toilets without water for flushing. The cold weather in northeastern Japan and lackof electric heating in the facilities made many evacuees vulnerable to illness, especiallythe elderly. As the evacuation period became prolonged, the inability to bathe was also a
serious issue. People could not stay in their high-rise apartments in Sendai City becauseof water and power failures. Since they could not continue to carry water and food upstairs
to the higher stories, they moved to evacuation centers until public services were restored.

Self-management by evacuees:
30

Although managing evacuation centers is a municipal responsibility, mostmunicipalities in the disaster-affected 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 theevacuation period became extended, evacuees themselves started taking a number of
initiatives. At many shelters, a self-governing body emerged, with leaders and membersof various committees selected by the evacuees themselves. For example, evacuees at
the Ofunato Junior High School in Iwate Prefecture organized themselves into several
groups for nursing, sanitation, food, facilities, supplies, and heating. At one school in
Minamisanriku in Miyagi Prefecture, evacuees divided themselves into 20 groups, basedon the communities they came from before the disaster, and assigned themselves roles
and responsibilities for day-to-day activities. An event hall called the Big Palette in
Koriyama, Fukushima Prefecture, admitted more than 2,000 evacuees mainly fromTomioka Town and Kawauchi Village, both affected by the nuclear disaster. Theseevacuees established a volunteer center at the hall, where volunteers and the evacuees
themselves helped organize activities such as opening three cafes, starting an FM radio
station, organizing a gardening event, and undertaking a summer festival. The volunteer
center provided opportunities for the evacuees to help themselves and engage inproductive activities, thus improving their daily well-being.
Gender sensitivity:
One of the problems cited at many of the centers was a lack of gender sensitivity.
There simply wasn’t enough privacy for anyone, particularly not for female evacueesmany did not have private spaces where they could change their clothes or breast-feedtheir 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 ofmale evacuees. This was mainly because it was mostly men who were managing thecenters, 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, especially children, and therefore need special mental health care and counselingservices as evacuation periods extend. But the availability of such services varied from
center to center. Taking care of the elderly and others who needed special attention wasanother big challenge. At many centers, all the special needs groups had to share thefacilities with the other evacuees. But Sendai City in Miyagi Prefecture had about 30
special centers called “welfare shelters” that provided nursing and other care for the31

elderly, the disabled, and other groups. About 250 people and their families weretransferred to these from other centers.
Managing with a human face:
A close relationship should be established early on between evacuees and local
officials who are responsible for managing the centers. A good practice in this regard
came from Hachinohe City in Aomori Prefecture. Right after the GEJE, there were about
120 families at eight evacuation centers in Hachinohe. The city government assigned two
officials to every seven or eight evacuated families with whom they could consult on any
issue. For example, they had questions about subsidies for future housing and livelihood
recovery. The relationship established with the officials at the evacuation centers
continued even after the evacuees had resettled in private or public rental houses.
Although this arrangement was possible because of the relatively small number of
evacuees in a relatively big city with more than 2,000 officials, the city should neverthelessbe commended for its initiative.
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 (located relatively far from the crippled plant), 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 jurisdictionalboundaries because of radiation risks. In most cases, however, the evacuation centerswere managed by the evacuees’ municipalities rather than by the hosts’.
Lessons:
The following lessons have been learned from the above problems.
Designate evacuation centers in safe locations:
While it may not be possible to be perfectly prepared for a mega disaster like the
GEJE, it is nonetheless essential to designate evacuation centers in safe locations andequip them with as many emergency supplies as possible. Many prefectures andmunicipalities all over Japan are conducting ex post evaluations to assess the locationand number of evacuation centers and the adequacy of supplies at these centers.
Prepare for primary service interruptions:
Since a mega disaster is likely to interrupt essential services such as water andpower, it is critical to install alternatives such as portable toilets and power generators.
32

Sendai City is planning to equip its designated facilities with renewable energies, such as
solar panels, as a backup power source.
Evacuees should take part in managing activities and services at evacuation
centers:
They are not guests who are simply receiving food and materials, but capableenough to manage the evacuation centers themselves.
Anticipate different needs in evacuation centers:
Evacuees consist of diverse groups of people who have different needs and wants:
women and children, the elderly, the disabled, and some foreigners. Those in charge ofmanaging evacuation centers should be sensitive to this diversity. It is also critical thatwomen are included in management and leadership positions at these facilities.
Creative management pays:
Some local governments have come up with innovative arrangements for
managing evacuation centers and supporting evacuees. These governments shouldshare their experiences and learn from one another so that good practices may be
replicated in the future.
Providing the information that disaster victims need is not only critical to their wellbeing but also comforting. It is important to listen to evacuees to understand what kindsof information they need and want, and to continue listening as their needs change overtime.

Conclusion of the chapter 1
Disaster mitigation activities are part of the disaster implementation phase. This
includes activities such as activating the evacuation shelter, evacuating the disaster33

affected and injured population, opening shelters, providing public assistance, emergency
rescue, medical assistance, firefighting, and urban search and rescue. In the evacuation
process, the people affected by the disaster are placed at a fixed point, registered, andtaken to the shelter specified in the disaster protection plan in a unified manner.
Among these activities, attention to the improvement of the requirements for the
standards of evacuation shelters for the evacuation of citizens during disaster is asignificant measure.
Each country has a different name for evacuation shelters. However, since themain functions of evacuation shelters during disaster are the same, I decided to use theterm "evacuation shelter" according to the limitations of the research paper as mentioned
in the legal documents of Japan.
When building evacuation shelters for the evacuation of citizens during disaster,
the government and related organizations should consider many issues such as weather
conditions, construction quality, safety, food supply, the country's economic situation, andcommon disasters.
Therefore, in this first chapter, I studied Mongolian and Japanese some informationsuch as the geographical location, population, economic and common disasters andaccidents.
Also, the some experience of evacuating citizens during disasters in Mongolia andJapan and the difficulties and lessons learned in the evacuation shelter were studied.
The following problems need to be taken into consideration from the problems that
occurred in evacuation shelters after the mega disaster (earthquake) in Japan. It includes,
designate evacuation shelters in safety sites, prepare for primary service interruptions,evacuees should take part in managing activities and services at evacuation shelters,
anticipate different needs in evacuation shelters, creative management pays andproviding the information that disaster victims need.

34

2. AN ANALYSIS OF THE LEGAL REGULATION OF EVACUATION SHELTER
DURING DISASTER
2.1 An analysis of legal documents defining the evacuation shelter standards inMongolia
In Mongolia, the requirements for the evacuation of citizens and evacuation
shelters during disasters are regulated by legal documents such as the "Law on
Protection from Disasters"; the Resolution No. 340 of 2011 of the Government ofMongolia - "Procedures for Evacuation of Citizens during disasters" and “Procedures forthe mobilization of forces during disaster”; Deputy Prime Minister's Order No. 75 of 2017
- "Disaster Protection Professional Class Rules" and Order No. A/305 of 2020 of the
Director of the National Emergency Management Agency - "Requirements for temporary
assembly areas, evacuation sites, and evacuation shelters". The purpose of these law
and rules are shown in Table 8.
Table 8. Study of some legal documents implemented in Mongolia
Name of the laws and rules"Law on Protection from Disasters"

the Resolution No. 340 of 2011 of theGovernment of Mongolia:
1. “Procedures for the mobilization of forces
during disaster” and2. "Procedures for evacuation of citizens
during disasters"

Deputy Prime Minister's Order No. 75 of 2017
- "Disaster Protection Professional Class
Rules"

Disaster management plan for governors ofprovinces, capitals, sums and districts

Order No. A/305 of 2020 of the Director of the
National Emergency Management Agency -The purpose
The purpose of this law is to organize promptand effective disaster prevention activities,
and regulate the relationship between
emergency organizations and disasterprevention
management
systems,organization, and activities.
1. This procedure regulates relations related
to the prevention of potential disasters,
evacuation and placement of people,
livestock, animals and property in a safe
environment.
2. This procedure regulates relations related
to the involvement of manpower andequipment for the purpose of carrying out
disaster rescue, damage removal, andimmediate reconstruction activities.
This rule governs the activities of professional
units that aim to prevent potential disasters,
search and rescue at disaster sites, eliminate
harm, provide medical and humanitarian aid tovictims, and support immediate reconstruction
operations.
It is a management document for disasterprevention, preparedness, search and rescue,disaster relief, immediate reconstruction, andhumanitarian assistance.
The purpose of this requirement is to evacuate
the population from the area of the disaster

35

"Requirements for temporary assembly areas, site, dangerous phenomenon, accident,
evacuation sites, and evacuation shelters"
provide first aid to the victims, organize
measures to provide food, prepare temporary
assembly areas, evacuation sites, andevacuation shelters.

Article 34.2.8 of the Law on Protection from Disasters: "Equipping buildings andshelters for the needs of your organization in times of disaster and danger, and making
them available to the population if necessary" and in Article 19.1 of the law, "In the eventof a disaster, dangerous event, or accident, forces shall be mobilized and the population,
livestock, animals, property, historical and cultural monuments shall be relocated to a safe
place"; Article 5.1.7 of the "Procedures for Evacuation of Citizens in Disasters" states"Organizing all kinds of provision to meet the priority needs of citizens (shelter, water,
food, medical and psychological assistance, ensuring their safety); the DisasterProtection Professional Class Rules that "Evacuation from the center of disasters andaccidents, organizing measures to meet the priority needs of citizens (shelter, clean water,
food, blankets, warm clothes, medical and psychological assistance, safety) by setting up
temporary shelters" and "In the times of a disaster or accident (strong storm, radiation,
chemical biological hazard/) it was instructed to construct, equip, reserve, and refuelshelters for evacuation shelters of the population in accordance with relevant norms andstandards" are provided.
In accordance with Resolution No. 340 of 2011 of the Government of Mongolia,
the decision to evacuate citizens from the center of the disaster will be made. In
accordance with the regulations, in the following cases, citizens will be accommodated in
temporary shelters and evacuation shelters in a coordinated manner. It includes:- Due to the earthquake, urban areas collapsed and people became uninhabitable;- Due to technical accidents, explosions, leakage of radioactive substances andtoxic chemicals in the area, the habitat of the population and animals has been
destroyed;- In cases where it is necessary to take necessary measures for the prevention ofterrorist acts or in situations caused by terrorist acts;- Serious consequences of droughts and droughts, shortage of water in urban
areas, agriculture and animal husbandry;- There has been a flood and a situation to take measures to prevent floods andwater hazards;

