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ScienceDirect Procedia Engineering 165 (2016) 146 – 154

15th International scientific conference “Underground Urbanisation as a Prerequisite for Sustainable Development”

Study of a simulation to solve difficulties of commuters stranded in underground spaces in Umeda and the surrounding areas at the time of a disaster Isao Shiinaa,*, Izumi Sasakib, Yutaka Haradac, Taro Kasuyad a Shimizu Corporatio,n 2-16-1 Kyobashi, Chuo-ku,Tokyo, 104-8370, Japan Kajima Corporation, 3-1, Motoakasaka 1-chome, Minato-ku, Tokyo 107-8388, Japan c Takenaka Corporation 1-13, 4-chome, Hommachi, Chuo-ku, Osaka, 541-0053, Japan, d Urban Underground Space Center of Japan,1-23-6, Sekiguchi, Bunkyo-ku, 112-0014, Tokyo, Japan b

Abstract The authors are studying the underground spaces around Osaka Station with an emphasis on "utilization of underground spaces with improved safety and security, focusing on the area around Umeda." What prompted us to delve into this topic was the large number of commuters stranded in Tokyo due to the Great East Japan Earthquake that occurred in March 2011 and the effective use of underground space for temporary accommodations. In the Umeda district of Osaka, it is estimated that any major earthquake will result in about 80,000 people having to stay outdoors (including stranded commuters, those who are unable to walk home and have no place to stay in company offices or schools) but there are insufficient areas for temporary accommodations that can house this many people. In view of this present state, we have been investigating to see if the underground spaces existing in and around. This year, we have used Whity Umeda as a model area to verify the types of phenomena that might occur and the types of responses that would be required if stranded commuters were sheltered in the event of a disaster from the viewpoint of the manager of the underground space. We also conducted a study for the purpose of identifying the problems with the present situation and the issues to work on in the future. This paper describes the results of the study. 2016Published The Authors. Published by Elsevier © 2016 © by Elsevier Ltd. This is an openLtd. access article under the CC BY-NC-ND license Peer-review under responsibility of the scientific committee of the 15th International scientific conference “Underground (http://creativecommons.org/licenses/by-nc-nd/4.0/). Peer-review under theSustainable scientific committee of the 15th International scientific conference “Underground Urbanisation as a Urbanisation as aresponsibility Prerequisiteoffor Development. Prerequisite for Sustainable Development

* Corresponding author. Tel.: +81352615625. E-mail address: [email protected]

1877-7058 © 2016 Published by Elsevier Ltd. This is an open access article under the CC BY-NC-ND license

(http://creativecommons.org/licenses/by-nc-nd/4.0/). Peer-review under responsibility of the scientific committee of the 15th International scientific conference “Underground Urbanisation as a Prerequisite for Sustainable Development

doi:10.1016/j.proeng.2016.11.746

Isao Shiina et al. / Procedia Engineering 165 (2016) 146 – 154 Keywords: Underground area around Umeda1, Great East Japan Earthquake2, measures for stranded commuters3, space for temporary accommodations;

