中華民國內政部建築研究所中華民國內政部建築研究所

一、研究緣起
我國現行的災害防救體制，雖已為相關長照機構(如老人安養中心、護理之家等)及醫療院所訂定災時因應對策，但仍有多數高齡者因身體機能退化程度未達機構長照照顧標準，選擇社區居家照顧；因此，仍有為數眾多身體機能限制的高齡者，仍須到一般避難場所進行短期避難。內政部建築研究所自109年度開始進行相關研究，建置臺灣的高齡弱勢者特殊避難機制，110年度擬定高齡特殊避難空間設置參考手冊，提供現有或新建建築物整備及改造應用參考，而今年度應用本部內政大數據及相關災害防救資料，以鄰里為單位，進行高齡者狀況分析，探討高齡社會下大震災面臨之風險，檢視數據成果提高高齡社會對大規模震災的因應能力。協助我國建置大震災後高齡弱勢者特殊避難場所機制之雛形，供後續落實於地區災害防救計畫規劃建置參考應用。
二、研究方法及過程
研究採用內政大數據「人+建物+地理資訊」，篩選符合可作為高齡弱勢條件之欄位，並蒐集其他相關資料輔以使用，如：土壤液化程度、避難收容處所點位、建物涵蓋面積等；依數據百分比以統計四分位數作為分級依據，應用GIS疊圖分析，探討研究地區不同項目組合下的高齡震災脆弱風險結果。研究執行過程中，蒐集相關文獻並透過專家學者座談會與深度訪談，檢視數據統計方法與流程適宜性，並進行校園高齡避難收容供給能量之推估。
三、重要發現
(一)應用內政大數據及災害防救相關資料，建立高齡弱勢者數據分析與方法。
1.內政大數據應用方法與限制
應用內政大數據之震災高齡脆弱風險地區特性分析，研究者採用內政部「創辦內政大數據連結應用專案計畫」之內政大數據「人+建物+地理資訊」作為主要資料。本案以板橋區作為大數據分析範圍共55,769筆，受限於資料欄位未提供個人長期照顧及身心障礙層級資訊，因此僅以年齡65歲以上高齡人口作為界定，初步篩選結果研究地區板橋區高齡人口共計9,130筆。
2.建立高齡弱勢數據
板橋區高齡弱勢特性，各里的獨居高齡者占高齡總人口2~5成；共32個里身障高齡者超過11.45%；環境風險層面有99個里超過70%高齡人口居住於屋齡30年以上建物，考量高齡者行動能力以300公尺劃設災時收容服務半徑，共87個避難所涵蓋面積比小於50%。
3.高齡弱勢潛勢程度分布
應用地理資訊系統疊合，震災高齡弱勢與避難收容高脆弱度區域，條件符合：土壤液化潛勢中、避難收容服務範圍未涵蓋比大於50%以上、高齡者居住在老舊建物(30年以上)占比大於70%以上，高齡弱勢對象四分數加總大於5分。
(二)進行實證研究，發掘建置特殊避難場所設置之問題與改善對策。
1.特殊避難收容空間適宜性分析
以學校型態避難所為例，驗證前一年度特殊避難收容場所操作手冊檢核，經由現況勘查結果，針對學校型態之一般收容場所，設置特殊避難空間進行適宜性分析，指定避難收容空間樓層多數非為避難層，且多分散在不同棟樓或樓層，亦或是避難層現況內部使用不適合高齡弱勢安置，其餘多數災時使用之作業、服務區域，如物資發放區、用餐休憩區、安心關懷區等，依據學校平時空間使用型態無相對應關係，造成現況部分空間不符合檢核表之災時空間使用方式。
2.特殊避難收容空間面積分析
主要收容區域因應高齡避難收容所需面積，每人建議提供5~6平方公尺，板橋國小雖足夠供給漢聲里高齡避難收容總量(129人，645平方公尺)，但實際應用多擺放桌椅、圖書櫃、雜物等，而導致實際可收容人數小於配置人數；江翠國中足夠供給溪頭里高齡避難收容總量(117人，585平方公尺)。
(三)以鄰里層級探討高齡弱勢者特殊避難收容供需能量推估，研擬高齡弱勢者避難分流、場所分派、特殊避難場所設置機制相關原則，增補手冊草案內容。
1.收容供需能量推估
從收容供需層面探討，對避難收容處所進行評估，漢生里及溪頭里供需能量足夠收容特殊避難需求者，但對應新北市地區災害防救計畫內容顯示，板橋區整體收容能量不足(第3-194頁)，且現行體制避難收容處所(含防災公園)服務範圍以半徑2公里計算，不同里別的可服務之避難收容處所數量不均，溪頭里共2間，漢生里則為5間，故研究者當以里為單位評估時，鄰里間的供需能量分布不均。
2.避難收容可及性評估
避難收容可及性層面探討，研究者進一步考量高齡者行動能力，當避難收容處所服務300公尺時，現有可服務之避難收容所皆無涵蓋在範圍內，故當考量高齡行動能力其避難所可及性恐無法滿足高齡者需求。
3.特殊避難收容手冊增補建議
延續前一年度研擬的特殊避難空間參考手冊(草案)，依據章節架構建議操作方向如下：章節參「特殊避難收容場所的平時準備」，項目一及二，特殊避難場所收容對象掌握及開設流程，建議透過韌性社區、防災社區強化防災士對於特殊避難需求者專業能力；章節肆「短期特殊避難場所的空間整備」，項目一，特殊避難場所分區配置，應依循特殊避難收容空間檢核表項目，進行整體空間評估與配置；章節伍「特殊避難場所的災害應變機制」，建議以鄰里單位盤點其他應用資源，並進一步考量救援人力資源的分配。