36

- Necessary measures have been taken to prevent the population, livestock, andanimals of the population, livestock, and animals of the outbreak of aninternationally prohibited infectious disease and the population, livestock, andanimals of the settlements adjacent to the outbreak;- Forest, field and facility fires have caused real danger to nature, ecology,
population, property and buildings of cities and towns.
In these cases, people will be evacuated to a safety location and evacuation
shelters.
Table 9 shows how the "Professional Class Rules" approved by the Deputy Prime
Minister include relocation, evacuation shelters, and resettlement centers for special
purpose professional classes.
Table 9. Functions of the group responsible for evacuation/temporary housing andshelters, as specified in the rules of the professional class
Purpose of the Professional
professional
Class
class
Classification
Evacuation
Evacuationand temporary andshelters
Temporary
HousingGroup
Shelters
Shelter group

Functions of that professional class
Evacuation from the center of disasters and accidents,organizing measures to meet the priority needs of citizens(shelter, clean water, food, blankets, warm clothes, medical
and psychological assistance, security) by setting up
temporary shelters
Organization of construction, equipping, stockpiling, andreplenishment of shelters for temporary accommodation of
the population during disasters and accidents (strong
storms, radiation, chemical and biological hazards) inaccordance with relevant norms and standards

As can be seen from the table, arrangements have been made to organize theconstruction, equipping, stockpiling and replenishment of evacuation shelters for
temporary shelter of the population in the during disasters and accidents in accordancewith relevant norms and standards.
The Disaster Prevention Law stipulates that the governors of provinces, capitals,
sums, and districts must attach evacuation measures to the disaster prevention measuresplan and update them every year.
In this plan, the map of the locality, the calculation of manpower and equipment tobe mobilized, the population to be relocated, the material and cultural values, theirquantity, supply, organization, the role of professional classes, work, meeting place,transfer, the location and time of reception are clearly stated.

37

Studying according to the limitations of the research topic, it is stated that theevacuation shelters must meet the following requirements in the "Requirements for
temporary assembly areas, evacuation sites, and evacuation shelters".
1. Ensure the safety and health of the population affected by the disaster.
When placing people in temporary accommodation, the following factors will betaken in to account: Including:-Number of citizens (families) affected by the disaster;-

Number/ratio of adults, children, elderly, gender;-

People with disabilities and religious differences and individual viability(Appendix 1).

2. Type of evacuation shelter (Figure 20):-

Organization of buildings, structures, houses, tents, mobile homes in theform of camps;-

The area allotted to each person should be at least 3.5 m 2;-

In temporary accommodation, the space allocated to disabled people whoare bedridden and use special equipment such as wheelchairs will be
increased by 1 m2;-

Halls of schools, public and private buildings, facilities, recreation andtourism places that have been assessed for earthquake resistance andassessed at the level of administration and territory will be used as
evacuation/temporary shelters;
Figure 20. Organization of evacuation shelter during disaster38

3. Internal environment of the evacuation shelter-

Have heating and cooling;-

Having a set of air mixture;-

Having a sound insulation and lighting;

4. Sanitation-

It is necessary to have a male and a female sink and shower for every 30
people at a distance of 50 meters from the camp;-

It is necessary to have a male and a female toilet for every 20 people at a
distance of 100 meters from the camp;-

Provision of necessary sanitary equipment and disinfectants;-

Place a trash can 100 meters away from the camp;-

Place trash cans downwind and away from flood dams;-

Ensuring sterilization, disinfection and infection prevention regimens,
regular cleaning and disinfection;

5. Water supply-

Reserve drinking and consumption water, place it at a distance of 500
meters from the camp, estimate 7.5-15 liters per person per day;-Ensuring cleaning, disinfection and safety of water storage (tank);

6. Food and food products-

Calculate and prepare the amount of food needed by the population for 3
days based on the order of the Minister of Health No. a/74 of 2017 and theorder of the head of the National Statistics Committee No. 1/76 of 2008;-

Having a warehouse and storage (150-200m2) for food, medicine, medical
supply and chemicals;

7. Household items-

Blanket;-Mattresses;-

Eating utensils;-

Toiletries;

8. Lighting, power source, address system- Having a power source and power transmission line;- Have a backup power source;- Mechanical lighting (candles, matches);
9. Organization- Preparation of accommodation for administrative, service and other staff;
39

- Establishment of public and social service department;- Establishment of a waiting area for victims to arrive and return;- Establishment of a registration and health examination section near the waitingarea;- Have fences, barriers and gates;- Evacuation sites facilities should have addresses;- Adhere to distance and area size;- Clear regulation of dirty and solid waste;- The internal organization will be organized in such a way that the movement of
citizens will be easier, unimpeded and prompt.
Also, in this requirement,-

Signs and markings will be posted to show the temporary assembly area,
evacuation sites, and the road and route to the evacuation shelters in a way thatis understandable to the people.

- It is mandatory to have a device to transmit disaster announcement informationin evacuation sites and evacuation shelters and-Planned practices and schools for working with sirens to announce the dangerof disaster will be organized every year. In doing so, it is stipulated that the citizens
should be subjected to training such as gathering in a temporary assembly area,
relocating to an evacuation site, and placing them in evacuation shelters.
The criteria, norms, and standards that need to be met in shelters forevacuation/temporary shelters of the population, gatherings, and reception centers
included in these legal documents are limited to specifying the location and stating therequirements in an overly general manner.
2.2 An analysis of legal documents governing evacuation shelter
standards in Japan
Legal System and Organization Structure:
The Basic act on disaster management has the following structure. It includes:•

Purpose:In order to protect the national land and the lives, bodies, and property of citizens

from disasters, the basic principles for DRR shall be established, and the national
government, local governments, etc. shall establish the necessary systems, clarify where
the responsibility lies, and prepare disaster management plans, thereby contributing tomaintaining social order and ensuring public welfare.
•

Disaster Risk Reduction Philosophy and Responsibilities:
40

Basic principles of disaster countermeasures, responsibilities of the national
government, prefectures, municipalities, residents, etc.
•

Organization for Disaster Management:[National] National Disaster Management Council, Headquarters for Specific,

Emergency, and Urgent Disaster Countermeasures.
[Local] Local Disaster Management Councils and Disaster Control Headquarters.
•

Disaster Management Plan:[National (National Disaster Management Council)] Basic Disaster Management

Plan [Local] Local Disaster Management Plans.
Roles and Cooperation among the National Government, Prefectures, andMunicipalities is shown in the following figure.
Figure 21. Roles and Cooperation among the National Government, Prefectures, andMunicipalities

As you can see from the picture above, prefectures are responsible for "Transport
goods to municipalities and evacuation centers" and the Municipalities are administration
deals with the issue of "Issuance of Evacuation Advisory, and Establishment of
Evacuation Shelters".
Now, let's consider the requirements for evacuation centers in times of disaster.
When the Great East Japan Earthquake occurred in March 2011, a clear distinction
was not necessarily made between “evacuation sites” to which people could flee to41

escape from the dangers of the imminent disaster and “evacuation shelters” where they
could live in places of refuge following the disaster.
Furthermore, the evacuation sites were not designated according to the type ofnatural disaster for which they were intended. Thus, some people fled to evacuation sites
immediately after the earthquake only to have these facilities destroyed by the tsunami.
This was one cause of damage escalation.
Given this, revisions were made in June 2013 to the Disaster Countermeasures
Basic Act establishing new provisions relating to “Designated Emergency Evacuation
Sites” and “Designated Evacuation Shelters”.
During the disaster, the following guidelines are followed to ensure that the qualityof life of the people is not compromised even in the unsuitable living conditions of theevacuation shelters:•"Shelter Management Guidelines"- (Provides an explanation of specific measuresand preparations as they relate to matters described in the Guidelines for Ensuring
Satisfactory Living Conditions at Evacuation Shelters, from the designation ofevacuation shelters through to their closure);•"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 beused when setting up and managing welfare evacuation shelters after a disasterhas occurred, as well as being used by municipalities, etc. under normal
circumstances when formulating preparedness measures and manuals).
Details of these guidelines for disaster evacuation shelter requirements areprovided below.
"Shelter Management Guidelines".
This guideline includes issues such as enhancing and strengthening evacuation
center operation and management systems by establishing and reviewing local disasterprevention plans and disaster response systems, conducting drills and training, andimproving the efficiency and facilitation of responses during disaster.
This guideline has 4 chapters: Operation to be performed in normal times,
operation of evacuation centers (during disaster), responding to needs and elimination of
shelters. In each chapter, the issues necessary to implement the relevant requirements
were considered as sub-chapters.
I Operations to be performed in normal times:42

1. Establishment of a shelter management system:
During normal times, the disaster response headquarters system has not yet been
set up, and the measures to be taken at evacuation centers are currently left entirely up
to the disaster management staff. While residents should take the initiative in living inevacuation centers, establishing a system to back up the operation of such centers is oneof the cornerstones of disaster response operations in municipalities. With the spirit of an
all-agency system, not only those in charge of disaster prevention but also several related
sections, such as those in charge of persons requiring special care, should establish across-sectional system in advance, clarify How the division of roles, and prepare for
emergencies.
2. Designation of shelters:
The designation of evacuation centers should be carefully processed based on thedamage assumption according to the disaster anticipated in the area. In areas at risk offlooding, evacuation centers should not be located along rivers; in areas at risk oflandslides, evacuation centers should not be located near disaster risk zones, such as in
special landslide hazard areas; and in areas at risk of tsunamis, evacuation centersshould not be located in tsunami hazard zones. Designate facilities in areas that are
relatively less affected by possible disasters and where transportation of disaster relief
supplies is relatively easy. It is also important to assume that undesignated buildings may
become evacuation centers due to an increase in the number of evacuees. Prepare forsuch a situation by simulating the shortage of shelters during disaster response drills.
3. Specific preliminary assumptions for initial response:
In order to set up an evacuation center when the time comes, it is necessary to
prepare in advance manuals and forms for shelter operation, share them with allconcerned parties, and verify their effectiveness through drills and other means. In
addition, since it is often practically difficult to request supplies from evacuation centers
during the initial response, a system must be established to first send at least theminimum amount of supplies considered necessary to evacuation centers in a pushbutton
fashion. Furthermore, a plan for securing and managing disaster toilets must be preparedin advance.
4. Establishment of a support system:
Since an evacuation center is a place where disaster victims live for a certain
period of time, it is necessary to establish a system to manage the evacuation center.
In principle, "disaster victims themselves are required to take action and help eachother to operate the shelter. In order to quickly establish a post-disaster management
43

system and ensure smooth operation, municipalities should take the lead in preparing anevacuation center operation manual, and confirm and inform the roles of evacuees, local
residents, and staff dispatched to evacuation centers through evacuation center operation
drills and other opportunities. By incorporating women's perspectives, more concrete
opinions can be expected to be reflected.
5. Measures for evacuees who are unable to return home and evacuees at home:
In terms of preparations to be made under normal circumstances, it is of course
important to respond to residents who are affected by the disaster in the community andevacuate to shelters.
Evacuation centers must also function as a base for evacuees at home (those who
cannot find a place to stay at evacuation centers and have no choice but to return to theirhomes or those who are living in inconvenience due to the disruption of lifelines, etc.).
We should prepare as much as possible in advance, assuming possible situations
depending on the characteristics of the area.
II Operation of evacuation shelters (during disaster):(1)