1. Introduction In the Umeda district of Osaka, it is estimated that any major earthquake will result in about 80,000 people having to stay outdoors (including stranded commuters, those who are unable to walk home and have no place to stay in company offices or schools) but there are insufficient areas for temporary accommodations that can house this many people. In view of this present state, we have been investigating to see if the underground spaces existing in and around Umeda can be effectively used as spaces for temporary accommodations for stranded commuters in both structural and nonstructural terms. The results of this investigation have allowed us to gain a certain level of understanding of the physical potential of underground spaces for temporary accommodations for stranded commuters. This year, we have used Whity Umeda as a model area from the viewpoint of the manager of the underground space in order to verify the phenomena that might occur and the responses that would be required if stranded commuters were sheltered in the event of a disaster. We also conducted a study for the purpose of identifying the problems in the present situation and the issues to work on in the future. This paper describes the results of the study. 2. Background and Flow of the Study At the start of the study, we conducted a field survey of the underground space around Umeda to gain an understanding of the space (physically) available for temporary shelter and accommodations in the event of a disaster. We also examined the environment, which is required for people to stay in, including the availability of toilets and communication of information in the area. In order to estimate the number of people who could be accommodated, we focused on four model areas that provide relatively large spaces based on the survey described above and laid out on drawings the spaces that allow stranded commuters to lie down to calculate the area required per person (including passageways), which resulted in 5 to 8 m2 per person on the average of the four areas. Since the area of the space available for accommodations is approximately 53,000 m2, the number of people who could be accommodated in the entire underground space around Umeda is 6,600 to 10,600. This is about 9 to 14% of 78,000, the estimated number of people who would have to be accommodated in the Umeda area. 3. Simulation to Solve Difficulties of Stranded Commuters in Underground Spaces around Umeda 3.1. Role of Underground Space among Measures for Stranded Commuters Since the Great East Japan Earthquake in 2011, there has been a trend for the national government and local government to cooperate with the private sector to make use of underground spaces near terminals as locations to temporarily accommodate stranded commuters. 3.1.1. Cabinet Office (Director General for Disaster Management) Central Disaster Management Council A May 2012 notice entitled "Strengthening of Disaster Preparedness for the Rainy and Typhoon Seasons" from the chairperson of the Central Disaster Management Council (Prime Minister) to the heads of the Designated Government Organizations and chairpersons of the relevant Prefectural Disaster Management Councils requests "(6) Strengthening of measures against flooding of underground spaces." It does not mention stranded commuters. Specifically, the request says, "Cooperate with entities in charge of underground space to ensure that the users are well-informed in advance of the risk of flooding in underground spaces and take all possible means to improve measures against flooding and safety systems, including evacuation instructions. If a flood occurs or there is any

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risk of flood occurrence, take measures for prompt and accurate communication of information and evacuation of the users." 3.1.2. The Ministry of Land, Infrastructure, Transport and Tourism In January and February 2012, a pilot experiment for verifying allowing stranded commuters into underground passageways (including accommodations) was conducted (by the Tokyo National Highway Office of the Kanto Regional Development Bureau, Safety and Security Promotion Council for Tokyo Station and the Surrounding Areas, Bureau of Construction of the Tokyo Metropolitan Government, and Chiyoda City). The purpose was to verify the effectiveness of accommodation of stranded commuters, in the event of an epicenter earthquake, who are obliged to stay in and around the Marunouchi District in underground passageways, and handling of incidental problems. In June 2013, the 1st Investigative Committee Meeting of the "Investigative Committee for Safe Evacuation Measures for Underground Shopping Malls" was held, the 6th meeting of which was held in March 2014. It aimed at establishing evacuation guidelines taking into account hindrance of evacuation caused mainly by falling of ceilings and other structures of underground shopping malls. These disaster prevention promotion projects for underground shopping malls are intended to provide subsidy for inspection, formulation of plans, and construction of preventive measures. 3.1.3. Osaka Municipal and Prefectural Governments In January 2011, the Osaka City Crisis Management Office and the Crisis Management Office of the Osaka Prefecture Policy Planning Department held a Meeting of the Commission for Studying the Response to Stranded Commuters in Large-Scale Disaster Situations in Areas around Osaka Station. The "Meeting of the Commission for Studying the Response to Stranded Commuters in Large-Scale Disaster Situations in Areas around Osaka Station Report Ver. 2" was published in March 2012. The Report mentions four types of response: "stay," "work together," "send home safely" and "give shelter locally." In relation to "give shelter locally," the description of the response in underground shopping malls and passageways include the following. Efforts shall be made to ensure safety of foot passengers, shoppers, etc. by cooperation between the manager and tenants, to provide users unable to move with a space on a temporary basis, to offer tap water, toilets (including securing of general service water and portable toilets to deal with a water cutoff), traffic information, etc., not to lead users above ground immediately but to strive to give support for "staying" until the safety aboveground is confirmed. In August 2011, the Council to Solve Problems with Stranded Commuters in and Around Osaka Station proposed in the Meeting described above was established. In February 2013, the "Simulation Exercise for Handling Stranded Commuters in Districts around Osaka, Namba and Tennoji Stations" was conducted and its report was published in June of the same year. It includes not only the prediction that temporary evacuation will be concentrated in department stores and underground shopping malls as well as evacuation sites including Umeda Freight Station, Nakanoshima Park, etc. starting immediately after the disaster until three hours later, but also the following points to be considered for the establishment of spaces for temporary accommodation among issues identified by the Exercise: x Cooperation between commercial facilities and underground shopping malls must be studied x Rules must be established regarding instruction to be given when the places for accommodation are full On April 19, 2013, the Urban Redevelopment Urgent Improvement Council for Areas around Osaka Station, Nakanoshima and Midosuji Street (Section for Areas around Osaka Station) announced the Urban Redevelopment Safety Ensuring Plans for Areas around Osaka Station (Draft), which requires "giving shelter locally: ensuring of temporary space for accommodation and provision of tap water, toilets and traffic information" in underground shopping malls and passageways.

