Disaster Planning for People with Mobility Impairments: Nobody Left Behind

Background

The media coverage of September 11th brought evacuation issues to the forefront by the reports of people with disabilities being left behind and perishing as a result. Typically, disaster preparedness and emergency response systems are designed for people without disabilities, using typical escape or rescue procedures such as walking or running that are inappropriate for persons with mobility impairments.

Purpose and Anticipated Benefits

This project sought to determine whether disaster plans and emergency response systems include the health,  safety, and survival needs for persons with mobility impairments. Other goals were to identify the morbidity and mortality of persons with mobility impairments in these disasters; to assess whether post-disaster changes addressed the needs of persons with mobility impairments; and to identify any best practice examples that meet the needs of persons with mobility impairments in hopes of preventing injuries and saving lives.

Who

The Research and Training Center on Independent Living at University of Kansas research team of Glen White, principal investigator; Michael Fox, co-investigator; Catherine “Cat” Rooney, project coordinator; and Jennifer Rowland, graduate research assistant, assisted by Monika Suchowierska, graduate research assistant; Nicole Denney, aNational Institute of Disability Rehabilitation Research scholar; and Chiaki Gonda, Jonathan Andrews, and Efe Ekpere, student research assistants, investigated 30 randomly-selected U.S. counties, cities, parishes, and boroughs where a natural or man-made disaster occurred between 1998 to 2003 to determine the state of preparedness at local levels for people with mobility impairments.

When

2002-2005

Method

The disaster site sample was randomly selected and included two or more disasters (e.g., flooding, hurricanes, various types of storms, a tornado, wildfires, winds, avalanches, an earthquake, and the 9/11 terrorist attacks) in each of the 10 FEMA regions. Specifically, through phone surveys and reviews of local emergency management plans, the researchers examined whether local emergency management plans, guidelines, and procedures addressed the needs of persons with mobility impairments. The project’s online consumer survey, administered from the study’s website, Nobody Left Behind, captured personal descriptions about the circumstances that people with mobility impairments face during a disaster. For example, said one survey participant: “I have juvenile rheumatoid arthritis and use a wheelchair. We had a bomb threat at work, which was very scary. Everyone evacuated, but I was still left on the 3rd floor by the stairwell for the fire- fighters to come get me. But, no one came. Finally, I just struggled, and I used pure fear to get myself down the stairs and outside. It was scary just to realize that there are not really any procedures in place to help someone like me in an emergency.”

Results

According to the Nobody Left Behind research survey, 43% of the emergency managers interviewed had some idea of the possible number of persons with mobility impairments within their jurisdictions. Twenty-seven percent of the emergency managers reported using Census figures or self-reported registries as a way of identifying this population for planning purposes. Out of the 17 sites that did not have an approximate number for the persons with mobility impairments in their community, 59% of the emergency managers stated that knowing the approximate number of persons with mobility impairments would be helpful. However, several managers noted their frustration with volunteer self-registry systems, as frequently a small percentage of the actual people needing assistance register.

Other findings included:

  • A majority of the emergency managers are not trained in special needs populations, which includes persons with mobility impairments.
  • There was little to no representation of persons with mobility impairments at the planning/revision stages of the emergency plan.
  • A majority of the emergency managers did not know how many persons with mobility impairments live within jurisdiction.
  • Only 21% of the emergency managers are planning to develop guidelines for assisting persons with disabilities.

Comments from survey participants included:

    • “The able-bodied community MUST get the message that it is critical to think through and develop a plan to evacuate people with disabilities.” (From: New York City)
    • “It is really difficult to get the utility company to understand power is a need, if disabled.” (From: Knoxville, TN during severe storms)
    • “We had to move out of our house for several weeks to have it repaired.  All the places that people referred us to were not accessible to me in my scooter.” (From: Los Angeles, CA during an earthquake)
    • “I ambulate with forearm crutches and my leg stamina is limited. As a social service provider in NYC, I am in tall buildings often and [while in] one in particular they had an evacuation drill. There were no plans or equipment to assist me. They told me to ignore the drill. I felt very vulnerable because I attend regular work meetings in this building.” (From: New York City)
    • “After a hurricane, I did not use the shelters, because they were not wheelchair accessible, and had no provisions for my service dog.” (From: Miami, FL)  
    • “My wheelchair ramp washed away in a flood and my house was left with three feet of mud everywhere.  It was hard to use my electric wheelchair. I had money to pay for a ramp, but couldn’t hire any one, as they were busy elsewhere.” (From: Texas)

Conclusion

Emergency management plans should, at a minimum, address the guidelines for Americans with Disabilities Act (ADA) pertaining to emergency management as recommended by the Department of Justice.