Core business:

6. Establish a cycle of shelter operations:
When a disaster occurs and an evacuation center is opened, it is first necessary
to assess the damage to the facility and confirm whether or not it is in a condition toreceive evacuees.
Next, the Disaster Control Headquarters must accurately assess the damage andthe number of evacuees at each shelter and determine whether there is a shortage in thenumber of shelters in the area.
In order to quickly establish an operational cycle for the evacuation centers in theevent of a disaster, the headquarters should conduct practical drills on the reception ofevacuees and the preparation of a list of names of evacuees.
7. Acquisition, management and sharing of information:
In evacuation centers, the information needs of evacuees will increase. The meansof obtaining, managing, and sharing information will need to be addressed while taking into account the real constraints imposed by the effects of the disaster.
To this end, municipalities should ensure that each evacuation center is equippedwith communication equipment such as radios and satellite cellular phones, as well as
backup power sources and power generators, TVs, radios, door-to-door receivers, andother means of obtaining information, from normal times onward. In addition, conduct44

periodic drills to ensure that staff members dispatched to evacuation centers are familiar
with the use of such equipment.
8. Food and supply management:
If there is no space to store food, drinking water, etc. at the evacuation center, asupply plan should be prepared so that stockpiles can be distributed by push (i.e.,
suppliers send the minimum necessary supplies to evacuation centers during the initial
response period without being requested to do so).
For the supply plan, agreements should be made in advance with distribution
business groups, etc., to secure specific "supply bases" where supplies will be procured,transported, organized and packed. In addition, routes to each evacuation center should
be secured, and storage locations for supplies at evacuation centers, etc. should bedetermined. In addition, it is essential to respond to the special needs of those who needspecial consideration, such as "Food allergies" and "Nursing food" at evacuation centers,in order to protect the lives and health of disaster victims.
9. Securing and managing restrooms:
There are four main types of disaster toilets (portable toilets, portable toilets,
temporary toilets, and manhole toilets), and depending on the characteristics of each type,the expected time of use and necessary preparations differ.
Depending on the expected restoration of water, sewage, and septic tanks, efforts
should be made from normal times to secure disaster toilets. Then, prepare a plan for
securing and managing toilets with reference to the "Guidelines for Securing andManaging Toilets in Evacuation Shelters”.
While securing and deploying disaster toilets, sanitation of the toilets is an
important point. Since toilets in evacuation centers are used by a large number of people,
it is necessary to pay more attention to hygiene and usability than usual.
Maintaining a sanitary and comfortable toilet environment will help prevent healthhazards, including infectious diseases. Implement a cleaning system approach to ensurethat infections, sanitary pests, and unpleasant odors are eliminated as much as possible,
and that they are comfortable to use.
It is also important to ensure that hand washing water is available, that people
know how to wash their hands, and that separate toilet footwear is provided to maintaina sanitary environment.
(2) Health Care:
10. Maintenance of a hygienic environment:45

In evacuation centers where lifelines are disrupted and people live in groups, therisk of various infectious diseases and food poisoning increases, so it is necessary tothoroughly address sanitation immediately after a disaster strikes.
Regarding sanitary measures in general, be sure to prepare from normal times
with the cooperation of local residents and volunteers, so that the hygiene department inparticular, the crisis management department, and the person in charge of evacuation
center management can work in close cooperation and with professional guidance toensure that everything is in place. In addition, be very careful when handling food(perishables, boxed lunches, etc.) to prevent food poisoning.
11. Health care of evacuees:
In the time of disaster, to prevent the worsening of pre-existing conditions, toprevent the onset of new illnesses, and to maintain health, both within and outside themunicipality.
Periodically conduct health checks and management of disaster victims by"Visiting and dispatching medical, health, and welfare professionals”. Pay attention to theresults of these checks, seek guidance from visiting physicians, etc., and ensure that asystem is in place to properly transfer the victims to specialized facilities, etc.
12. Improvement of bedding:In the environment caused by disasters and their evacuation, the continuous
sleeping in cramped shelters and stress can lead to venous thromboembolism (economy
class syndrome). If the effects are severe, the possibility of death cannot be ruled out.
Regarding sleeping arrangements, initial efforts should be made to alleviate coldand heat by providing blankets and ventilation, etc., followed by the introduction of cots,such as mats or cardboard cots. This is because prolonged lying on the floor not only
causes economy class syndrome, but there are also concerns about health hazards frominhaling dust and other particles.
(3) Better Environment
13. Clothing:
For disaster victims who evacuated with only the clothes on their backs, clothingshould be taken into consideration. Beginning with underwear, try to secure clothing thatis appropriate for their gender and age.
Once the situation settles down, aim to create an environment where the victims
can wash their clothes by themselves.
14. Bathing:46

Especially in the case of flooding or other situations where the area has been
affected by sewage, it is necessary to take showers or other means to remove dirt andgrime to prevent infectious diseases. Also, consider appropriate measures depending on
the situation, such as using existing bathing facilities or procuring temporary baths. Whenusing temporary baths, make sure to drink water and check your health before and after
bathing.
III Responding to Needs:(4) Consideration required:
15. Accommodating those who need special consideration:
It is important to secure space and establish a system in which all evacuees canlook after those who need special care in evacuation centers, such as the elderly,
disabled, pregnant and nursing mothers, infants, and those with intractable diseases, toprevent their health from deteriorating. In addition, it is important to provide informationon the conditions and needs of those in need among those involved in the evacuation
shelter, including consideration for foreign nationals.
Share information and continue to manage your physical condition. Furthermore,
what difficulties they are facing should be discussed with the persons concerned, suchas by hearing from them and their families. Special consideration should be given to
improving the living environment and moving to a welfare shelter or specialized facility.
16. Consideration for women and children:
Women and children have special needs. For example, by taking into
consideration the need for sanitary products, changing room space, nursing rooms, etc.,
A safe environment can be maintained for many people. Even in times of disaster,
it is important to be concerned so that maximum consideration is given. Also, encourage
the participation of women in committees to implement shelter management from theirown perspectives. Specifically, it is desirable to have at least 30% of the committee
members be women, which is generally considered to be the target for administrative
councils.
(2) Safety and Security:
17. Crime prevention measures:
One of the challenges in times of disaster is to maintain public safety. Since it isunfortunately not uncommon for thieves to enter from outside the disaster area, it isnecessary to consider strengthening the community watchdog system by fire brigades,neighborhood watch groups, etc., requesting police patrols, measures to prevent sex
crimes against women and children, and strengthening the counseling system.
47

18. Pet support:
Pets are very important to their owners, but in an evacuation shelter where people
who are not fond of animals or who are allergic to animals live together, considerationmust be given to their noises, scattered hair, and smell.
It is important to set rules for pets in evacuation shelters in advance. 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 the pet.
IV Elimination of shelters
19. For the elimination of shelters:
The stage at which lifelines have been restored to the community is one of theguidelines for the dissolution of shelters. After a certain period of time, ask the evacuees
about their requests for a place to settle down. It is expected that the evacuees will besupported as much as possible in accordance with their requests, leading to thedissolution of the shelter. The shelter should be dissolved with the goal of completing its
role and regaining its original role as an institution.
"Guidelines for Securing and Managing Toilets at Shelters":
Once a disaster occurs and flush toilets stop functioning, the disposal of excreta isdelayed. This can lead to outbreaks of infectious diseases and pests caused by bacteria
in the excreta. In addition, the number of victims in evacuation shelters who areuncomfortable because of unsanitary toilets increases, and the reluctance to use toilets
leads to withholding of water and food, which in turn leads to deterioration of nutritional
status, dehydration and venous thromboembolism (economy class syndrome) among thevictims. This may lead to health problems such as worsening nutritional status,
dehydration and venous thromboembolism (economy class syndrome) in the affected
population.
Some shelter facilities have many toilets with Japanese-style toilets, and many
temporary toilets also have Japanese-style toilets, which makes it extremely difficult for
the elderly with weak legs and backs and disabled people in wheelchairs to use toilets.
Securing nappies etc. is also a challenge, and for highly vulnerable people, thedeteriorating sanitation environment can be a life-threatening problem.
Thus, toilet challenges can lead to many health hazards and deterioration of thesanitary environment, while at the same time increasing the number of victims who
experience discomfort and damage to their dignity as human beings. In the context of48

support for disaster victims, the issue of toilets in evacuation shelters should be viewed
with stronger awareness of the problem than ever before.
The issue of toilets should be tackled in advance through the cooperation of
relevant departments in municipalities (including special wards, the same applies below).
This guideline has 3 chapters: Current station and challenges, basic approach tosecuring and managing toilets and specific measures to secure toilets. In each chapter,the issues necessary to implement the relevant requirements were considered as subchapters.
Research was conducted on the general content of the guidelines.
I Current situation and challenges:
1. Issues surrounding toilets in evacuation shelters during disasters:
In this section, the rationale for separately considering the cleanliness and comfort
of toilets for use in evacuation shelters during disasters is mentioned.
Also, research was conducted on problems related to shelter toilets during largescale disasters that occurred in Japan in the past.
Securing and managing toilets in shelters during a disaster is an extremely
important issue and, along with support for water, food, etc., should be recognized as oneof the 'social infrastructure services that support the lives' of victims, just like 'lifelines(electricity, water, gas, sewerage, etc.)', and appropriate measures should be taken in themunicipalities where shelters are established. It is necessary to ensure that appropriate
measures are taken in the municipalities where evacuation centers are set up.
II. Basic approach to securing and managing toilets
1. On securing disaster toilets:(1) Toilet mechanism
Figure 22. Toilet mechanism49