(四)針對「震災(含土壤液化)災害防救業務計畫」、「地區災害防救計畫」，現今整備與應變上相關內容，提出對於避難收容場所增設避難收容空間，與設置特殊避難收容場所之增修建議。
(1)強化防災士高齡弱勢專業訓練
應用內政大數據篩選與疊圖分析結果，優先針對震災高齡弱勢高脆弱度地區，盤點都市計畫區內作避難收容場所之主要公共設施類型，以利檢討都市防災空間系統，建構避難收容空間規劃手冊，進行相關指導與必要規範；配合消防署「強韌臺灣大規模風災震災整備與協作計畫」未來五年中程計畫，應用既有相關執行計畫強化防災士訓練對於高齡弱勢專業訓練，並藉由社區型災害防救計畫納入社區管委資源，平時居民營運管理，宣導社區名冊建置及周邊收容所位置，強化第一時間的自救避難能力。
2.強化宣導高齡弱勢名冊登錄
針對其他因身體機能退化程度未達長照照顧標準，且平時有家人或看護照顧，但不需要專門照顧之社區居家照顧者，參考日本災害應變作法建置高齡弱勢登錄名冊，受限於個資法無法掌握對象，因此透過基層人員(如里長、區公所)平時協助里民服務或辦理交誼活動的同時，藉此向居民宣導建置名冊的重要性。
四、主要建議事項
建議一
應用大數據於都市計畫防災規劃手冊之避難收容空間研究：立即可行建議
主辦單位： 內政部建築研究所  
協辦單位： 內政部營建署、內政部消防署
針對都市計畫區內，主要公共設施類型之避難收容場所，作為避難收容空間應具備之功能定位與應具備之空間設施特性上，進行相關指導與必要規範，有效落實都市防災計畫下的都市避難收容空間系統。
提供都市計畫於都市防災分析時蒐集資料、分析方法及步驟，與都市防災計畫應具備內容與展現方式之建議範本，提供相關專業規劃者，進行都市防災計畫時避難收容項目應具備之分析與重點，以利建構具有落實性的避難收容都市防災計畫。
建議二
建立防災士針對高齡弱勢避難收容相關訓練操作指引：中長期建議
主辦單位： 內政部建築研究所
協辦單位： 內政部消防署
依據高齡特殊避難空間參考手冊(草案)(內政部建築研究所，2021)相關內容，從平時整備、災害應變、災後復原三大階段，建置協助高齡弱勢避難收容訓練操作指引，並納入既有相關執行計畫如「災害防救深耕計畫」、「111年度強化民間自主防救災能力專案計畫–災害協作志工中心營運作業試辦計畫」，強化防災士災害應變營運管理訓練。

1.Motivation
Although the current disaster prevention and rescue system in Taiwan has formulated disaster response measures for relevant long-term care institutions (such as caring centers and nursing homes for the elderly) and medical institutions, those elders who do not meet the standards of institutional long-term care services are usually given caring from their family members or caregivers for home care. Therefore, there is a significant population of elderly people with restricted physical capabilities that need to go to general shelters for short-term stays during disasters.Due to the decline of their physical and mental capabilities,Since 2020, the Architecture and Building Research Institute.Establish a special shelter mechanism for the elderly and vulnerable in Taiwan. In 2021, we further formulated a reference manual for establishing special shelter spaces for elderly people to provide standards for the renovation and preparation of existing or newly-built buildings.