Isao Shiina et al. / Procedia Engineering 165 (2016) 146 – 154

3.1.4. Osaka Chikagai Co., Ltd. Osaka Chikagai Co., Ltd. has formulated the Rules concerning Disaster Prevention. Article 91 of the Rules contains provisions for response to stranded commuters in conformity to the policies of the Osaka Prefectural and Municipal Governments according to the regulations of the "Council to Solve Problems with Stranded Commuters in and Around Osaka Station," of which the company has the membership. 3.2. Desktop Simulation of Response to Stranded Commuters 3.2.1. Assumption of Disaster The assumption of disaster required for simulation is based on the conditions mentioned in the "Meeting of the Commission for Studying the Response to Stranded Commuters in Large-Scale Disaster Situations in Areas around Osaka Station Report Ver. 2" created by the Crisis Management Offices of the Osaka Municipal and Prefectural Governments on March 29, 2012 with reference to other literature. (i) Disaster conditions x Cause of disaster: Uemachi Fault Zone Earthquake registering a strong 6 to 7 on the Japanese seismic scale x (Largest earthquake assumed by the Regional Disaster Prevention Plans of Osaka City) x Time and date of occurrence: 15:00 on a weekday x (Maximum number of stranded commuters estimated by the total of up to 15:00) x Target train stations: JR Osaka Station, JR Kitashinchi Station, Hankyu Umeda Station, Hanshin Umeda Station x Target Subway stations: Umeda Station, Higashi-Umeda Station and Nishi-Umeda Station (ii) Damage conditions infrastructure: Railroads: disrupted for all lines x Traffic Within a radius of 30 km: several months before restoration (Great Hanshin-Awaji Earthquake) 30 to 45 km: 1 to 2 days before restoration (Great Hanshin-Awaji Earthquake) x Bus: 3 days later (target) x Shipping: Secured within 1 day (target) x Lifelines: Electricity: 100% (Kita Ward): about 1 week before restoration x Gas: 80.5% (municipal area): about 2 to 3 months before restoration x Waterworks: 83.5% (municipal area): about 40 days before restoration x Fixed-line phone: 27.0% (Kita Ward): about 2 weeks before restoration x Mobile phone (Voice): Possible difficulty in getting through in some parts of the city due to limited connection by the respective carriers (Packet): Generally available (possible limited connection) x Underground space: Almost no damage to structures such as pillars (Santica underground shopping mall in Great Hanshin Earthquake) x Tsunamis, river floods, fires, etc. assumed not to occur (iii) Stranded commuters Number of stranded commuters in areas around Osaka Station: about 420,000 ↓ Exclude commuters able to walk Number of people unable to walk home: about 198,000 ↓ Exclude those who can stay in company offices, schools, etc. Number of those who stay outdoors: about 78,000

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3.2.2. Simulation For the purpose of grasping the current problems with utilizing underground space as a place for temporary accommodations for stranded commuters in order to clarify the issues to be solved in the future, we have assumed the conditions that may arise when there are a large number of stranded commuters and used the Whity area as a model to simulate the responses required of the manager of an underground space in the respective phases. The results are as shown in Figure 1. The biggest issue is how to ensure power supply. The current emergency power supply system will stop in about six hours after activation, which means that the underground space will be in complete darkness at 9:00 p.m. if the earthquake occurs at 3:00 p.m. Basically, it is necessary to guide and evacuate all people inside above ground by that time. In our simulation, availability of the minimum power supply required for accommodations was assumed for some of the areas by means such as portable power supply units. 3.3. Responses Required of the Manager 3.3.1. Information Gathering and Distribution

Assumed conditions (desktop simulation) Power supply conditions

Occurrence of earthquake

1 hour after occurrence

3 hours after occurrence

6 hours after occurrence

On and after next morning

40 sec after power outage Emergency generator started Firefighting Ь facilities Ь Disaster prevention facilities (Emergency lighting illuminance about 1/4)