(2) Constraints in securing toilets during disasters.
It is necessary to be aware at normal times that multiple situations can occur atthe same time during a disaster, which can lead to various constraints in securing toilet
facilities.
(3) System building:Residents, communities and municipalities should take their respective positions
to ensure that toilets are available in the event of a disaster, in preparation for the
aforementioned situations. Municipalities should actively publicize the need to secure
toilets in the event of a disaster by, for example, encouraging residents and communities
to stockpile toilets in their homes and conducting drills on the installation of disaster toilets
at evacuation shelters.
Residents, communities and municipalities should take their respective positions
to ensure that toilets are available in the event of a disaster, in preparation for the
aforementioned situations. Municipalities should actively publicize the need to secure
toilets in the event of a disaster by, for example, encouraging residents and communities
to stockpile toilets in their homes and conducting drills on the installation of disaster toilets
at evacuation shelters.
In addition, within the municipality, the departments in charge of septic tanks andsewage treatment and other related departments, such as those in charge of disasterprevention and health, should cooperate in normal times to study toilet measures, andestablish a system for cross-departmental information sharing and response aimed at“Providing a clean toilet environment for victims” in the times of disaster.
(4) Planning:
In order to ensure toilet provision in the event of a disaster, it is necessary to makespecific assumptions about possible disaster situations during normal times, estimate thenumber of toilets required, and implement a plan to promote the stockpiling of portable
toilets and other equipment, manhole toilets, etc. and establish means to procure toilets
in the event of a disaster.
2. Items to be considered when securing and managing:
In securing and managing toilets during disasters, efforts should be made toactively incorporate the views of disabled persons and women on the location of toilets
and security measures, and to ensure that toilets for disabled persons are separate fromthose for the general public.
The table below summarises the matters that need to be taken into account andthe measures to be taken for those who need to be taken into account.
50

Table 10. Action issues for people who need to be taken care of in evacuation shelters
Matters to be taken in toaccount/People requiringconsideration
SafetyHygiene and comfort

Women and children

Older people and people
with disabilities

Foreigner
Other

Correspondence/response• Install it in a place where it will not be dark.
• Night lighting in private rooms and on the route to toilets.
• Outdoor toilet sheds should be robust.
• Ensure toilets are secured and prevented from tipping over.
• Private rooms shall be lockable.
• Install security buzzers.
• Prepare footwear for toilet use only (indoors only).
• Ensure water is available for handwashing.
• Wet wipes for handwashing.
• Prepare disinfectant solutions.
• Deodorants and insect repellents.
• Implement measures against heat, cold, rain, wind and snow
• Toilet cleaning equipment.
• Separate toilets for men and women.
• Provide a bin for the disposal of sanitary products.
• Shelves and hooks for mirrors and luggage.
• Install toilets that can be accessed with children.
• Provide a diaper-changing area.
• Install blindfolds for queues waiting to use the toilets.
• Secure western-style toilets.
• To be installed in a convenient location.
• Ensure a clear flow line to the toilet.
• Reduce the number of steps in toilets.
• Install toilets in welfare evacuation spaces, etc.
• Ensure toilets are accessible to cares.
• Provide notice boards in foreign languages (e.g. how to use
the toilet, how to wash hands, how to disinfect, etc.).
• Install multi-purpose toilets.
• Ensure space for orthotic change for people with artificial anusand bladder holders.
• Provide an infant booster seat.

3. Number of toilets (approximate)
Municipalities should take in to account the situation of temporary toilet installations
in past disasters and the standards set by the United Nations and other organizations. At
the beginning of the disaster, there was a need to install one device for every 50 evacuees.
In the event of a prolonged evacuation, the number of units should be approximately 1
per 20 people.
The number of toilets is calculated as the combined number of private toilet rooms(using portable toilets in western style toilets) and disaster toilets in the facility.
Barrier-free toilets should not be included in the number of units mentioned above,
but should be secured according to the number of evacuees and their needs.

51However, these are only guidelines and the number of toilets required in shelters
will vary depending on the situation of the evacuees and the extent of damage.
It is important that each evacuation centre ensures that the number of toilets andtheir treatment and storage capacity are appropriate for the number of evacuees(including men and women), bearing in mind the waiting time for toilets.
Table 11. Guideline for the number of toilets in a disaster situation.

Guideline by the Sphere Project*

Source of guidelines, etc.
Guideline by the United Nations
UNHCR(UnitedNationsHigh
Commissioner
forRefugees)
guidelines for quantities in emergency
situations.
Public places and facilities(the) market (as a concept)
Hospitals and medical centers

Soup kitchen
Accepted/temporary residence
centers (measure of land area)
SchoolOfficeNumber of toilets
Choice of response depending on the situation
Proposal 1. One unit per household
Proposal 2. 1 unit per 20 people
Proposal 3. 1 individual room or 1 excretory areaper 100 people
Public places andNumber of toilets
facilities(longterm)
1 per 50 stalls
1 per 20 stalls
Number of beds 20 or 1
Number of beds 10 orunit per 50 outpatients
1 unit per 20
outpatients
1 unit per 50 adults
1 per 20 adults 1 unit
1 unit per 20 children
per 10 children
1 unit per 50 persons
Female to male ratio 3:1.
1 unit per 30 girls
1 unit per 30 girls 1
1 unit per 60 men
unit per 60 men
1 unit per 20 staff*(Source: Sphere Project Humanitarian Charter and Minimum Standards for Humanitarian
Response, 2011).

It is not realistic to stockpile all the toilets in shelters, and it is important tostrengthen the cooperation system, for example by concluding agreements with relevantorganizations and businesses in advance, so that disaster toilets can be quickly procuredin the event of a disaster and operated smoothly in during of disaster.
4. Types of toilets(1) Use of existing toilets
If existing toilets used in normal times can be used, it will be easier to secure thenumber of toilets and also desirable from the perspective of securing private rooms. For
this reason, municipalities should cooperate with facility managers and others to ascertain
in advance the use of existing toilets in the event of a disaster, including the water supply
and drainage conditions at each shelter, the type and number of toilet bowls, and theselection of toilets in the facility that can be offered (opened) to evacuees.
At the same time, it is necessary to discuss and prepare in advance with relevant
parties how to determine whether or not flush toilets can be used during a disaster, how

52to utilise them, post rules for their use, cleaning and maintenance methods, cleaning
supplies and other supplies needed to keep toilets clean, etc.
(2) Disaster toilets
There are various types of disaster toilets, as follows.
Table 12. Types of toilets for use in evacuation shelter
Type

Photograph❖ Portable toilet- Portable toilet (Storage and collection)(A bag that can be attached to an existingpedestal toilet)❖ Simple toilet- Portable toilet (storage/collection)- Simple toilet assembly type(storage/collection)(A small toilet that can be placed in a room)❖ Temporary toilets- Portable toilet (pumping out)
(The same type of toilet used at events andconstruction site)❖ Manhole toilet(Installation of a toilet pedestal orcompartment over a sewerage manhole orother drainage system)❖ Other toilets- Self-cleaning toilet(water circulation type, composting
type, drying/incineration type)- In-vehicle toilets- Storage in a toilet tank53

5. Toilet hygiene:
As toilets in shelters are used by large numbers of people, hygiene needs to beconsidered more than usual.
Consider providing dedicated toilets in the event of an infectious disease patient.
Determine from among the evacuees who will be responsible for the toilets andwho will be in charge of cleaning duty.
Maintain a hygienic toilet environment with the help of volunteers and othersupporters.
Examples of equipment required for hygiene management.
In order to ensure that the minimum necessary supplies, etc. are promptly
available for continuous hygiene-conscious cleaning in the event of a disaster, efforts
should be made to stockpile supplies from normal times, and means should be preparedin advance to inform people how to use toilets, wash their hands, clean up, etc.
Below, examples of equipment required are marked with:◎ for items that should be prepared on a priority basis and○ for items that should be prepared on a preferred basis, to indicate priority.
Table 13. Equipment required for hygiene management
Classification
Necessities

HealthWhat the person
cleaning wears.
Cleaning utensils(Container labelledwith contents andpoint of use).

Equipment◎ Toilet paper (preferably plastic wrapped)◎ Sanitary products◎ Paper sorting bins/sanitary bins (if made of corrugated cardboard,
protection against water from floor surfaces is required)◎ Water and soap for hand washing (if hand washing water isavailable)◎ Wet tissue (if no handwashing water available)◎ Hand rubbing alcohol (in the absence of hand washing water)○ Paper towels (for hand washing)◎ Rubber gloves (disposable)◎ Masks (disposable)○ Work wear for cleaning toilets◎ Water for cleaning (for cleaning and disinfection)◎ Buckets dedicated to toilet cleaning (for disinfection water and mop
cleaning)◎ Chlorine bleach for making disinfectant water (kitchen use is fine)◎ Plastic bags (for refuse bags, for carrying cleaning equipment)◎ Brooms and dustbins for cleaning toilets◎ Rags for cleaning toilets (multiple for multi-purpose use)
◎ Brushes (for floors and toilet bowls)○ Toilet detergent (neutral detergent for disaster toilets) ○ mop ○Paper towels (for cleaning)54

Toilet-related
equipment, etc.

◎ Footwear designed for toilet use only (indoor toilets only)◎ Post rules for using toilets.
◎ Hand washing and disinfection instructions posted○ deodorant○ Disinfection mats (boundary between indoor and underfoot
footwear).
○ Plastic bags for sewage, deodorisers for sewage○ Insect repellent for toilets

III. Specific measures to secure toilets
1. Toilet model case
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 theusers and the facilities of the shelter, in addition to the lifeline situation and location of the
shelter. For example, the following cases can be considered for the use of each toilet overtime. The combination of toilets in the times of a disaster is based on the table below.
Table 14. Toilet combination models over time.
(*Primary use ○Auxiliary use)
Disaster occurred
Types of disaster toilets~3 days~2 weeks~ 1 monthPortable toilet*○○
Simple toilet*○○
Temporary
toilet ○**(assembly type)Temporary toilet*
Manhole toilet○×**
Self-cleaning toilet○○
In-vehicle toilet○○
× Can be used depending on the damage situation of the sewage system~3 months or more

*
*
○
○

"Guidelines for Securing and Managing Welfare Shelters"
The people envisaged to be accepted in welfare shelters are legally defined as'persons requiring special consideration'. People requiring special consideration are
defined as "The elderly, people with disabilities, infants and young children and otherpeople requiring special consideration in times of disaster" (Article 8, Paragraph 2, Item
15 of the Basic Act on Disaster Countermeasures).
Therefore, the pre-designation of welfare shelters and their preparation must be
prepared to receive these people. “Other people requiring special consideration' areassumed to include pregnant and nursing mothers, wounded or sick people, persons withinternal disabilities, patients with intractable diseases and persons requiring medical
care*. As these people are expected to have difficulties in living in general shelters,
55

welfare shelters should be set up to receive them and some special consideration should
be given to them. Note that, for the purposes of these Guidelines, people to be accepted
who are described as "people", such as "people with disabilities", etc.
This guideline has 3 chapters: Efforts in peacetime, Efforts in times 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.
I Efforts in peacetime
1. Identification of persons eligible for reception in designated welfare shelters:
1.1 Identification of the approximate number of people to be received in designatedwelfare shelters:• People to be accepted at designated welfare shelters may include-(I) People with physical disabilities (visually impaired, hearing impaired, physicallydisabled, etc.),-(II) People with intellectual disabilities,-(III) People with mental disabilities,-(IV) Elderly persons (living alone, elderly-only households, etc.),-(V) Homebound patients with incurable diseases and persons requiring medicalcare using ventilators, oxygen supply equipment, etc.,-(VI) Pregnant and nursing women-(VII) Infants, vulnerable persons, injured and sick people, and-(VIII) Pregnant and nursing mothers.