In 2022, use the big data of internal affairs and related disaster prevention and rescue data of MOI were adopted to analyze the status of the elderly with each village or neighborhood as the basic unit for exploring the risks faced by aging communities during earthquake disasters and examining the results to improve the capability of the elderly to respond to large-scale earthquake disasters. We are assisting Taiwanese government in building a prototype of special shelter mechanism for the vulnerable elderly after the hit by major earthquakes for subsequent implementation in the planning and construction of regional disaster prevention and protection and formulation of reference application
2.Research Methodology and Process
Our research adopted the big data of internal affairs "people + buildings + geographic information" to screen those that meet the standards of elderly and vulnerable, and collected other supplementary relevant data such as degrees of soil liquefaction, shelter locations, and building coverage areas, etc. The data percentage and statistical quartiles served as the basis for classification, and by adopting GIS overlay analysis, we explored the vulnerability risk results of the elderly under different item combinations in the areas of our research. During the research, we collected relevant literature and conducted a discussion with experts and scholars in the form of symposiums and in-depth interviews to review the data statistical methodology and process suitability and estimated the supply capacity of shelters on campus for the elderly.
3.Key Findings
(1)By using the big data of internal affairs and related disaster prevention and rescue data of MOI to establish data analysis and methods for the elderly and vulnerable
A.Application methods and limitations of big data in internal affairs
By using the big data of internal affairs "people + buildings + geographic information" from the project "application of connection of big data of internal affairs " as the major data for analysis of characteristics of areas highly vulnerable to earthquake disasters, This Project took Banqiao District as the research area for big data analysis for a total of 55,769 records. Since the data fields did not include personal long-term care and information on the degrees of physical and mental disabilities, we only included the elderly population over the age of 65 and the preliminary screening results had a total of 9,130 pieces of data on the elderly in Banqiao District.
B.Building the database of elderly vulnerability
The elderly and vulnerable characterics of Banqiao District, the elderly living alone in each villige account for 20% to 50 % of the total elderly population ; a total of 32 villiges have more than 11.45% of elderly people with disabilities; in terms of environmental risks, more than 70% of the elderly population in 99 villiges live in buildings that are more than 30 years old; taking into account the mobility of the elderly , a disaster shelter service radius was set up at 300 meters, and a total of 87 shelters covered less than 50% of the area
C.Distribution of vulnerability of the elderly
The application of geographic information system superimposition to earthquake disaster elderly vulnerable and evacuation shelter areas with high vulnerability areas, the conditions meet: soil liquefaction potential, evacuation shelter service coverage is not covered by more than 50%, the proportion of elderly people living in old buildings (more than 30 years) accounted for more than 70%, and the sum of the four scores of the elderly and vulnerable objects is greater than 5 points.
(2)Conduct empirical research to discover the problems and improvement countermeasures in the establishment of special shelters.
A.Suitability Analysis of Special Shelters
Taking campus shelters as an example,this research verified the previous year’s operation manual for special shelters., based on the results of the investigation on the current situation, we conducted a suitability analysis on special campus shelters for school-type general shelters and found out that most of the designated accommodation spaces were either not floors dedicated for shelters and were scattered in different buildings or floors or the current internal use of shelter floors was not suitable for the elderly and vulnerable, and most of the space was for operations and services during disasters including supplies material distribution, dining and rest, and mental caring area, which had no corresponding relationship according to the usual space usage of schools, resulting in unsatisfactory results in terms of the checklists for regulations of space usage during disasters.
B.Analysis of the area for special shelter space
The main shelter area is recommended to provide 5~6 square meters per person according to the area required for elderly shelter. Although Banqiao Elementary School is sufficient to accommodate the total of Hansheng Village (129 people, 645 square meters), the actual applications is to place tables, chairs, bookcases, sundries, etc., resulting in the actual number of people who can be accommodated is less than the allocated number; Jiangcui Middle School is sufficient to accommodate the total number of Xitou Village (117 people, 585 square meters) .
(3)Discuss the supply and demand estimation of special shelters for the elderly and vulnerable at the neighborhood level, study the relevant principles of the mechanism for the evacuation and diversion, site assignment, and special shelter setting for the elderly and vulnerable, and supplement the content of the draft manual.
A.Containment supply and demand energy estimation
Assess shelters from the level of supply and demand, the supply and demand energy in Hansheng Village and Xitou Village was enough to accommodate special shelter needs, but the corresponding New Taipei City Area Disaster Prevention and Rescue Plan content shows that the overall shelter capacity in Banqiao District was insufficient (pp. 3-194), and the service scope of the current system of shelters (including parks for disaster prevention) was calculated by a radius of 2 kilometers, and the number of shelters that can be served in different villages was uneven, with a total of 2 in Xitou Village and 5 in Hansheng Village. Therefore, when the researchers evaluated in villages, the distribution of supply and demand energy between neighbors was uneven.
