In recent years, extreme natural hazards threaten cities more than ever due to contemporary society’s high vulnerability in cities. Hence, local governments need to implement risk mitigation and disaster operation management to enhance disaster resilience in cities. Transforming existing open spaces within cities into emergency shelters is an effective method of providing essential life support and an agent of recovery in the wake of disasters. Emergency shelters planning must identify suitable locations for shelters and reasonably allocate evacuees to those shelters. In this paper, we first consider both the buildings’ post-disaster condition and the human choice factor that affect evacuees’ decision, and propose a forecasting method to estimate the time-varying shelter demand. Then we formulate an integrated location-allocation model that is used sequentially: an emergency shelter location model to satisfy the time-varying shelter demand in a given urban area with a goal of minimizing the total setup cost of locating the shelters and an allocation model that allocates the evacuees to shelters with a goal of minimizing their total evacuation distance. We also develop an efficient algorithm to solve the model. Finally, we propose an emergency shelters planning based on a case study of Shanghai, China.