1.2 Assessing the current status of persons eligible for reception in designatedwelfare shelters, etc.
It is advisable for municipalities to ascertain the current status of persons eligible
for reception in designated welfare shelters from normal times, so that in the event of adisaster, persons eligible for reception in designated welfare shelters can be promptly
evacuated to designated welfare shelters.
• Of the persons targeted for acceptance in the previous section "1.1 Identifying
the approximate number of persons to be accepted in designated welfare shelters", those
whose current conditions, etc. are considered to be survey able, specifically.
For example, it may be possible to ascertain the current status of persons requiring
medical care by utilising information held by municipalities on claims for services for56

children and persons with disabilities under the Comprehensive Support for Persons with
Disabilities Act and the Child Welfare Act.
The information to be ascertained is (I) Address, (II) Name, (III) Physical condition,and (IV) Family structure (including whether or not the person has a carer), (V) Carer
status (daytime and nighttime), (VI) Emergency contact details, (VII) Location of theperson's room, as a basic rule, while other items (including necessary medical care andassociated power supply, hygiene products, etc.) are surveyed according 19 to the needsof the recipient.
The information ascertained will be maintained in a database so that it can be usedin times of disaster for measures such as confirming safety, communicating evacuation
information, assisting with evacuation guidance and setting up designated welfare
shelters, as well as for studying and implementing measures during normal times. In orderto maintain up-to-date information, the registered information should be checked andupdated on a regular basis.
2. Designation, public notice and dissemination of designated welfare shelter:
2.1 Identification of facilities that can be used as designated welfare shelters1.
The municipality identifies facilities that can be used as designated welfare shelters.
The following facilities are considered as available facilities. The following facilities will beselected with a primary focus on being 'barrier-free' and 'more accessible to support
workers'.
-

Facilities that serve as general evacuation centers (e.g. primary and junior highschools, community centers, etc.);-

Welfare facilities for the elderly (e.g. day service centres for the elderly, special
homes for the elderly, welfare centers for the elderly, etc.) and facilities for people
with disabilities (public and private);-

Child welfare facilities (e.g. nurseries), health centers;-

Special needs schools;-

Elementary and junior high schools, community centers and-Accommodation (public and private).

2.1 Designation of designated welfare shelters.
2.1.1 Designation criteria for designated welfare shelters.

1

Research and organise the facilities available as designated welfare shelters, including theirlocation, name, owner/manager, available space, facilities and equipment, staffing and the numberof people they can accept.
57

Municipalities designate welfare shelters in accordance with the criteria of the
Basic Disaster Management Act.
People and facilities that are expected to receive the patients and facilities as
designated welfare shelters.
• It is envisaged that persons requiring special care who, due to the degree of theirdisability or other factors, have difficulty in taking shelter in general evacuation
centers, such as designated general evacuation centers, will be evacuated tofacilities, equipment and systems that are well-equipped.
• Assumed facilities such as welfare facilities for the elderly and support facilities
for people with disabilities, health centers, etc.
Figure 23. Image of Designated Welfare Evacuation shelters and designated generalevacuation shelters for people required care

2.2.2 Setting targets for the designation of designated welfare shelters.
Municipalities set targets for the designation of designated welfare shelters, basedon the number of persons eligible to be received in designated welfare shelters and thecurrent situation.
58

•

Designated welfare shelters are to be expanded to ensure that persons in need,such as the elderly and persons with disabilities, can receive the support they need,while taking in to account the needs of persons in need and the circumstances of
the receiving facilities.

•

Targets for the designation of designated welfare shelters should be set, taking into account the living areas of persons in need and their families living with themand their links to the community.

2.1.2 Designation and public notification of designated welfare shelters.
Municipalities select and designate facilities to be designated as designatedwelfare shelters, based on information on facilities available as designated welfare
shelters and the criteria for designated welfare shelters.
When a municipality designates a designated welfare shelter, it shall give public
notice of its name, location and, if it specifies the victims, etc. to be received in suchdesignated welfare shelter, a statement to that effect and other matters deemednecessary by the mayor of the municipality. (Revision of the Enforcement Regulations in2021).
In view of the concerns expressed by victims and others who do not expect toreceive them when welfare shelters are publicly notified as designated shelters,
municipalities are now allowed to specify the persons eligible to receive them for each
designated welfare shelter and publicly notify them at the time of designation.
In designating designated welfare shelters, coordination shall be made with thefacility managers, etc. of such designated welfare shelters regarding the persons to be
accepted.
Reference: Examples of public notices specifying the recipients. Notations specifying therecipients may include, as an example, the following.
Table 15. For older people:
Name

Address (e.g. of house) Accepted applicants (*)
OtherSocialwelfare ○○ city
Old people
corporation ○○ park△△ 1-1-1●● Welfare centres for ○○ city
People identified by thethe elderly●● 2-1-1
city.
Socialwelfare ○○ city
Old people (Around 3
corporation ○● park□□ 3-1-1
care required)*Family members and others are also eligible for acceptance.
Table 16. For people with disabilities:
Address (e.g.
AcceptedName
Otherof house)applicants (*)

59

○○ city△△1-1-1○○ city●●2-1-1○○ city●●1-2-1

Handicapped▼▼Disabled Center○○ city●●2-2-1■■Special support
school□□ Special support
school○○ city●●3-1-1○○ city●●3-1-1

Physicallyhandicapped(visually impaired,hearing impaired)
Current student▲▼ Child Development
Support Center○○ city●●3-2-1

Social Welfare
Corporation △△ park▲▲Disabled Center
Social Welfare
Corporation ▽▽ park

Person specified
by the city
Intellectuallydisabled, mentallydisabled(developmentallydisabled)

Among the persons listedon the left, those who wereidentified by the city inadvance and who madeenvironmental
adjustments in advance

Current students,
graduates,
andthose identified by
the
city
in
advanceChildrenwithdisabilities
andthose identified by
the
city
in
advance*Families, etc. are also eligible for acceptance.

Table 17. For infants and pregnant women:
Address (e.g. ofNamehouse)○○ city□□ District center△△1-1-1○○ city■■ Public hall●●2-1-1

Accepted applicants(*)
Pregnant
women
and infants
Infants

Other*Families, etc. are also eligible for acceptance.
Table 18. People with special needs who are not specified as being eligible for reception
Address (e.g. ofAccepted applicants
Name
Other
house)(*)○○ city
Personrequiring□□ District center
specialconsideration△△1-1-1*Families, etc. are also eligible for acceptance.

2.2.4 Ensure that designated welfare shelters are known to the public:
Municipalities should use all media available to them to provide information on thename of the designated welfare shelter and the persons to be received. The informationon the following matters should be widely disseminated to the population. In particular,

60the information should be made known to persons in need, their families, voluntarydisaster-prevention organizations, support groups, etc.
2.2.5 Coordination of the number of people to be received at each designatedwelfare shelter.
The municipality shall coordinate in advance with each designated welfare shelter
the persons to be accepted, etc., through the process of preparing district disasterprevention plans, individual evacuation plans, etc., for those who will evacuate directly tothe designated welfare shelters.
In cases where the municipality is unable to directly evacuate all persons requiring
assistance who wish to do so to a designated welfare shelter, for example, themunicipality should first set up a space for persons requiring assistance in a generalshelter for temporary evacuation.
3. Development of designated welfare shelters
3.1 Development of facilities for designated welfare shelters:
The municipality, in cooperation with the facility manager, will develop thenecessary facilities to ensure that the facility functions as a designated welfare shelter
and that people in need of assistance have a good living environment for their evacuation.
• Barrier-free facilities, such as elimination of steps, installation of ramps,
installation of handrails and guidance devices, and installation of disabled toilets.
• Ensuring ventilation and air flow
• Maintenance of air-conditioning and heating systems• Maintenance of emergency generators.
• Information-related equipment (radios, televisions, telephones, radios, facsimiles,
computers, electronic noticeboards, etc.)
4. Securing supplies, equipment, human resources and means of transport
4.1 Securing supplies and equipment
Municipalities should work with facility managers to stockpile necessary supplies
and equipment at designated welfare shelters.
• Nursing products, hygiene products, sanitary products• Drinking water, food suitable for persons requiring special care, blankets, towels,
underwear (including sanitary panties), clothing, batteries• Portable toilets (mainly used with western-style toilets), beds, stretchers,
partitions