B.Assess shelter accessibility
When the evacuation shelter service is 300 meters, none of the existing accessible shelters are covered, so when considering the mobility of the elderly, the accessibility of the shelters may not be able to meet the needs of the elderly
C.Suggestions for updating the special shelter manual
Continuing the special shelter space manual(draft) developed in the previous year, the following directions are proposed according to the chapter structure: the Chapter 3 is the "Ordinary Preparations for Special Evacuation Shelters", indicate the procedures for the mastery and opening of special evacuation sites, and it is recommended to strengthen the professional capabilities of disaster prevention personnel for special evacuation needs through resilient communities and disaster prevention communities; the Chapter 4 is the "Space Preparation of Short-term Special Shelters", indicate the zoning configuration of special shelters should be evaluated and configured in accordance with the special shelter space checklist items; the Chapter 5 is the "Disaster Response Mechanism of Special Shelters", recommends that neighborhood units should take stock of other resources and further consider the allocation of rescue human resources.
(4)In response to the relevant content of the current preparation and response of the "Earthquake (including Soil Liquefaction) Disaster Prevention and  Rescue Business Plan" and "Regional Disaster Prevention and Rescue Plan",  put forward suggestions for adding evacuation space in evacuation shelters and setting up special evacuation shelters.
A.Strengthen the professional training of disaster prevention personnel for the elderly and vulnerable
Using the results of internal affairs big data screening and overlay map analysis, priority is given to the elderly, disadvantaged and high-vulnerability areas in the earthquake disaster, and the main types of public facilities used as evacuation shelters in urban planning areas, so as to facilitate the review of the urban disaster prevention space system, construct the evacuation shelter space planning manual, and provide relevant guidance and necessary specifications. In line with the medium-term plan for the next five years of the “Resilience Taiwan: Large-scale Wind and Earthquake Preparedness and Cooperation Plan” of the National Fire Agency, apply the existing relevant implementation plans to strengthen the training of disaster prevention personnel for the elderly and vulnerable professional training, and incorporate the resources of the community management committee through the community-based disaster prevention and rescue plan, the daily operation and management of residents, publicize the construction of community register and the location of surrounding shelters, and strengthen the ability of self-rescue and evacuation in the first time.
B.Strengthen advocacy for registration of the elderly and vulnerable register
For other community home caregivers who do not meet the standard of long-term care due to the degree of deterioration of physical functions, and usually have family members or caregivers who do not need special care, refer to the practice of disaster response in Japan, to build a register for the elderly and vulnerable, due to the limitation of the Personal Information Protection Act, it is impossible to grasp the target. Therefore, the importance of establishing a register can be publicized to residents by grassroots staff (such as village representatives and district offices) when they assist residents in services or handle social activities.
4.Major Proposals
Proposal 1
Application of Big Data in the Study of Evacuation and Shelter Space in the Urban Disaster Planning Manual: Able to be implemented immediately
Organized by Architecture and Building Research Institute, MOI
Co-organized by Construction and Planning Agency, MOI,and National Fire Agency, MOI
For the shelters of major public facilities in the urban planning area, we suggest providing relevant guidance and necessary regulations on the functional positioning and required shelter spatial characteristics to effectively implement the urban evacuation and accommodation space system for the urban disaster prevention plan.
It is recommended to provide urban planning with the collection of data, analysis methodology and steps during urban disaster prevention analysis, as well as templates for the content and presentation methods of urban disaster prevention plans, and provide relevant professional planners with requirements that shelter projects shall satisfy when conducting urban disaster prevention plans analysis and key points, so as to facilitate the formulation of the practical disaster prevention plan for urban shelters.
Proposal 2
Formulation of Disaster Preparedness Training and Operation Guidelines of Disaster Prevention Officer for Evacuation and Shelter for Elderly and Vulnerable: Proposals for mid- and long-term development
Organized by Architecture and Building Research Institute, MOI
Co-organized by National Fire Agency, MOI
According to the relevant content of the reference manual (draft) for special shelter spaces for the elderly (Architecture and Building Research Institute , MOI, 2021), from the three major stages respectively known as daily preparation, disaster response, and post-disaster recovery, we recommend to formulate the training for the operation guidelines for assisting the elderly and vulnerable in taking shelter, which will also be integrated into the existing plans such as "Plan for In-depth Development of Disaster Prevention and Rescue" and "2022 Project for Strengthening Private-Sector and Civilian Disaster Prevention and Rescue Capabilities – Pilot Project for Operation of Center for  Volunteers of Disaster Relief" for enhancing the training of disaster prevention officers to manage disasters.