Questions/Answers

In recent years, natural disasters have increased worldwide due to global warming, and the subsequent damage is also increasing. According to the “Korean Climate Change Assessment Report 2020” published by the Korean Meteorological Administration and the Ministry of Environment, if global warming continues as it, has been, the average temperature in Korea will rise from 2.9℃ up to 4.7℃ by the end of the 21st century, depending on the efforts made to reduce greenhouse gas emissions. The number of heatwave days is expected to increase from 10.1 per year to 35.5 in the late 21st century. As the temperature rises, the number of elderly people most vulnerable to heatwaves is constantly increasing. As of 2020, the elderly population (those aged 65 years or older) accounts for about 15.7% (8.13 million) of Korea’s population, and the aging index (ratio of those aged 65 years or older per 100 persons younger than 15 years old) is 129, which is very high. Moreover, Korea is expected to become an ultra-aged society in 2026, with the damage suffered by the elderly due to climate change expected to increase. In Korea, various efforts have been made to reduce human damage caused by climate change. The most important was the “Customized Cooling Center” project, which provides a cool place to rest for vulnerable citizens, such as the elderly living alone or in poor housing conditions. The objective is to reduce the deaths and illnesses due to heatwaves and contribute to making Korea the best welfare state. According to Statistics Korea, the annual average number of deaths caused by heatwaves from 2015 to 2019 is 72. The Ministry of the Interior and Safety is taking measures against heatwaves with the goal of reducing the deaths in heatwaves, while continuing to develop the “Customized Cooling Center” project.

Sector 4. Institutional preparedness and response in times of crisis Heatwaves can cause serious damage. As shown by the Chicago heatwave in 1995, where 739 people died in just one week, a heatwave is a terrifying disaster. Intense heat causes heatstroke and heat syncope, which can lead to death if not treated quickly. The Cooling Center initiative is an effective way of reducing exposure to heatwaves. Korea has been promoting the Cooling Center initiative since 2006, and heatwaves were designated as a natural disaster in 2018. The legal basis for the Cooling Centers was established in 2020.

This initiative supports SDG 1, 3, 7, 11, and 13. (SDG1) This initiative was presented as a way of addressing economic poverty among vulnerable groups, including the elderly, disabled, and low-income families. It is tackling poverty by providing a cool place for residents to rest, particularly those who do not have or cannot afford to operate air-conditioners. (SDG3) This initiative helps people stay cool and healthy in the hot summer by providing an open space that anyone can use for free. It also provides universal welfare by providing comfortable spaces for people with poor living conditions. (SDG7) The initiative reduces energy consumption for cooling by providing air-conditioning for large numbers of people gathered at the centers. Also, by installing solar power generators and creating rooftop gardens at the centers, the initiative promotes the use of green energy. (SDG11) This initiative reduces deaths by heatwaves, one of deadly natural disasters. It targets the most vulnerable such as the elderly, disabled, and low-income families. (SDG13) In recent years, abnormal weather conditions have increased in frequency worldwide. In particular, unprecedented heatwaves have caused many deaths around the world. The Cooling Center initiative is an effective way of minimizing such deaths.

As society gradually develops, the national initiative becomes more detailed, and the services for the public are enhanced. Also, the demands of the people are increasing every year. Meanwhile, the scale and damage of disasters caused by climate change are increasing. In 2018, Korea suffered the worst heatwaves ever. While the average number of heatwave days was 10.1, the number in 2018 was 31.5 days, causing 162 deaths. Since it is unclear what kind of damage will be caused due to heatwaves in the future, the public demand for and need to expand the Cooling Center initiative is increasing.

In Korea, as part of the welfare system, universal services such as tax cuts, living expenses support, and household goods support are provided to socially vulnerable people or low-income families. Although these services are helpful to some extent in everyday life, they are not much help in disaster situations. For example, for people who cannot afford an air-conditioner, a small subsidy for the purchase of one is not much help. To eliminate the blind spots of these public services, disaster-specific initiatives were needed. Targeting these vulnerable groups, the Cooling Centers were established is areas where many vulnerable people live to ensure easy accessibility. In addition, a location map is provided on Internal portals, the Cooling Center website, and the “Emergency Ready” mobile app to help people find a Cooling Center near their home. For those who live too far from a Cooling Center or have mobility difficulties, shuttle buses are operated in some areas. For some centers, residents can make a shuttle bus reservation via the Cooling Center website or by telephone.

