**4.2 Implementation of training**

**Figure 4** shows the implementation status of shelter management training under COVID-19. Approximately half of the local governments conducted training for the entire municipality, and when combined with the local governments that conducted individual training at shelters, about 3/4 of the local governments conducted shelter management training under COVID-19. Compared to the preparation of manuals, many local governments conducted their own training at shelters. It is thought to be because training at the shelter can be conducted in a state closer to the actual situation.

#### **4.3 Addition of shelter**

**Figure 5** shows the presence or absence of shelters newly added as a countermeasure against COVID-19.

Under the Disaster Countermeasures Basic Law, as a rule, basic municipalities are obliged to designate shelters (Article 49–7), and local elementary schools and public halls are shelters.

**Figure 4.** *Implementation status of shelter management training under COVID-19.*

#### **Figure 5.** *Presence or absence of shelters newly added.*

In addition, as a measure against infectious diseases, securing social distance will result in a shortage of conventional shelters. Therefore, it is recommended by the government to add new shelters and carry out distributed evacuation.

About 30% of local governments have added new shelters. In addition, the municipalities that answered "not added" include those that are in the process of adjustment.

**Figure 6** shows the details of the newly added shelter. We asked the local governments that answered that they had "added" shelters to answer with multiple answers as to what kind of facilities they are using. Most of them are public facilities, followed by accommodation facilities such as hotels and inns. Others included shelters for overnight stays in cars and the use of empty classrooms in shelters.

Since public facilities are owned by the local government, it is assumed that it is relatively easy for the local government to add new shelters as internal adjustments will be made. It is considered to be the factor that the number of public facilities as newly added shelter is the largest. On the other hand, accommodation facilities and private facilities need to conclude agreements to be used as shelters, and it is considered difficult to secure them compared to public facilities. However, accommodation facilities are attracting attention due to the spread of COVID-19 [24]. In order to prevent the collapse of medical care, hotels are being rented and converted into accommodation facilities for the mildly ill.

**Figure 6.** *Details of the newly added shelter.*

*A Report of the Survey on Shelter Management under COVID-19 in Japanese Local Governments DOI: http://dx.doi.org/10.5772/intechopen.98493*

In addition, it is presumed that a special place was set up for the shelter for overnight stays in the car, as many people stayed in the car during the 2016 Kumamoto earthquake [27].

## **5. Actual shelter management under COVID-19**

#### **5.1 Outline of opening a shelter**

**Figure 7** shows the shelter opening period under COVID-19. About half of them are opened within 24 hours, and about 90% are opened within 3 days. It can be seen that the opening was relatively short.

**Figure 8** shows the total number of evacuees in shelters under COVID-19 per shelter. About half are 10 or less, and the total number of evacuees is small. It also includes cases where evacuees did not come to the shelter even though they opened the shelter. Considering this together with **Figure 7**, it is assumed that the scale of the disaster was smaller than usual.

#### **5.2 Dissemination and collection of information on distributed evacuation**

**Figure 9** shows whether residents were urged to do distributed evacuation under COVID-19. Here, distributed evacuation is defined as various evacuation that keeps

**Figure 7.** *Shelter opening period under COVID-19.*

**Figure 8.** *Total number of evacuees in shelters under COVID-19 per shelter.*

#### **Figure 9.**

*Whether residents were urged to do distributed evacuation under COVID-19.*

a social distance to prevent infection, and in addition to shelters, stay in the car, evacuate at home, evacuate to acquaintances and relatives' homes, and evacuation to accommodation facilities.

As a result of the survey, about 70% of local governments promoted distributed evacuation. Distributed evacuation is effective for preventing infection, but it is different from conventional evacuation methods, so it is important to educate the residents daily so that the residents can correctly understand the meaning and method.

**Figure 10** shows the status of grasping evacuees' information in distributed evacuation under COVID-19. Only about 20% of the local governments have grasped it. From the written answers, we received the opinions that "reports from the mayor of each administrative district regarding evacuation at home", "we cannot be grasp unless contacted from residents", and "only grasp the stay in the car in the parking lot of the shelter" It can be seen that many local governments are based on requests from residents to grasp information. It has become clear that it is difficult for local governments to comprehensively grasp evacuee's information.

From **Figures 9** and **10**, it became clear that there are many local governments that have promoted distributed evacuation but have not been able to grasp the information of distributed evacuees. It is expected that the number of evacuees evacuating to places other than shelters will increase, making it more difficult to grasp the information. However, since it is important to know where and how

#### *A Report of the Survey on Shelter Management under COVID-19 in Japanese Local Governments DOI: http://dx.doi.org/10.5772/intechopen.98493*

many evacuees are in the provision of supplies, it is necessary to consider effective methods. In addition, in order to save people's lives, it's important to grasp where are patients and what medical care is needed, which will lead to effective provision of medical care. Also, these kinds of information should be shared with hospitals or other medical organizations.

### **5.3 Utilization of proactive measures**

**Figure 11** shows the utilization status of the shelter management manual under COVID-19. We asked the local government, which had created the manual at the time of the response, about the utilization status. About 95% of local governments answered that they were able to utilize the manual. Specifically, from the written answer, "We were able to install infectious disease control items (hand sanitizers, facility disinfectants, etc.) that had been deployed to shelters in advance at necessary locations such as entrances and exits according to the manual. "I was able to confirm in advance the flow at the time of reception and what to do when a person with poor physical condition appears (separate rooms and flow lines, etc.)" "If a person with poor physical condition occurs, isolate it. The staff members had a common understanding of that points. " Based on these opinions, by creating a manual in advance and using it in the event of a disaster, the flow from setting up a shelter to accepting evacuees can be carried out smoothly, and special measures in the event of an unwell person can be confirmed. It can be said that this led to fostering a common consciousness among the staff. On the other hand, regarding the local governments that answered that the manual could not be used, from the written answer, we obtained the opinions like, "I could not hand over the manual because it was opened at the branch office." "The shelter was opened but there were no evacuees." Although the manual was created, there was a problem that it could not be referred to at the time of opening because it was not on site. It is considered necessary to deliver it in advance so that it can be referred to at each shelter. In addition, it was found that there were cases where the manual was not used because the evacuees did not come to the shelter.

**Figure 12** shows the implementation status of shelter management training under COVID-19. As in **Figure 11**, we asked the local governments that were

**Figure 11.** *Utilization status of the shelter management manual under COVID-19.*

**Figure 12.** *Implementation status of shelter management training under COVID-19.*

conducting the training at the time of the response about the utilization status. About 90% of local governments answered that the training was "helpful". Specifically, from the written answers, there are opinions like, "I think that we were able to operate the shelter with a margin by assuming various situations in advance." "We were able to smoothly set up the venue such as reception and creation of partitions." "The training at the shelter gave me an image of zoning." By conducting the training, shelter operators were able to get an image of the work content and work calmly and smoothly. Unexpected things can happen in the shelter management, but there are many tasks that should always do the same, and the implementation of training could facilitate the movement of the operator for such basic tasks. On the other hand, regarding the local governments that answered that they could not utilize the training, from the written answers, there are opinions like, "because the training was conducted after the typhoon period" and "because the shelter was opened but there were no evacuees". At the time of answering the questionnaire survey, training was conducted, but at the time of opening the shelter, training was not conducted, and as in the case of the manual, there were cases where there were no evacuees and there were no useful situations. It is inferred that it is important to take proactive measures as soon as possible.