Site conditions

Ь

Injuries due to falling objects, glass, etc. generated

Ь People trying to get up to the surface gather at stairways Ь

People coming in from the surface

*If water is cut off, watercooled generators are Ь People start to stopped after certain period gather at stations for checking service status, etc. Ь

People trying to get home rush to areas near stations

6 hrs after power outage Emergency generator stopped

Ь

Ь

People who have

People who have nowhere to go gather together

Response of underground space manager Gathering/provision of information

Support for occupants

Logistics support

Panic prevention measures Ь Ensuring of safety Ь Panic prevention broadcasting Ь Fire control and first-aid firefighting

Emergency call of all employees/establishment of disaster countermeasures office Comprehension and provision of earthquake/damage info Ь Earthquake and tsunami info Damage to districts Ь and surrounding areas Ь Transport system service status

Treatment of injured people and understanding of conditions of occupants Ь Lifesaving and firstaid treatment of injured people Ь Establishment of aid station Conditions of Ь occupants Ь Support Confirmation to preparefor forpeople Comprehension and provision of evacuation instructions for people info about support for stranded in closed areas commuters Ь Closed areas and ЬAvailable route info ЬCongestion of station precincts, etc. people to be evacuated Evacuation site and Ь ЬOther info on accommodation of route for evacuation guidance stranded commuters Roles in evacuation Ь guidance

Check on site safety and accommodation environment ЬConditions of fire occurrence, etc. ЬDamage to buildings/evacuation routes, etc. ЬOperation of disaster prevention facilities ЬOperation of communication facilities Preparation for temporary accommodation Ь Specification of areas for accommodation and boundaries Ь Plans for guiding people to temporary accommodated Ь Temporary generators, lighting Ь Preparation for distribution of stored goods

Evacuation instructions for occupants in closed areas Provision of info about support for people temporarily accommodated Ь Toilet availability Specially installed Ь public phones Ь Mobile device h i i Grasping and provision of available route info ЬTraffic regulation on routes ЬConnection and detours ЬAlternative means of transport

Acceptance and support for people temporarily accommodated ЬAcceptance ЬDistribution of stored goods ЬResponse to people in poor physical condition

Ensuring of safety of open areas Patrol of places for Ь temporary accommodations Ь Ensuring of shop security

Fig. 1. Desktop simulation of response to stranded commuters in underground shopping malls around Umeda.

The role of gathering information about the earthquake, damage and support, etc. from various sources to offer to disaster victims. The manager is also expected to play the role of managing the overall chain of command based on the information gathered.

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3.3.2. Support for Accommodated Occupants The role of accurately grasping the conditions of those staying in the underground space to provide necessary first aid, support and evacuation instructions. 3.3.3. Logistic Support The role of confirming safety in the underground space, managing emergency facilities, etc., ensuring temporary power supply, delivering stored goods, security management, etc. 3.4. Whity Umeda Model Whity Umeda has been used as a model for the simulation study of the following points, which is shown in Figure-2. 3.4.1. Space to Accommodate Stranded Commuters Space that allows temporary accommodations is specified with the flow lines and other factors taken into consideration including the flow lines of movement, evacuation to stairways, etc. and connection to adjacent buildings. Space in some of the adjacent private buildings is included. 3.4.2. Information Distribution Points At nodes on which flow lines converge, a space is provided serving as a center to supply the information sought by stranded commuters (about train operation, shelter facilities to receive stranded commuters, available toilets, etc.). 3.5. Underground Space Correlation Chart of Areas around Umeda and Space for Accommodations Figure 3 shows an underground space correlation chart of areas around Umeda and information about the spaces that allow accommodations together with the photos of DIAMOR OSAKA, Garden Avenue, Hankyu Sanbangai, Hankyu Department Store, Hanshin Department Store, Sonezaki Underground Passage, Dojima Underground Shopping Center, Whity Umeda Izumi-no-Hiroba plaza and the space at the connection between Whity Umeda and Fukoku Seimei Building.

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Fig. 2. Results of simulation of response to stranded commuters in underground shopping malls around Umeda .

Fig. 3. Underground space correlation chart of areas around Umeda and spaces allowing accommodation with their photos.