To reduce gender inequality at the Cooling Centers, spaces within the centers are separated, where possible. The rooms are divided into a male-only room, female-only room, and common space so that users can freely choose a room according to their preferences. In addition, tents are used to provide a separate space for each individual in large open spaces such as auditoriums and gymnasiums, thereby reducing gender inequality and protecting personal privacy.

The Cooling Centers are open to anyone for free, regardless of age, gender, or nationality. However, children and middle-aged people rarely use them, and the main users are elderly people aged 65 or older. The elderly people who use the Cooling Centers differ widely in terms of family relationships and economic conditions. The Ministry of the Interior and Safety has been making continuous efforts to satisfy the needs of these diverse groups of people. First, for those who do not have an air-conditioner (or cannot use the one they have) due to financial difficulties, the Cooling Centers provide a cool place to rest for free. Also, for homeless people and those who cannot afford food, the Cooling Centers provide free meals and beds. In addition, for people with disabilities or mobility difficulties, a free shuttle bus service is provided to ensure easy access to the Cooling Centers. In some areas, a camper van is used to visit vulnerable people and provide a mobile Cooling Center service. Finally, for elderly people living alone, the Cooling Centers offer various activity programs, allowing them to make friends and enjoy their leisure time together.

Starting in 2006, when the Cooling Center initiative began, the centers were managed by local governments, but from 2009, the central government took charge. At that time, there were 37,552 centers. In 2011, the Ministry of the Interior and Safety created guidelines for the designation, operation, and management of the centers. In 2013, a computerized system was developed to efficiently operate and manage the centers, and the air-conditioning cost for the centers was provided. In 2015, a map service to help people find Cooling Centers was launched, and in 2016, some centers decided to operate at night and during weekends. Also, shuttle buses were operated for some centers, supplies for coping with heatwaves were provided, and educational and health resources were offered. In 2020, to prevent COVID-19 infection at Cooling Centers, outdoor spaces such as parks and pergolas were designated as Cooling Centers. As a result, a total of 57,025 (50,690 indoor and 6,335 outdoor) centers are now in operation, an increase of 52% (19,473) from 2009. Cooling Centers are operated from May 20 to September 30, and from the end of April to the end of May, preparations and preliminary inspections are conducted. Cooling Center monitoring is conducted through inspections and media reports. Until the end of May, the problems of Cooling Centers are identified and improved through joint inspections by central and local governments and relevant organizations, and the results are reflected in the evaluation of local governments in December. Extra points are assigned to local governments that provide high-quality or additional services at their Cooling Centers, and best practices are collected and distributed to all local governments. They are also presented as exemplary cases in the training materials. Through these efforts, the Ministry of the Interior and Safety ensures that the initiative is continuously improved and developed.

The spread of COVID-19 worldwide in 2020 has been a major setback for the Cooling Centers. With gatherings banned to prevent the spread of infection, people could not gather at the centers.. In response, the Ministry of the Interior and Safety installed outdoor Cooling Centers, where the infection risk is relatively low. A total of 6,335 outdoor Cooling Centers are now in operation. For indoor Cooling Centers, quarantine guidelines, including creating an access list, requiring masks, and disinfecting, have been prepared and implemented. As a result, there has been no confirmed case of COVID-19 at a Cooling Center thus far.

Given how hot Korean summers can get, in the initial stage of the initiative, many people doubted that heatwaves could be addressed effectively at the national level. However, through the active operation of the Cooling Centers, the government proved that it is possible. In addition, the Cooling Center initiative is not just an initiative for preventing disasters, but also a universal welfare program in that it provides services tailored to users, including the shuttle bus and camper van service, 24-hour center operation, fitness classes, movie screenings, and reading clubs, among others, improving the quality of life of the people.

