Despite the majority of local governments factoring in sexual minorities' needs into their disaster management plans, less than 10 percent actually have an LGBT individual involved in the process, according to a recent survey.

The Asahi Shimbun survey that concluded in September indicated 47, or 70 percent, of the country's 67 local governments (Tokyo, 46 perfectures and 20 ordinance-designated municipal governments) mentioned the LGBT population in their plans. 

However, only five had lesbian, gay, bisexual or transgender representation in the disaster prevention councils that draft these plans.

Sexual minorities often face additional difficulties in post-disaster evacuation that include using mixed bathing facilities and moving into temporary housing. There is also the stressor of an individual's gender or sexuality being outed without their consent.

GRADUAL REVISIONS

The survey was conducted by phone and asked two main questions: Did the disaster management council have members who were sexual minorities, experts or from support organizations, and did their disaster management plan mention this demographic?

In 2014, the Okayama city government became the first to address the needs of sexual minorities in its disaster management plan. More would follow after initiatives such as Tokyo's Shibuya Ward legally recognizing same-sex partnerships in 2015 put LGBT issues in the spotlight, with an increase observed from 2017.

Thirteen local governments and designated municipalities added LGBT considerations in their plans in 2021, followed by nine in 2022.

The Sakai city government in Osaka Prefecture revised its disaster plan in 2018 to include provisions such as allowing people to choose between their legal or commonly used name when providing identification at evacuation centers. It also ensured changing rooms and bathing facilities could be used in private, even if only briefly.

The city's disaster management council has included a member from a sexual minorities support organization since July 2021.

“Because a sexual minority support group joined the council, we were able to include more perspectives from sexual minority people,” said an official from the city’s disaster management division.

Meanwhile, the Saitama prefectural government’s plan also includes warnings about outing individuals.

During its 2021 revision, it considered scenarios in which evacuation center staff might receive consultations from LGBT individuals. The revision reflected voices from the prefecture’s human rights division.

On the other hand, local or municipal governments that did not include references in their plans said they would consider doing so if there were any requests to do so.

The central government's disaster management plan currently does not mention sexual minorities.

“We do receive inquiries asking whether they are included, but no one has requested to add them,” said an official from the Cabinet Office.

IMPORTANCE OF VOICES

The five local governments that the Asahi Shimbun survey concluded have LGBT representation on their disaster prevention councils are the Fukushima, Fukui and Hyogo prefectural governments, the Tokyo metropolitan government as well as the Sakai city government.

The Hyogo prefectural government's inclusion is fairly recent; it appointed Kaoru Aoyama, a Kobe University professor with expertise on sexual minorities, to its council this fiscal year.

Another expert, Anna Matsukawa, an associate professor of disaster sociology at the University of Hyogo and an expert on disaster and gender issues, said human rights must be protected even in the event of a disaster.

“Human rights must not be violated, even during disasters. Even if it's difficult to include sexual minorities on the council, officials from local or municipal government responsible for disaster management can still consult with support groups,” Matsukawa said. “Authorities are not likely to take action unless the issue is clearly written on the plan. It must be written down.”

DIGNITY DURING RECOVERY

What is needed after a disaster?

According to Hiroto Shimizu, 40, chairman of Nihon LGBT Kyokai (Japan LGBT association) and a survivor of the Great Hanshin Earthquake that hit western Japan in 1995, evacuation center baths and changing rooms become more accessible if individual spaces or designated time slots are provided.

“For example, during bathing hours at a shelter, it would be very helpful if someone would say, ‘Men from this time, women from that time, and if you don’t feel comfortable in either group, please tell us,'” Shimizu said.

After the 2011 Great East Japan Earthquake, meanwhile, there were restrictions preventing same-sex couples from living together in temporary housing. Shimizu said each municipality should also work on creating ordinances allowing same-sex partners to live together.

Gon Matsunaka, co-representative of Kanazawa Rainbow Pride that supports sexual minorities in Ishikawa Prefecture's capital, noted the added hardships some faced post-evacuation after the Noto Peninsula earthquake on New Year's Day in 2024.

“Some hadn’t come out in their local communities and struggled with post-evacuation life,” Matsunaka said.

The group is currently drafting a request to the Ishikawa prefectural government for mid- to long-term support.

“It would be better if people could live their post-disaster lives openly, with the people around them aware of things like same-sex partnerships. But there are cases where no one supports them in their community,” Matsunaka said. “Municipalities and other authorities must develop a shared understanding of sexual minorities and establish systems capable of offering support.”

(This article was compiled from reports written by Momoe Harano, Natsu Miyasaka and Akari Sugiyama.)