Isao Shiina et al. / Procedia Engineering 165 (2016) 146 – 154

4. Current Problems and Future Issues We have classified the problems and issues identified based on the simulation described above roughly into four groups for clarification, the result of which is shown in Table 1. The underground space around Umeda has a high potential as a space for temporary accommodations of stranded commuters. If all of the space assumed to be available for accommodations in the present study can be utilized for temporary accommodations, about 6,600 to 10,600 stranded commuters can be housed in terms of the space. This is about 9 to 14% of people staying outdoors predicted in the Umeda district. However, no measures or studies on the assumption of accommodation of stranded commuters have been implemented up to now and, if a large earthquake occurs as of this moment, the potential is unlikely to be sufficiently realized. In particular, if a water cutoff occurs in addition to power outage for reasons such as an earthquake directly below a populated area, most of the space would be left in darkness and accommodating stranded commuters would be difficult. Before the issues identified based on the present desktop simulation can be addressed, many hurdles exist for technical and financial reasons. However, it is desired that improvements should be made one by one starting with what can be achieved while discussing with the government, managers of adjacent buildings, etc. with the manager of the underground space playing the central role. Table 1. Current problems with accommodation of stranded commuters and future issues. Classification

Current problem

Future issue

Ensuring of space allowing accommodations

• Underground structures are generally resistant to earthquakes but falling of ceiling, lighting fixtures, renders them unusable as space for temporary accommodations.

• Improvement of quake resistance of ceiling and other nonstructural elements

Water-cooled emergency generators • cease to operate at a certain time after water cutoff, leaving underground spaces in darkness. They will stop in six hours even if water cutoff does not occur due to fuel exhaustion.



Functional enhancement of emergency generators

Replacement with those capable of operation during water cutoff (air-cooled type, etc.) Increase of supply period and capacity (fuel capacity increase) -

Earthquake proofing of fuel tanks, piping, etc.

Ad-hoc power supply by portable generators and • secondary batteries (electric vehicles, etc.) Provision of power interchange system from nearby new • buildings, etc. Construction of information gathering system

• Accurate and timely info (on damage, available routes, support, etc.) is essential for facility manager to make proper decisions and give evacuation instructions but currently they can only gather information on TV or the Internet or send personnel to sites (stations, support facilities, etc.) for verification, which is only as speedy and accurate as for stranded commuters.

• Establishment of a contact network allowing info exchange with the government, transport service operators, adjacent building managers, support facility managers, etc. Securing of means of communication and power supplies • to ensure communication in disaster situations Building of relationships allowing mutual communication • without hesitation in disaster situations and implementation of joint exercises • Discussion at ordinary times on systems of cooperation such as mutual instruction for stranded commuters and mutual provision of stored goods

Ensuring of information distribution media

• If info is obtained, disaster victims would be left in confusion without a means to communicate it to stranded commuters. It is necessary to ensure media dedicated to people on site to offer info on support for stranded commuters, toilets, evacuation instructions, etc., (public address systems, signage, bulletin boards, etc.) as well as those for providing wide-area info

Measures to ensure power supply to mobile phone base • stations, Wi-Fi facilities and 1-seg receivers, etc. •

Securing of power supplies for recharging mobile devices



Connection of radio broadcast to public address systems



Content delivery systems for large screens, digital signage,

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etc. and power supply Foreign language support for overseas tourists, etc. (public • address systems, notices, maps, etc.)

Formulation of manual for area to accommodate stranded commuters

• To respond to stranded commuters in disaster situations, cooperation with railroad operators is essential. It is desirable to discuss in advance division of roles and mutual cooperation in disaster situations to establish response in a manual. It is also important to repeat joint exercises for keeping it updated.



Possibility of acceptance of individual facilities

Assumption of areas allowing temporary accommodations • and number of people that could be housed (in view of passage and evacuation flow lines) • Conclusion of agreement between public and private sectors (division of roles, responsibility for acceptance, etc.) Securing of goods (blankets, food, drinking water, etc.), • mutual interchange, distribution procedure, etc. •

Mutual use of toilets that can be used during water cutoff

References [1] Urban Underground Space Center of Japan, Osaka Subcommittee Meeting Report. 2012 (2013) 1-11. [2] Urban Underground Space Center of Japan, Osaka Subcommittee Meeting Report. 2013 (2014) 1-9.