Recommendations

  • Take people with disabilities out of “special needs” category and incorporate specific information on people with disabilities into the basic course for emergency managers and disaster response personnel.
  • Incorporate people with disabilities into the actual training scenarios for first responders.
  • Organizations that serve persons with disabilities should encourage consumers to participate in self-identification, and individual and community emergency planning.
  • Encourage Local Emergency Planning Centers (LEPC) to include people with disabilities in interactions with their local emergency providers.
  • Develop GIS mapping to identify where people are located and concentration of people with disabilities.
  • Develop local systems that require agencies to alert designated people in the event of an emergency with high technology, such as reverse 911.
  • Create a template annex/appendix on persons with disabilities for adoption by emergency managers.

Nobody Left Behind Website

Products

Fox, M.H., White, G.W., Rooney, C., & Rowland, J. (2007, April). Disaster preparedness and response for persons with mobility impairments: Results from the University of Kansas Nobody Left Behind project. Journal of Disability Studies.

Rooney, C., & White, G.W. (2007, April). Consumer perspective: A narrative analysis of a disaster preparedness and emergency response survey from persons with mobility impairments. Journal of Disability Studies.

Rowland, J., Fox, M.H., White, G.W., & Rooney, C. (2007, April). Emergency response training practices for people with disabilities: Analysis of some current practices and recommendations for future training programs. Journal of Disability Studies.

Rooney, C., Fox, M.H., White, G.W, Hodgesmith, M. (2006, November) National research at KU: tracking what happens during disasters. Kansas Collaborative Workshop on Vulnerable Populations and Emergency Management Planning, Topeka, Kansas. [PowerPoint presentation].

Fox, M.H., White, G.W., Rooney, C., & Rowland, J. (2006, April). Disaster preparedness and response for persons with mobility impairments: Results of the Nobody Left Behind Project. Governor’s Public Health Conference, Wichita, Kansas. [Power Point presentation posted on website].

White, G. W., Fox, M. L., & Rooney, C. (2006, March). Nobody left behind: Disaster preparation and emergency response issues affecting people with disabilities in the Gulf region. Presented at the APA Work, Stress, and Health Conference, Miami, FL. [Power Point presentation posted on website].

Fox M. H., White, G., & Rooney, C., Rowland, J. (2005). Disaster preparedness and response for persons with mobility impairments: Results from the University of Kansas ‘Nobody Left Behind’ project. American Public Health Association, Philadelphia, PA. [Electronic poster on website].

Higgins, C. (2005). Don’t get left behind. Lawrence, KS: Research and Training Center on Independent Living, University of Kansas. [Paper on website].

Staff. (2005). Nobody Left Behind: Objective One, focus area: County programs, policy, and practice. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Paper on website].

Staff. (2005). Nobody Left Behind: Objective Two, focus area: Surveillance. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Paper on website].

Staff. (2005). Nobody Left Behind: Objective Three, focus area: Assurance and policy development recommendations. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Paper on website].

Staff. (2005). Individual disaster preparedness. [18” x 24” poster]. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Poster on website].

Staff. (2005). Community disaster preparedness.  [18” x 24” poster]. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Poster on website].

Rooney, C., Fox, M.H., White, G.W., & Rowland, J. (2005, December). Preparedness for persons with mobility impairments. Considerations in emergency preparedness: A Two Track Conference, Mailman School of Public Health, Columbia University, Washington, D.C. [Power Point presentation posted on website].

