Counter Disaster Measures for People with Functional Needs in Times of Disaster in Japan: Achievements and Challenges before and after the Great East Japan Earthquake and Tsunami Disaster

Abstract

This paper reports, first, the achievements to counter disaster measures for People with Functional Needs in Times of Disaster (PFND) in Japan since 2004, second, the newfound challenges following the 2011 Great East Japan Earthquake and, finally possible solutions to address these issues. First, a case study conducted at Hyogo ward, Kobe city was presented as an attempt to propose a standardized method of identifying and locating individual PFND based on person-in-environment model of vulnerability. After the 2011 earthquake and tsunami disasters, newfound challenges were observed: Those were (1) identifying people at risk; (2) assigning specially designated shelters for PFND; (3) utilizing the information on PFND. Identifying people at risk relied on the current hazard estimation process which is based on the maximum probable event (MP(subscript r)E) framework. It was found, however, that there is a need to re-think this and shift to the maximum possible event (MP(subscript o)E) framework. The need for shelters and temporary housing units that can respond to individualized needs of PFND arose following the earthquake. However, due to lack of pre-planning in some municipalities, their provisions were neither systematic nor universal. Meanwhile, lack of understanding of the legal framework influenced the reluctance of many local government administrators not to share their PFND registry to Non-governmental Organization (NGO) or self-help organizations. Since a majority of people with disabilities, one large category of PFND, chose not to seek assistance from the evacuation shelters, they became invisible and the local administrators were unaware of their specific needs. To address these issues, the following were proposed; (1) a shift from MP(subscript r)E to MP(subscript o)E framework which calls for the involvement of all stakeholders; (2) developing a more detailed guidelines for specially designated shelter and temporary housing operations; and (3) public education on the use of personal information of PFND during a disaster period.