Emergency Planning for the Disabled

By Gregg Dawson

The need to be concerned about disabled and elderly people in the workplace during emergencies becomes obvious when looking at Census Bureau and Lou Harris poll data.
There are between 31 million and 36 million Americans with disabilities. In 1987, 12,320,000 people of working age (16–64) reported a work disability. This number represents 8.5% of the American working–age population. Employers, building owners and managers need to take a hard look at provisions to warn and evacuate disabled clients and employees.
During the last decade the number of emergencies and disasters resulting in evacuations has risen dramatically as populations have increased and expanded into areas more exposed to threats. Likewise, technology and its associated hazards has increased. Therefore, “new versions of old disasters are taking place,” (E.L. Quarantelli, “Integrating Disaster Research and Practice” Conference, University of North Texas, 1991). For example, the extremely toxic smoke from building materials and furnishings will kill more people much more quickly than ever before.

Easy Access?

Although recent architectural and construction efforts have given people with disabilities increased access to buildings, emergency evacuation remains an issue which does not receive adequate attention. Without a planned egress procedure, many people face the risk of being trapped in the same buildings that were adapted to accommodate them.
Each year about 103,000 fire–related incidents occur in buildings. During many types of emergencies, natural or technological, there are power failures. Elevators, lights and other building systems stop operating. These systems, which make upper floors accessible, cannot be used to evacuate people to ground level. The alternative exit is the stairway — not a safe option for people that are temporarily or permanently disabled, elderly, or have a chronic illness. Further, anyone can become injured and thus disabled during an emergency. The lack of planned, comprehensive egress procedures could result in potential risk for everyone.

What is a Disability?

From an Emergency Management standpoint, the terms “handicapped” and “disabled” can be defined as any condition that drastically limits or prevents a person from performing a major life function. Functions affected by an impairment would be: physical, mental, motor, sensory or developmental.
In addition, basic distinctions can be made between the terms “impairment,” “disability,” and “handicap.” An impairment is an anatomic or functional abnormality or loss which may or may not result in a disability. A disability is a loss or reduction of functional ability which results from an impairment. A handicap is the disadvantage caused by the disability.
Thus, impairment is a medical condition, disability the functional consequence, and handicap the social consequence. In other words, the spinal condition of a paraplegic is his impairment. His inability to walk in his disability. His problems in achieving access to and egress from buildings, vehicles or other structures are all handicaps.

Many Impairments May Not Be Obvious

Either visible or hidden impairments may become disabilities under the stress of a disaster or emergency. Elderly people may be especially vulnerable to stress–related disability. Disasters are extremely stressful events which sometimes call for extraordinary actions by individuals to cope with the disruption to their daily routine.
Much of the research suggests that despite the increased stress factors during an emergency, people generally behave in an organized, efficient manner. “Disaster does not initiate major changes,” (Quarantelli and Dynes, 1977:34). Therefore, if managers or officials are perceived to be effective before a crisis then they most likely will be perceived as effective during one––or, similarly, as ineffective.

Myths

What has been seen over the past few decades through the mass media, Hollywood movies and the six o–clock news would suggest that all crisis situations have a profound effect on people. Panic, looting, and mass confusion are commonplace in disaster. Aren’t they?
Unfortunately, many still believe in myths such as these. People acting calm and in a civilized manner do not make good “human interest” stories. Therefore, only bits and pieces are seen of the overall disaster process. Researchers like Quarantelli and Dynes have been working to dispel similar myths for over two decades. Valuable time is often wasted by over planning for these things.

Is Your Facility Vulnerable?

Any office building, bank, plant or institution is vulnerable to some extent. Floods, tornadoes, power outages, earthquakes, explosions, fires and chemical spills are a few that may affect you.
Determining hazards you are susceptible to may only be a matter of checking with local Emergency Management authorities, State Emergency Management offices, the Federal Emergency Management Agency (FEMA), or local insurance companies. This information can be used as a basis for developing a workable plan or checklist.

Although recent architectural and construction efforts have given people with disabilities increased access to buildings, emergency evacuation remains an issue which does not receive adequate attention. Without a planned egress procedure, many people face the risk of being trapped in the same buildings that were adapted to accommodate them.

All hazards are different. How does one begin to plan for a large number of employees, several of whom are permanently or temporarily disabled? True, every situation is different. However, emergency evacuations share commonalities. People have to be warned.
They need that warning information in a quick, concise manner by someone they trust and in a language they understand. They need a safe place to go, a means of getting there and they want to talk to their families.
It must be assumed that most disasters or emergencies will arrive without warning and with a potential for heavy damage. The likelihood that any of the disasters mentioned could strike your facility may be small.
However, should any of them occur, the potential for death and injury will be great. Many private industry planners and municipalities alike take the gamble that the “big one” will never hit them. They take a “bare bones” approach, as opposed to a “worst case scenario.” Just remember that the capability to react, cope with and protect employees and clients makes instant heroes out of corporate leaders that take the initiative in planning.
The level of safety provided to handicapped people should equal, as nearly as possible, that which is traditionally provided to able–bodied people. Safety can often be improved without extensive renovations or the installation of expensive hardware. The key is to pay attention to essential human requirements.
Safety measures can be improved for everyone with early detection systems, two–way communication methods, and provision of areas of refuge. Awareness and adjusted management procedures for special needs of all persons improves the safety outlook of disabled employees or clients.