61

• Wheelchairs, walkers, walking canes, hearing aids, urinals, stoma braces,
tracheal aprons, oxygen cylinders and other prosthetic devices and equipment fordaily living, etc.
• Supplies required as hygiene and environmental measures, e.g. masks,
disinfectants, thermometers, (cardboard) beds, partitions, etc.
In addition to stockpiling supplies and equipment, municipalities should maintaina list of suppliers of supplies and equipment so that they can promptly secure the supplies
and equipment they need at during the disaster.
4.2 Securing support personnel
Municipalities should prepare a list of people to whom they can request assistancein securing the specialist personnel needed to support the evacuation of people in need,and conclude agreements with relevant organizations and establishments, in order tocooperate with them to obtain personnel assistance in the time of a disaster.
4.3 Securing means of transport.
With regard to the transfer of persons in need from spaces for persons in generalshelters, such as designated general shelters, to designated welfare shelters (transfer
between designated welfare shelters), or from designated welfare shelters to emergency
residential facilities, etc., municipalities should ensure appropriate means of transport thattake into account the condition of persons in need, including welfare vehicles, emergency
vehicles and Develop a list of suppliers of welfare vehicles, emergency vehicles, generalvehicles, etc.
5. Cooperation with social welfare institutions and medical institutions
5.1 Strengthening of cooperation in the establishment and operation of designatedwelfare shelters.
Municipalities should ensure cooperation with social welfare and medical
institutions from normal times through all possible opportunities, as they will need thecooperation of social welfare institutions, medical institutions, etc. in securing specialist
personnel, procuring equipment and materials, emergency admission, etc.
The involvement of health and medical personnel is also essential to combat
infectious diseases and heat stroke.
5.2 Response to emergency admissions, etc.
Persons requiring special care who have difficulty continuing to live at home andpersons requiring special care who have difficulty living in general evacuation centers ordesignated welfare evacuation centers need to be accommodated by emergency
admission to social welfare facilities, emergency short stays, etc. For this purpose,62

prefectures and municipalities should identify and organize facilities where emergency
admission, etc. are possible.
6. Pre-establishment of an operational system for designated welfare shelters
6.1 Pre-establishment of support teams for persons in need in the event of adisaster, etc.
Municipalities shall set up support teams for persons in need of assistance during
disasters as a cross-sectional organization centers on the departments in charge ofdisaster management and welfare departments. Where necessary, councils, etc., should
be set up with members including voluntary disaster management organizations, support
groups, welfare-related personnel such as social welfare facilities, health and medical
personnel such as public health nurses, doctors and nurses, civil servants and volunteers.
□ In order to ensure the prompt opening and operation of designated welfare shelters in
the event of a disaster, a system should be put in place, such as designating in advance
an official in charge of designated welfare shelters or, if it is not possible to designate an
official in charge of designated welfare shelters, a section or section in charge ofdesignated welfare shelters.
6.2 Pre-establishment of an operational system for designated welfare shelters.
In the aftermath of the evacuation, in view of the growing importance of health andmedical responses, such as measures against infectious diseases and heat stroke,measures to ensure the quality of health and medical care, as well as information security
for people with impaired vision, hearing function and other disabilities.
As designated welfare shelters are envisaged to be social welfare facilities, etc.
that are well-equipped and structured, the system of such facilities shall be used as abasis, and municipalities shall work with relevant organizations from normal times toenhance the system by assigning staff in charge of designated welfare shelters andsecuring and assigning specialist personnel and volunteers.
7. Prepare manuals for the establishment and operation of designated welfare
shelters and conduct drills.
7.1 Preparation of installation and operation manuals, conducting drills, etc.
Municipalities organize workshops and study groups on measures to support
persons in need of assistance in order to provide opportunities for a wide range ofstakeholders, including staff, voluntary disaster-prevention organizations, local residents,
persons in need of assistance and their families, and social welfare facilities, to participate
and learn.
63

Opportunities to discuss how to support people in need in the community throughworkshops and graphic drills, such as town walks and disaster prevention inspections.
7.2 Dissemination and awareness-raising on rules and regulations for designatedwelfare shelters.
Municipalities should establish and operate designated welfare evacuation centerssmoothly in the event of a disaster. In normal times, the person requiring special care,her family, supporters, welfare, health, and medical personnel.
Efforts will be made to disseminate and enlighten people, voluntary disasterprevention organizations, etc. about measures for people requiring special care, disasterprevention measures, the purpose and rules of designated welfare evacuation shelters,etc.
II Efforts in times of disaster
1. Establishment of designated welfare shelters
1.1 Establishment of designated welfare shelters and reception of persons in need
Municipalities open designated welfare shelters when a disaster has occurred or
is likely to occur (in the times of a disaster) and an evacuation of the elderly, etc. has
been issued.
In addition, the municipality will open a designated welfare shelter if it considers
that there are persons who have evacuated to a general shelter and are eligible to be
accepted in a designated welfare shelter and that it is necessary to open a designatedwelfare shelter.
When a municipality opens a designated welfare shelter, it shall check the safetyof the facility together with the facility manager.
The municipality and the facility manager of the designated welfare shelter should
work together to manage the designated welfare shelter.
When a designated welfare refuge is opened, the location, etc., shall be promptly
made known not only to staff but also to persons in need, their families, voluntary disasterprevention organizations, local residents and support groups.
As soon as the reception system is in place, the designated welfare shelters will
accept those eligible for reception.
If the pre-designated designated welfare shelters do not have sufficient capacity,
request social welfare facilities, etc., which have not been designated as designatedwelfare shelters, to accept them, or rent public accommodation, inns, hotels, etc.
2. Operational arrangements for designated welfare shelters
2.1 Dispatch of staff in charge of designated welfare shelters
64Municipalities and facility managers should work together on the establishment
and management of designated welfare shelters.
When a designated welfare shelter is established, the municipality will dispatch thestaff in charge as necessary. As it may not be possible to secure staff to be dispatched
to welfare shelters at the beginning of a large-scale disaster, the municipality should seek
cooperation from facility managers and others in order to cope with the situation.
2.2 Operational arrangements for designated welfare shelters and support for theiractivities.
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 well as to assign specialized
personnel and volunteers to designated welfare shelters.
If necessary, prefectures are expected to coordinate efforts to secure specialist
personnel, volunteers and other personnel, including disaster relief welfare teams, on awide area basis.
3. Support for persons in need in designated welfare shelters.
3.1 Creation and management of evacuee registers for designated welfare shelters.
The municipality shall prepare a list of evacuees sheltering in designated welfare
shelters. The list of evacuees shall be updated as necessary.
3.2 Provision of assistance in designated welfare shelters.
The municipality will work with welfare service providers, visiting nursing stations,public health nurses and civil servants to provide necessary welfare services to persons
in need who have taken refuge in designated welfare shelters.
3.3 Emergency admission, etc.
Municipalities shall respond appropriately to persons requiring special care whohave difficulty continuing to live at home or in general or designated welfare shelters,
through emergency admission or emergency short stays.
If medical attention or treatment is required due to a sudden change in thesymptoms of a person requiring attention, the person is transferred to a medical institution.
4. Elimination of designated welfare shelters
4.1 Consolidation and elimination of designated welfare shelters
Municipalities will seek to consolidate designated welfare shelters if the use of such
shelters becomes prolonged and the number of evacuees varies from one designatedwelfare shelter to another.
65

Fully explain the consolidation of designated welfare shelters to evacuatedpersons in need and their families in order to seek their understanding and cooperation.
When the purpose of the designated welfare shelter has been achieved, thenecessary restoration shall be carried out and the designated welfare shelter shall bedissolved.
III Agreements of use the welfare shelters.
1. Agreements of use the welfare shelters
1.1 Use of welfare shelters through agreements, etc.
Welfare shelters in the broadest sense include designated welfare shelters as wellas those secured as welfare shelters by agreement or other means.
Welfare shelters could be set up by agreement or other means to enableappropriate responses to the condition of persons in need.
• Facilities such as welfare homes for the elderly, support facilities for persons withdisabilities, health centers, etc., which have not been designated as designatedevacuation centers, but which the municipality has secured as welfare evacuation
centers by prior agreement or otherwise, as facilities with certain facilities,
equipment, systems, etc.
• Assumed to evacuate people with special needs who have difficulty in shelteringin general evacuation centers due to their degree of disability or medical care.
In operating welfare shelters through agreements, etc., reference should be madeto designated welfare shelters.
1.2 Establishment of spaces for people with special needs within general shelters.
Municipalities should include local residents and qualified personnel in the shelter
operating organization of general shelters and specialists (nurses, public health nurses,
care workers, social workers, psychiatric social workers, physical therapists, helpers,social workers, child welfare workers, counselors for persons with physical disabilities,
Counselors for people with intellectual disabilities, community welfare promotion
committee members, etc.).
In terms of dealing with persons requiring assistance in general evacuation centers,a group for persons requiring assistance will be set up in each evacuation center, and acontact point for persons requiring assistance will be set up in the evacuation center,
where consultations with persons requiring assistance, reliable communication of
information and provision of relief supplies will be carried out.

66

Conclusion of the chapter 2
In Mongolia and Japan, issues such as providing food, sanitary products, warm
clothes, and blankets have been legislated to protect the safety of citizens living inevacuation shelters during disaster.
In Mongolia, the criteria, norms, and standards that need to be met in shelters forevacuation shelters of the population, gatherings, and reception centers included in these
legal documents are limited to specifying the location and stating the requirements in an
overly general manner.
From the example of Japan, when the Great East Japan Earthquake occurred in
March 2011, a clear distinction was not necessarily made between “evacuation sites” towhich people could flee to escape from the dangers of the imminent disaster and“evacuation shelters” where they could live in places of refuge following the disaster.
Furthermore, the evacuation sites were not designated according to the type ofnatural disaster for which they were intended. Thus, some people fled to evacuation sites
immediately after the earthquake only to have these facilities destroyed by the tsunami.
This was one cause of damage escalation.
During disaster, the following guidelines are followed to ensure that the quality oflife of the people is not compromised even in the unsuitable living conditions of theevacuation shelters:•"Shelter Management Guidelines"- (Provides an explanation of specific measuresand preparations as they relate to matters described in the Guidelines for Ensuring
Satisfactory Living Conditions at Evacuation Shelters, from the designation ofevacuation shelters through to their closure);•"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 beused when setting up and managing welfare evacuation shelters after a disasterhas occurred, as well as being used by municipalities, etc. under normal
circumstances when formulating preparedness measures and manuals).

67

3. IN JAPAN, IMPLEMENTATION AND GOOD PRACTICES OF REQUIREMENTS
FOR EVACUATION SHELTER DURING DISASTER
3.1 Implementation of requirements for evacuation shelter
during disaster
Evacuation shelters are places where victims who have lost their homes due to adisaster can temporarily live. Because of the public funds and support they receive, theterm "quality improvement" is sometimes used to suggest that it is an extravagance.
However, the term "quality improvement" here refers to the "quality" of "how wella person is able to lead a humane and personal life," which is completely different fromthe "standard of living" calculated based on an individual's income and assets, so thecriticism of "luxury" does not apply.
A "designated emergency evacuation site" is a facility or place where residents
evacuate in an emergency to ensure the safety of their lives under imminent danger of atsunami or flood. And a "designated evacuation shelter" is a facility designed to allow
evacuees to stay for a necessary time period until the danger of disaster is over, or totemporarily let residents who are unable to return home stay due to disaster. These
revisions distinguished between places for emergency evacuation at the time of a natural
disaster, and schools and community centers where people could stay for a specificperiod and live as evacuees.
The number of rapid designated emergency sites and shelters as of 2013 and 2021
is shown in Table 19.
Table 19. The number of designated emergency evacuation sites and shelters asof 2013 and 2021
Types of unusual
phenomenon
Flood
Sediment disaster
Storm Surge
Earthquake
TsunamiLarge-scale fire
Heavy rainfall
Volcanic eruption
Slope failure debris flow
and landslide
Total

No. of designated sites(sites)2013
2022
21 45970 32319 4685 936
21 70124 88885 035
14 09938 36515 17939 286
13 99537 9933 809
10 32966 25337 181

369 285
68

Items
Estimates no. of accommodated(10000 people)
2013
2022
3 363
11 808
3 713
1 791
5 874
5 937
22 970
2 571
8 569
5 262
16 753
2 397
7 208
745
2 279
13 236
8 333

88 697

From the table above, it can be seen that the number of the designated evacuationsites and shelters in 2021 has increased significantly compared to 2013.
In Japan, the following principles are followed when building evacuation shelters.
Figure 24. Establishment of shelter

Operation of Shelters:
1. Method of Operation
Community organizations, mainly the community organizations for disaster andwelfare management, work together to voluntarily operate the shelters. City officers,
facility administrators, and other volunteers will provide assistance as needed. [Examplesof 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 ofbaths, acceptance of volunteers, etc.
• About one month after the disaster: In addition to the above, formulation of rules
and self-governing 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
the perspectives 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, andforeigners.
69• Promote barrier-free access and improvement of evacuees’ living circumstance(materials and equipment).