Korea is exposed to various natural disasters due to its four distinct seasons. To protect against torrential rains, floods, and forest fires, evacuation facilities were built, along with earthquake shelters. Also, under the armistice agreement with North Korea, civil defense shelters to which people can be evacuated in the event of an attack by North Korea are operated. Amid such operation of various shelters and evacuation facilities, the Cooling Center initiative emerged naturally. The biggest difference from other facilities is that the Cooling Centers are operated for four consecutive months every year, rather than in special circumstances only.

This initiative contributes to the digital government by computerizing data and using Information Technology(IT) such as Geographic Information System(GIS) to operate and manage the cooling centers. The Cooling Center managers manage the Cooling Centers through National Disaster Management System(NDMS), and users can find relevant information such as addresses using the Public Disaster and Safety Portal, Emergency Ready mobile App, and a web mapping service called ‘Naver Map.’ Recently introduced 'Shelters for protection from the elements' at the bus stops have air conditioners, heaters, air purifiers. Users can rest and avoid the heat while receiving information on the bus location and weather reports in real-time.

Since its launch, the Cooling Center initiative has been promoted nationwide at the central government level. The Ministry of the Interior and Safety serves as a supervisor, and 17 cities and provinces serve as representatives for all cities, counties, and towns, while 228 cities, counties, and towns actually manage the Cooling Centers in the relevant regions. The main roles of the Ministry of the Interior and Safety include general management of the initiative, preparation of initiative-related guidelines, improvement of related laws and systems, and provision of budget support, and it also conducts inspections and assessments every year to ensure that the initiative is implemented properly. With the central government providing general management, a certain level of service quality can be ensured at all Cooling Centers nationwide. In addition, various services are provided in some of the centers. The Ministry is making continuous efforts to improve the quality of services offered by the Cooling Centers by selecting excellent services, and promoting them to local governments. At the same time, it provides budget support to enable local governments to introduce new services at the Cooling Centers.

The Cooling Center initiative is implemented nationwide for all regions of the country. This is not the case in other countries. France and some regions of the United States provide services similar to Korea’s Cooling Centers, but other countries have yet to provide such service. If the Cooling Center initiative of the Ministry of the Interior and Safety of the Republic of Korea is promoted globally and Official Development Assistance (ODA) is efficiently utilized to help other countries adapt to the initiative, the number of people who die and suffer from heatwaves or heat-related illnesses around the world can be reduced. In addition, if the services provided by the Cooling Centers in Korea, including shuttle bus operation, 24-hour operation of centers, health management programs, movie screenings, and provision of private space using tents, are introduced to other countries, it will help enhance the quality of life for many people.

Although the Cooling Center initiative uses existing facilities and requires a small budget, some expenses are required. Local governments mostly use their disaster management funds. The Ministry of the Interior and Safety provides financial support for operation and promotion through the “special subsidy tax for disaster and safety management,” and the Ministry of Health and Welfare provides KRW 100,000 monthly for air-conditioning. The facility owner serves as the manager, and officials of the relevant local government supervise management. Local governments work with a private organization called “Citizen Corp. Active in Disasters” for center monitoring, and provide it with activity costs.

First, we designated existing facilities for the elderly as Cooling Centers to ensure easy access. Second, operating costs for the centers are supported by the government so that people can use the centers for free. Also, guidelines for Cooling Center management were prepared, and local government officials took charge of monitoring and managing the centers to ensure they are kept clean and welcoming. Lastly, the Cooling Centers are promoted through media reports, broadcasts, and text messages to raise public awareness, and various facilities such as massage chairs and billiard tables have been installed to attract more users.

Yes

An internal evaluation of the Cooling Center initiative is conducted annually. From May to June, a thorough inspection is conducted with local governments and private organizations, and instructions are given to address the weaknesses identified. In September, when the heatwaves come to an end, the implementation of the recommended changes is checked, and the results are reflected in the evaluation of the relevant local government in December. Additional services (shuttle bus operation, 24-hour operation, provision of personal tents, etc.) offered by local governments are examined, and additional points and incentives are given to local governments selected for their excellent services.