White, G.W., Rowland, J., Fox, M.H., & Rooney, C. (2005, November). Improving disaster planning and response for persons with mobility limitations: Nobody Left Behind.132nd Annual Meeting of the American Public Health Association, Washington D.C. [Electronic poster on website].

Fox, M. (2005, October). KUMC Center on Aging Seminar Series. Disaster Management for Persons with Mobility Limitations, Kansas City, KS.

White, G. W., Fox, M. L., Rooney, C., & Rowland, J. (2005, October). Nobody Left Behind: Results of a 3-year study on disaster preparation and emergency response for people with mobility limitations. Applied Behavioral Science Proseminar, University of Kansas. [Power Point presentation posted on website].

Kailes, J.I. (2005, August)."Why and How to Include People with Disabilities in Your Emergency Planning Process?” [A white paper commissioned by the research project posted on the website].

Staff. (2005, August). Analysis of Local Emergency Management Plans to Determine Whether the Needs of Persons with Mobility Limitations Are Being Met. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Paper on website].

Fox, M.H., White, G., Rowland, J., & Rooney C. (2005, July). County level disaster preparedness and response for persons with mobility impairments: Results from the University of Kansas Nobody Left Behind Study. 2nd National Planning Meeting on Disaster Preparedness and Emergency Response, Kansas City, MO. [Power Point presentation posted on website].

Davis, E., & Mincin, J. (2005, June). Incorporating Special Needs Populations into Emergency Planning and Exercises." [A white paper commissioned by the research project posted on the website].

Kailes, J. I. (2005, February). Disaster Services and “Special Needs”: Term of Art or Meaningless Term? [A white paper commissioned by the research project posted on the website].

Fox, M.H., White, G., Rooney, C. & Rowland, J. (2005, February) Progress report #2: Prelimanary findings. Lawrence, KS: The Research and Training Center on Independent Living at the University of Kansas. [Paper on website].

Fox, M.H., White, G.W., Rooney, C., & Rowland, J. (2005, February). County level disaster preparedness and response for persons with mobility impairments: Results from the University of Kansas Nobody Left Behind study. Centers for Diseases Control and Prevention, Public Health Preparedness Conference, Atlanta, GA. [Power Point presentation posted on website].

White, G.W., Rooney, C., Fox, M. H., & Rowland, J. (2005, January). Nobody Left Behind: SILCs as partners in disaster preparedness and response for people with disabilities. The 4th National SILC Congress, Phoenix, AZ. [Power Point presentation posted on website].

Staff. (2004). Report #1: Consumer survey quotes: Nobody Left Behind. Lawrence, KS: Research and Training Center on Independent Living, University of Kansas. [On website].

White, G.W., Fox, M., Rowland, J., & Rooney, C. (2004, April). Nobody Left Behind: Investigating disaster preparedness and response for people with disabilities. HDFL Proseminar, Lawrence, KS. [Power Point presentation posted on website].

Rooney, C. & Lim, J.H. (2003). Nobody Left Behind: Disaster preparedness for persons with mobility impairments. [website].

Fox, M.H., White, G., Rowland, J., Suchowierska, M., & Rooney C. (2003, November). Improving disaster planning and response for persons with mobility limitations – Early findings. 131st Annual Meeting of the American Public Health Association, San Francisco, CA. [Power Point presentation posted on website].

Fox, M. H., White, G. W., Rowland, J., Suchowierska, M., & Rooney, C. (2003, October).  Disaster planning and response for persons with mobility impairments. Kansas Public Health Association Annual Meeting, Overland Park, KS. [Power Point presentation posted on website].

Rowland, J. White, G. W., Suchowierska, M., Fox, M., Lim, J., & Rooney, C. (2003, September). Disaster planning and preparation for people with spinal cord injuries. Presented at the 17th Annual Meeting of the American Association of Spinal Cord Injury Psychologists and Social Workers, Las Vegas, NV. [Electronic poster on website].

White, G. W., & Rowland, J. (2003, March). Emergency preparation and evacuation for employees with disabilities: Identifying potential interventions and methods for testing them. Presented at the Capacity Building Institute, Honolulu, HI. [Power Point presentation posted on website].