• Involve both male and female in decision-making of shelter operation, to consider
perspectives of both 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, high schools, 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 andoffices are located next to the evacuation shelters of people in times of disaster.
Figure 25. Miki disaster management park stadium

70

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”). In this way, they have theknowledge to save themselves and others in times of disaster, and lead an active social
life.
Figure 26. Members of voluntary organizations are participating in disaster relief activities.

One of the main indicators of the implementation of legal documents is to makepeople knowledge of disasters.
The measures to be taken during 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, the following
information can be obtained from DRR Portal Site "SONAE to U?" - https://www.kobesonae.jp/.
-

Preparation: Hazard maps, how to gather information, how to take evacuation
actions, and stockpile emergency supplies at home-

Activities: Introduce community disaster drills, DRR efforts of NPOs anduniversities by photos and videos.

•Learning: Learn in a quiz format

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, and71

landslides, teach people how to cope with disasters with minimal damage, and provide
information about evacuation shelters in the times of a disaster. 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 fromhere.
Figure 27. The “Sonae to U” Exhibition room in Kobe

"Tokyo Rinkai Disaster Prevention Park", located in Tokyo, conducts various
activities to educate the public about the dangers of earthquake disasters. One of themis a demonstration of fully furnished models of evacuation shelters for citizens in times ofdisaster.
Figure 28. "Tokyo Rinkai Disaster Prevention Park"•

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 forunderstanding the disaster 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:72

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, andhow to protect yourself and others from disasters.
Figure 29. Some books, manuals and newspapers for the general public about disaster andevacuation shelter:•

Disaster risk reduction events:
In Japan, many events are organized with the aim of providing knowledge to citizens

about the dangers of disasters, evacuation shelters, and how to protect oneself andothers during disasters. For examples, these disaster drill programs, developed andimproved by listening to the victims of the Great Hanshin-Awaji Earthquake in 1995 andthose of the Great East Japan Earthquake in 2011, provide not only interesting activities
but also practical activities that are helpful at times of earthquake disasters.
Figure 30. Citizens are informed about disasters through disaster risk reduction events•

Use mobile applications:
Easy-to-use apps such as "Japan shelter" and "Safety tips" have been developedthat allow citizens to use their phones to locate evacuation shelters in the times of adisaster.
Figure 31. ‘’Safety tips’’ app for android and iOS.
73

•

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.
Figure 32. Types of disaster prescribed in Article 20 (iv) of the Disaster
Countermeasures Basic Act:

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 havebeen combined under a single symbol
・ The evacuation methods for flood and rainfall inundation are similar, so thesehave been combined under a single 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 these74

・ Symbols for tsunami evacuation sites and tsunami evacuation buildings alreadyexist, so these will continue to be used.
Figure 33. Exiting JIS-Prescribed Symbol for Evacuation Sites

Figure 34. Example for Information Board Using the Hazard Specific Evacuation
Guidance Sign System•

Location of evacuation shelters in case of disaster:Emergency evacuation sites shall be designated as places where safety can beensured for each type of disaster, such as earthquake, tsunami, flood, landslide, andmajor fire, and shall basically be outside the expected inundation zone or warning area,etc. area. As an example, let's consider how Kobe City's disaster management plan
includes requirements for the location of evacuation shelters.
Figure 35. Positioning and Designation Policy of Emergency Evacuation Sites and Shelters(Kobe City)

Name (Kobe, Japan)

Emergency refuge

Designated emergency
refuge (Various)

Name(DisasterPrevention
Act)(Great fire)(Flood)Designation Policy
The building has the size andstructure necessary to protect lifeand limb from the smoke andheat of a large-scale fire in an
urban area caused by a major
earthquake or other event.
Designated as a basic indoor
space outside of the expectedflood zone designated under the
Flood Prevention Law.

75

Designated facilities,
etc.
Large parks and open
spaces Grounds ofelementary and juniorhigh schools

Indoor facilities with acertain amount of
space (schools,
public and private
facilities, etc.)

(Landslide)

Designated under the Landslide
Prevention Act Designated as abasic indoor space outside of thelandslide hazard warning area
Designated as a basic outdoor
space with a certain area outside
the tsunami inundation zone.

(Tsunami)

Tsunami emergency shelter

Shelter
Designatedshelter

Welfareshelter

The area is used as an
emergency evacuation site in theevent of a delayed evacuation orin the event that injured people orthose requiring special care a r e
unable to evacuate horizontallyby the time the tsunami reaches
the site. Designate at least thethird floor of a solid building
Designate an indoor space with acertain amount of space for
evacuation (After the danger of adisaster has passed, the area isused as an evacuation shelter inthe event of damage to the homeor other facilities. (Facilities thatare located in the same area)
Designate an indoor space with acertain size for evacuation of
personsrequiring
specialconsideration.

Indoor facilities with acertain amount of
space(schools,
public and private
facilities, etc.)
Large parks and open
spaces Grounds ofelementary and juniorhighschools
Evacuation
sites
designated in theregional
tsunamidisaster prevention
plan
Robust buildings (RCand SRC structuresdesigned to new
seismic
resistancestandards)
In
principle, the third
floor or higher

Indoor facilities with acertain amount of
space(schools,
public and private
facilities, etc.)

Community welfare
centers,socialwelfarefacilities,
lodging facilities, etc.

3.2 A comparative study of requirements for evacuation shelter
during disaster
In Japan, the requirements for evacuation shelters are governed by the following
guidelines. 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 innormal times, operation of evacuation centers (during disaster), responding to needs andelimination of shelters. These groups are divided into the following sub-groups andimplement the relevant requirements.
76

I. Establishment of operational structure (peacetime):(1) Operations to be performed in normal times:
1. Establishment of a shelter management system.
2. Designation of shelters:
3. Specific preliminary assumptions for initial response
4. Establishment of a support system
5. Measures for evacuees who are unable to return home and evacuees at home
II. Operation of evacuation centers (during the disaster):(1) Core business
6. Establish a cycle of shelter operations
7. Acquisition, management and sharing of information
8. Food and supply management
9. Securing and managing restrooms(2) Health Care
10. Maintenance of a hygienic environment
11. Health care of evacuees
12. Improvement of bedding(3) Better Environment
13. Clothing
14. Bathing
III. Responding to Needs(1) Consideration required
15. Accommodating those who need special consideration
16. Consideration for women and children(2) Safety and security
17. Crime prevention measures
18. Pet support
IV. Elimination of shelters
19. For the elimination of shelters:
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;-The issue of changing and washing clothes of the people who arrived at theevacuation center was specially submitted. In doing so, it was legislated that “Fordisaster victims who evacuated with only the clothes on their backs, clothing77

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 an environment where the victims can wash their clothes bythemselves”.
-

The guidelines also address the issue of domestic pets kept by residents whoarrived at the evacuation shelter. In doing so, it was legislated that “Consider
specific measures such as securing a place for the pet owner to keep the pet atthe shelter responsibly and preparing a cage or other container for the pet”.

-

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 specificmeasures to secure toilets. In each chapter, the issues necessary to implement therelevant requirements were considered as sub-chapters.
I. Current situation and challenges:
2. Issues surrounding toilets in evacuation shelters during disasters:
II. Basic approach to securing and managing toilets
5. On securing disaster toilets:(2) Toilet mechanism(3) Constraints in securing toilets during disasters.
(4) System building(5) Planning
6. Items to be considered when securing and managing:
7. Number of toilets (approximate)
8. Types of toilets(3) Use of existing toilets(4) Disaster toilets
5. Toilet hygiene:
III. Specific measures to secure toilets
2. Toilet model caseIn 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 toactively incorporate the views of disabled persons and women on the location of78

toilets and security measures, and to ensure that toilets for disabled 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 theelderly.
-

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 eachof 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 facilities of the shelter, in addition to the lifeline situation andlocation of the shelter.

• "Guidelines for Securing and Managing Welfare Shelters" has 3 chapters: Efforts
in peacetime, Efforts in times of disaster and Use of welfare shelters, etc. underagreements. In each chapter, the issues necessary to implement the relevant
requirements were considered as sub-chapters. Significance and purpose of welfare
shelters and how to use this guideline, experiences of using welfare shelters are also
included.
I Efforts in peacetime
1. Identification of persons eligible for reception in designated welfare shelters:
1.1 Identification of the approximate number of people to be received in designatedwelfare shelters:
1.2 Assessing the current status of persons eligible for reception in designated welfare
shelters, etc.
2. Designation, public notice and dissemination of designated welfare shelter:
2.1 Identification of facilities that can be used as designated welfare shelters.
3.3 Designation of designated welfare shelters.
3.3.1 Designation criteria for designated welfare shelters.
3.3.2 Setting targets for the designation of designated welfare shelters.
3.3.3 Designation and public notification of designated welfare
shelters.