Enlist Support

As with any plan of this sort, the local fire department should be consulted about training employees to assist in evacuating the disabled. Co–workers should be assigned to help any disabled person escape a factory, plant or office building when the alarm sounds or a dangerous situation occurs.
These people, often called buddies, safety teams or monitors, take responsibility for ensuring the safety of disabled persons that might be vulnerable without assistance. It is important to have alternate or back–up buddies in the event the designated buddy is absent.
A recent high rise incident in downtown Fort Worth, Texas, provides a good example. An electrical fire in the elevator shaft of a 20–story building sent heavy smoke up the shaft to all upper floors. The fire was very minor and was extinguished quickly.
However, the smoke caused an evacuation and several injuries. A mobility impaired woman in a wheelchair worked on the 11th floor.
Once outside the building, one co–worker asked another, “Did Marsha make it out?” Several people turned and looked up with frightened faces. As they scrambled to tell a firefighter, one of them remembered Marsha was not there that day. It was later discovered a plan existed to make sure she got out okay. But, it was insufficient for several reasons:
– They did not exercise the plan with her.
– All employees on that floor should at least be familiar with the plan, providing a check and balance system.
– It would take several trained people to ensure a safe escape down the stairwell.
– There was a gross lack of awareness directly attributed to not exercising the plan they had.
Even three or four people will have difficulty carrying a person and a wheelchair down 11 flights of stairs. Further, it is dangerous for all involved. There are several evacuation chairs on the market that work well. Most of them use rubber skids to grasp the stairs as they descend and can be controlled by one or two people safely.
Two people are needed to transfer the person from chair to chair, depending on the physical limitations and weight of the person being lifted. (Considerations must also be given to getting a mobility impaired person’s chair evacuated as well as the individual so that they will be able to get around after the evacuation.)

Planning for the Visually Limited

Employees that are blind or visually impaired may be independent or totally dependent on a buddy to lead them to safety. Visually impaired visitors unfamiliar with the building will need assistance and should be planned for. Safety instructions should be provided in Braille, large print or on cassette tape for employees.
Escape routes should be traveled and studied in advance and in detail. Many blind people depend on acoustical and tactile cues for mobility. During an evacuation these normal means of mobility may be distorted by the noise and bustle of an evacuation. A solution would be to attach molding, tape or tactile material along the exit to serve as directional “feelers.” Intermittent auditory alarms along the route of egress could serve as a pathway of sound leading to safety.

Planning for the Hearing Impaired

To warn deaf and hearing impaired individuals, audio signal systems can be supplemented with visual or other sensory cues. Strobe lights, variable speed fans or vibrating devices inter–connected with the fire alarm system are good alternatives. Many co–workers and firms have taken courses in “American Sign Language.” Symbol cards and message boards are another option, but are difficult to use in a hurry.

Stay Where You Are

The concepts of “compartmentation” and fire safe areas on each floor of a multi–story building are being considered and used more and more by architects and planners.
This provides an area free from fire and toxic smoke until firefighting and rescue personnel arrive. Each compartment should, of course, have a way out – stairs or an elevator with an independent and protected power source. These areas are created by using fire doors and closing corridors.
Flexible walls activated by smoke which effectively block off space to protect people for one or two hours are available. Concise and easy–to–follow plans should be conveniently posted.
Steps to take now to protect everyone in an emergency:

Promote Awareness
• Determine vulnerability analysis
• Study the building and means of egress
• Invite local authorities to discuss vulnerabilities and developing evacuation plans
• Collect brochures, films and other self•help/awareness type materials and make them available

Plan
• Establish an in•house safety team or task force to develop and enforce egress plans
• Document locations of work areas for disabled employees
• Obtain safety equipment to assist in evacuation of disabled persons
• Build in “back•ups” whenever possible to all aspects of your plan
• Plan for a “worst case scenario”

Exercise
• Review training literature, films and egress methods
• Schedule drills involving all personnel
• Evaluate drills and review and update your plan

Involve all those individuals and agencies in the planning process that may be involved in the actual event. Emergency planning of this type is, by nature, complex, due in part to the different layouts of each building, as well as the different hazards that may occur. Professional emergency service personnel should be consulted to ensure clarity and consistency.

Are People Planning?

Unfortunately, the evidence suggests that very few are. Public and private sector agencies that engage in emergency planning tend to use generic evacuation guidelines for the public in general and fail to recognize or meet the special needs of the disabled or elderly population.
Those private agencies that do have a plan often are not aware of an overall community plan.
Likewise, many community emergency planners overlook how private companies and institutions plan for and interface with other organizations.
During a recent presentation to the Building Owners and Managers Association in the Texas area, the audience of 200 was surveyed as to how many had a comprehensive plan for persons with special needs. Only five said that they had a plan and practiced it. Many said they had not even considered it.
Finally, it should be noted that disabled persons tend to be fiercely independent. They should be involved from the very onset of the planning process. They want to be involved and often have the best ideas anyway.
There are numerous agencies that will provide guidance or referral in developing a plan. Get started now by talking about it. It is a worthwhile project and long overdue.

Gregg S. Dawson is an Emergency Management/Preparedness Specialist for Fort Worth–Tarrant County Emergency Management Office.

This article adapted from Vol. 5 #2.

Disaster Recovery Worldİ 1999, and Disaster Recovery Journalİ 1999, are copyrighted by Systems Support, Inc. All rights reserved. Reproduction in whole or part is prohibited without the express written permission form Systems Support, Inc.