The Cooling Center initiative is assessed using six indicators. The proper operation of air-conditioners is checked, followed by the cleanliness of the air-conditioner filters. Third, a check is done regarding whether three or more managers are designated and properly managing the centers. Fourth, the proper recording and management of the centers’ data in a computerized system is assessed, followed by whether additional services are provided. Fifth, the installation of direction signs is checked to ensure that residents can easily find Cooling Centers, and finally, the provision of the proper contact information is checked so that complaints can be reported promptly.

The Ministry of the Interior and Safety has conducted an annual assessment of the operation and management of the Cooling Centers by local governments. The results show that the centers are managed well overall. In particular, the status of air-conditioner management is found to be excellent in about 99.8% of the centers, and the rate at which data is input into the management system stands at about 99%. For many of the other assessment items, the fulfillment rate is over 90%. Among the assessment items is “Ancillary Programs.” Although the ancillary activities and programs are not requirements for the centers, about 31.8% of the centers provide them to encourage residents to visit. The Ministry of the Interior and Safety is keeping an eye on this effort because it is consistently generating new ideas for the further development of the initiative. Through the assessment, the Ministry of the Interior and Safety is trying to encourage the active participation of local governments, and is making continuous efforts to improve the Cooling Centers by giving extra points or disaster relief funds to local governments that are recognized for their best practices in Cooling Center operation.

This initiative is being implemented in close cooperation with the Ministries, local governments, and private organizations. The Ministries participating in this initiative include the Ministry of the Interior and Safety, Ministry of Health and Welfare, and Korea Meteorological Administration. Local governments implement and manage the initiative, requesting support from the central government when necessary and managing the Cooling Centers in partnership with private organizations. In the private sector, various organizations support and manage the Cooling Centers. The Korean Senior Citizens Association manages and supports facilities for elderly citizens, including senior citizens' centers, while local voluntary disaster prevention organizations conduct inspections of Cooling Centers to identify and solve problems and provide necessary supplies. In addition, the staff of community health centers visit Cooling Centers to provide health checkups and exercise and health education. In this way, various organizations in various fields are working together to effectively operate the Cooling Centers, and the Ministry of the Interior and Safety is playing the role of a control center, overseeing the operation and management of the centers in cooperation with related organizations.

This initiative is a project where the central government, local governments, private sector, and users all work together. At the beginning of each year, the central government organizes a taskforce to respond to heatwaves and engage in in-depth discussions with related organizations, experts, and private organizations before implementing the initiative. Private organizations participate in the inspection and evaluation of the Cooling Centers to identify and address problems from the perspective of the private sector. In addition, continuous efforts to listen to feedback from stakeholders have been made, and ongoing monitoring of news and media reports is conducted to improve weaknesses of the initiative, if any are found. In 2019, a user satisfaction survey was conducted of 1,770 Cooling Center users, based on which areas requiring improvement were identified. With the participation of various groups of stakeholders through various channels, the Cooling Centers are constantly being improved in terms of service and convenience. The Ministry of the Interior and Safety is making active efforts to improve the Cooling Centers by amending relevant laws and guidelines and providing additional funds when necessary.

Natural disasters are terrifying because they cause enormous damage. However, the initiative reminded us that with a little more attention and effort from the state, that damage can be significantly reduced. Thanks to the initiative, there were fewer deaths in 2019 (30 people) than in 2015 (42 people), even though there were more heatwave days (13.8) than in 2015 (10.1). This summer was especially difficult due to COVID-19. With the rapid spread of the coronavirus in Korea, Cooling Center operation was suspended. We received numerous phone calls requesting the resumption of service, with some people saying that using the centers was worth the risk of infection. We realized once again how important the Cooling Centers are. The Korean population continues to age, and extreme weather conditions will occur more frequently in the future. And the Ministry of the Inferior and Safety is working hard to cope with this scenario. In the era of the Fourth Industrial Revolution, we are coming up with new Cooling Center initiatives, including installing multipurpose Cooling Centers at bus stops using ICT technology and developing technology for selecting optimal Cooling Center locations using big data such as temperature distribution, elderly population distribution, and surrounding terrain.