793.3.4

Ensure that designated welfare shelters are known to the
public:3.3.5 Coordination of the number of people to be received at each
designated welfare shelter.
3. Development of designated welfare shelters
3.1 Development of facilities for designated welfare shelters:
4. Securing supplies, equipment, human resources and means of transport
4.4 Securing supplies and equipment
4.2 Securing support personnel
4.3 Securing means of transport.
5. Cooperation with social welfare institutions and medical institutions
5.1 Strengthening of cooperation in the establishment and operation of designatedwelfare shelters.
5.2 Response to emergency admissions, etc.
6. Pre-establishment of an operational system for designated welfare shelters
6.1 Pre-establishment of support teams for persons in need in the event of a disaster,etc.
6.2 Pre-establishment of an operational system for designated welfare shelters.
7. Prepare manuals for the establishment and operation of designated welfare sheltersand conduct drills.
7.1 Preparation of installation and operation manuals, conducting drills, etc.
7.2 Dissemination and awareness-raising on rules and regulations for designatedwelfare shelters.
II Efforts in times of disaster2. Establishment of designated welfare shelters
2.1 Establishment of designated welfare shelters and reception of persons in need
2. Operational arrangements for designated welfare shelters
2.1 Dispatch of staff in charge of designated welfare shelters
2.2 Operational arrangements for designated welfare shelters and support for theiractivities.
3. Support for persons in need in designated welfare shelters.
3.1 Creation and management of evacuee registers for designated welfare shelters.
3.2 Provision of assistance in designated welfare shelters.
3.3 Emergency admission, etc.
4. Elimination of designated welfare shelters804.1 Consolidation and elimination of designated welfare shelters
III Agreements of use the welfare shelters.
2. Agreements of use the welfare shelters
2.1 Use of welfare shelters through agreements, etc.
2.2 Establishment of spaces for people with special needs within general shelters.
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 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.

-In this guideline, a schematic drawing of the Designated Welfare evacuation
shelters and Designated General 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 to ensure that the facility functions
as a designated welfare shelter and that people in need of assistance have a goodliving environment for their evacuation.

-

Issues such as the evacuation and transfer of citizens from welfare evacuation
centers were resolved.

-

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 well as to assign specialized
personnel and volunteers to designated welfare shelters.
Research into the legal documents in force in Japan, which regulate the issue of

evacuation shelters, shows a tendency to respect human rights. It also aims to reduce
the emotional distress of citizens by providing comfort and basic human needs, andprevent secondary disasters such as infectious diseases, even when people have totemporarily stay in evacuation shelters during disasters.
Conclusion of the chapter 3
Operation of Shelters:
1. Method of Operation: In evacuation centers, there are different measures taken
during the disaster and in the 1-2 months after it. For example, Occurrence of a disaster- one month after the disaster: Confirmation of safety, securing drinking water and food,81

first-aid station, temporary toilets, etc., installation of baths, acceptance of volunteers, 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: Allocate elderly, handicapped, and sick people tothe places in the best environmental conditions; Promote barrier-free access andimprovement of evacuees’ living circumstance; Involve both male and female in decisionmaking of shelter operation, to consider perspectives of both sexes, including the different
needs.
The following items must be prepared at the evacuation shelters: Stockpile
emergency food and supplies for 3 days after a disaster (Shelters and stockpiling bases);small generator (floodlight), battery for recharging; infectious disease control supplies;
welfare shelters etc. Storages belonging to wards and prefectures disaster protection
departments and offices are located next to the evacuation shelters of people in times ofdisaster.
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”).
One of the main indicators of the implementation of legal documents is to makepeople knowledge of disasters.
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. 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 applications etc.
Also, in this chapter, it is written that there are several provisions that can be
implemented in my country after researching the guidelines that determine therequirements for evacuation shelters.

CONCLUSION
According to the research, the number of disasters, accidents, dangerous
phenomena and the amount of damage caused in Mongolia tends to increase in recent
years. This is due to factors such as climate change, population growth, industrialization,
82

and rampant urbanization and it has becoming one of the factors affecting the safety ofthe population.
During accidents and disasters, possibility of evacuation of the people to a safety
place or emergency shelter until the situation normalizes, so the Government of Mongolia
and the National Emergency Management Agency (NEMA) need to be prepared.
Preparedness is an important factor in disaster prevention, which is one of themain factors in disaster management.
In the legal documents in force in Mongolia, the requirements for emergency
shelters for citizens during disaster are briefly reflected in a too general way, so theirimplementation is insufficient.
Therefore, a study was conducted on how the requirements for evacuation shelters
are defined in the documents in force in Japan. Japan is a strong nation that has survived
several mega disasters throughout its history. As Japan several large-scale disasters, it
constantly updates and improves its evacuation shelter requirements.
As a result of the research, the following conclusions were reached. It includes:❖ Each country has a different name for evacuation shelters. However, since themain functions of evacuation shelters during disasters are the same, I decided touse the term "evacuation shelter" according to the limitations of the research work
as mentioned in the legal documents of Japan.
❖ 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 and Managing Welfare Shelters". These
guidelines have been updated after mega disasters and based on experience
gained from those disasters. In this way, the requirements for the evacuation
shelter will become clearer and the implementation and control will be improved.
❖ It is considered appropriate to add the following issues to the requirements forevacuation shelter of legal documents implemented in Mongolia.
-

In "Shelter Management Guidelines", there are a number of provisions that can be
added to the legal documents of our country and are aimed at citizens staying inevacuation shelters. For examples;-

The issue of changing and washing clothes of the people who arrived at theevacuation center was specially submitted. In doing so, it was legislated that“For disaster victims who evacuated with only the clothes on their backs,
clothing should be taken into consideration. Beginning with underwear, try tosecure clothing that is appropriate for their gender and age. Once the situation
83

settles down, aim to create an environment where the victims can wash theirclothes by themselves”.
-

The guidelines also address the issue of domestic pets kept by residents whoarrived at the evacuation shelter. In doing so, it was legislated that “Consider
specific measures such as securing a place for the pet owner to keep the petat the shelter responsibly and preparing a cage or other container for the pet”.

-

The issue of eliminate and consolidation of resettlement premises is very
important, and this issue will also be regulated by this guideline.

-

In "Guidelines for Securing and Managing Toilets at Shelters", there are a numberof 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 toactively incorporate the views of disabled persons and women on the locationof toilets and security measures, and to ensure that toilets for disabled 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 ofeach of them is clearly specified in this guideline. Also, toilets can be combined
together. The combination of toilets in shelters during a disaster should bechosen to be suitable according to the passage of time since the disaster, thecircumstances of the users and the facilities of the shelter, in addition to thelifeline situation and location of the shelter.

-

In "Guidelines for Securing and Managing Welfare Shelters", there are a numberof provisions that can be added to the legal documents of our country and are
aimed at citizens staying in evacuation shelters. For examples;-

In this guideline, it is legislated to separately regulate the issue of keeping
citizens with disabilities, pregnant and nursing mothers, and elderly people inneed of special care in welfare evacuation shelter.

-In this guideline, a schematic drawing of the Designated Welfare evacuation
shelters and Designated General evacuation shelters for people required care.
84

-The guidelines clearly describe issues such as who is responsible for the
essential items in the welfare shelters. The municipality, in cooperation withthe facility manager, will develop the necessary facilities to ensure that thefacility functions as a designated welfare shelter and that people in need ofassistance have a good living environment for their evacuation.

-

Issues such as the evacuation and transfer of citizens from welfare evacuation
centers were resolved.

-

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 well as to assign
specialized personnel and volunteers to designated welfare shelters.

❖ According to a study, 22.9 percent of people rescued during the Great HanshinAwaji earthquake were rescued by professional organizations, while 77.1 percent
were rescued by citizens. Based on this research, the government of Japan has
taken many measures to increase the participation of citizens during disasters.
Therefore, citizens were trained in ways to protect others from disasters. Retired
doctors, nurses, and firemen are also working as trainers, and they are also
working in evacuation shelters.
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”). In thisway, they have the knowledge to save themselves and others during disaster, andlead an active social life.
In our country, I believe that it will be effective if we legislate how to use theknowledge of volunteer activists and retired people to help others in times ofdisaster and employ them as trainers.
❖ 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 asfollows. For example: use of social networks, DRR exhibition room, museum andother building constructions; documentaries and television programs; books,
manuals and newspapers for the general public; disaster risk reduction events;
Use mobile applications etc.
From an early age, children are taught lessons about the dangers of disasters, how
to protect themselves, and how to go to an evacuation shelter in a way that is
appropriate for their age and mindset.
85References:
1. “Evacuation and shelter guidance” Cabinet Office of England, 2014.
2. “Research report on resilient infrastructure in Mongolia” Serjmyadag D., 2020.
3. “Mongolian Disaster Management Reference Handbook” Center for excellence indisaster management & humanitarian assistance,. 2022.

86

4. “A study on basic requirements for evacuation shelters during disaster”
Chimedtseren.P, Solongo.S and Narantuya.D, Mongolia 2019.
5. “Learning from mega disasters” Federica Ranghieri and Mikio Ishiwatari,. 2014.
6. “An overview of the disaster relief shelters” Abdulrahman Bashawri, Stephen
Garrity and Krisen Moodley,. 2014.
7. "Shelter Management Guidelines" Cabinet office, Disaster Management in Japan
8. "Guidelines for Securing and Managing Toilets at Shelters" Cabinet office,Disaster Management in Japan.
9. "Guidelines for Securing and Managing Welfare Shelters" Cabinet office,Disaster Management in Japan.
10. “Disaster Management in Japan” Cabinet office, Disaster Management in Japan
11. “Disaster Management in Japan” White paper. Cabinet office, Disaster
Management in Japan. 2015-2022.
12. In shelters Guidelines for securing and managing toilets.
13. Law of Mongolia - "Law on Protection from Disasters"
14. Deputy Prime Minister's Order No. 75 of 2017–"Disaster Protection Professional
Class Rules", “Procedures for the mobilization of forces in the times of adisaster”; "Procedures for Evacuation of Citizens in Disasters"
15. Order No. A/305 of 2020 of the Director of the National Emergency Management
Agency - "Requirements for temporary assembly areas, evacuation sites, andevacuation shelters"
16. https://www.adrc.asia/
17. https://www.bousai.go.jp/index-e.html,
18. https://www.kobe-sonae.jp/
19. https://legalinfo.mn/en
20. https://nema.gov.mn/
21. http://nidr.nema.gov.mn/

Appendix 1
Survey of displaced people№

Family
name

Last
First
Register
Sex
Province and Home
name
name
numbercity of birth
address
Information about citizens staying in evacuation shelter
87

Mobilenumber1
2
3

Nationality

Major

Profession

Education

Employment
statusBlood
type

Name, address
phone
and
of
numberemergency
contact person№

ofSurnamecitizen staying
temporaryinaccommodation

Details about the citizen staying in the evacuation shelter

1
2

Information of family members№

What kind of
relative are
you?

Last
name

First
name

RegisternumberSex

Provinceand cityof birthHomeaddress

MobilenumberAdditional information:……………………………………………………………………………………………………
……………………………………………………………………………………………………

Profession and education:……………………………………………………………………………………………………
…………………………………………………………………………………………………….

Do you have knowledge of first
aid?: ...................................................................................................................................
............................................................................................................................................
.........

88