U.S.

Department of Justice
Civil Rights Division
Disability Rights Section

An ADA Guide for Local Governments

Making Community Emergency Preparedness and

Response Programs Accessible to People with Disabilities

One of the most

important roles of

A police officer uses written

notes and hand gestures to
tell a man who is deaf to
evacuate.

local government is to
protect their citizenry
from harm, including
helping people prepare
for and respond to
emergencies. Making
local government
emergency preparedness
and response programs

A family, including a
woman with a service
animal, arrives at a
shelter.

accessible to people
with disabilities
is a critical part of
this responsibility.
Making these
programs accessible
is also required by
the Americans with
Disabilities Act of 1990
(ADA).

A man using a
wheelchair enters a
paratransit van
provided so he can
evacuate from his
home.

Planning
If you are responsible for your communitys emergency planning or response activities,
you should involve people with disabilities in identifying needs and evaluating effective
emergency management practices. Issues that have the greatest impact on people with
disabilities include:
notification;
evacuation;
emergency transportation;
sheltering;
access to medications, refrigeration, and back-up power;
access to their mobility devices or service animals while in transit or at shelters; and
access to information.
In planning for emergency services, you should consider the needs of people who use
mobility aids such as wheelchairs, scooters, walkers, canes or crutches, or people who
have limited stamina. Plans also need to include people who use oxygen or respirators,
people who are blind or who have low vision, people who are deaf or hard of hearing,
people who have a cognitive disability, people with mental illness, and those with other
types of disabilities.

Action Steps: Planning

Solicit and incorporate input from people with different types of disabilities
(e.g. mobility, vision, hearing, cognitive and other disabilities) regarding all
phases of your emergency management plan including:

preparation;
notification;
response; and
clean up.

Notification
Many traditional emergency notification methods are not accessible to or usable by
people with disabilities. People who are deaf or hard of hearing cannot hear radio, television, sirens, or other audible alerts. Those who are blind or who have low vision may not
be aware of visual cues, such as flashing lights. Warning methods should be developed to
ensure that all citizens will have the information necessary to make sound decisions and
take appropriate, responsible action. Often, using a combination of methods will be more
effective than relying on one method alone. For instance, combining visual and audible
alerts will reach a greater audience than either method would by itself.


NOTIFICATION (continued)

Action Steps: Notification

Provide ways to inform people who are deaf or hard of hearing of an
impending disaster if you use emergency warning systems such as sirens
or other audible alerts.
When the electric
power supply is
affected, it may be
necessary to use
several forms of
notification. These
might include the
use of telephone
calls, auto-dialed
TTY (teletypewriter)
messages, text
messaging, E-mails,
and even direct
door-to-door contact
with pre-registered
individuals.
Also, you should
consider using opencaptioning on local TV
stations in addition
to incorporating
other innovative uses
of technology into
such procedures, as
well as lower-tech
options such as
dispatching qualified
sign language
interpreters to assist
in broadcasting
emergency
information provided
to the media.

A woman who is deaf reads a captioned

evacuation notice on her television.

A police officer uses hand gestures

and a printed note to tell a woman who is deaf
that she needs to evacuate her home.

Evacuation
Individuals with disabilities will face a variety of challenges in evacuating, depending
on the nature of the emergency. People with a mobility disability may need assistance
leaving a building without a working elevator. Individuals who are blind or who have
limited vision may no longer be able to independently use traditional orientation and
navigation methods. An individual who is deaf may be trapped somewhere unable to
communicate with anyone because the only communication device relies on voice.
Procedures should be in place to ensure that people with disabilities can evacuate the
physical area in a variety of conditions and with or without assistance.

Action Steps: Evacuation of People with Disabilities

Adopt policies to ensure that your community evacuation plans enable
people with disabilities, including those who have mobility, vision,
hearing, or cognitive disabilities, mental illness, or other disabilities, to
safely self-evacuate or to be evacuated by others. Some communities are
instituting voluntary, confidential registries of persons with disabilities
who may need individualized evacuation assistance or notification. If you
adopt or maintain such a registry, have procedures in place to ensure its
voluntariness, guarantee confidentiality controls, and develop a process
to update the registry. Also consider how best to publicize its availability.
Whether or not a registry is used, your plan should address accessible
transportation needs for people who use wheelchairs, scooters, or other
mobility aids as well as people who are blind or who have low vision.

A transit bus equipped with a wheelchair lift is

used to evacuate individuals and families.

Evacuation (continued)
Both public and private transportation may be disrupted due to overcrowding, because of
blocked streets and sidewalks, or because the system is not functioning at all. The movement of people during an evacuation is critical, but many people with disabilities cannot
use traditional, inaccessible transportation.

Action Steps: Evacuation with Accessible Vehicles

Identify accessible modes of transportation that may
be available to help evacuate people with disabilities
during an emergency. For instance, some communities have used lift-equipped school or transit buses to
evacuate people who use wheelchairs during floods.

A lift-equipped school bus is used to evacuate

an individual using a wheelchair and her family.

Sheltering
When disasters occur, people are often provided safe refuge in temporary shelters. Some
may be located in schools, office buildings, tents, or other areas. Historically, great attention has been paid to ensuring that those shelters are well stocked with basic necessities
such as food, water, and blankets. But many of these shelters have not been accessible to
people with disabilities. Individuals using a wheelchair or scooter have often been able
somehow to get to the shelter, only to find no accessible entrance, accessible toilet, or
accessible shelter area.

Action Steps: Accessible Shelters

Survey your communitys shelters for barriers to access for persons
with disabilities. For instance, if you are considering incorporating
a particular high school gymnasium into your sheltering plan, early
in the process you should examine its parking, the path to the
gymnasium, and the toilets serving the gymnasium to make sure they
are accessible to people with disabilities. If you find barriers to access,
work with the facilitys owner to try to get the barriers removed. If
you are unable to do so, consider another nearby facility for your
community sheltering needs.

A shelter with accessible features including parking,

drop-off area, entrance, toilet rooms, and sleeping areas.

Until all of your emergency shelters have accessible parking, exterior

routes, entrances, interior routes to the shelter area, and toilet rooms
serving the shelter area; you should identify and widely publicize to the
public, including persons with disabilities and the organizations that serve
them, the locations of the most accessible emergency shelters.

Sheltering (continued)
Shelter staff and volunteers are often trained in first aid or other areas critical to the
delivery of emergency services, but many have little, if any, familiarity with the needs
of people with disabilities. In some instances, people with disabilities have been turned
away from shelters because of volunteers lack of confidence regarding the shelters
ability to meet their needs. Generally, people with disabilities may not be segregated
or told to go to special shelters designated for their use. They should ordinarily be
allowed to attend the same shelters as their neighbors and coworkers.

Action Steps: Input on Shelter Planning and Staff Training

Invite representatives of group homes and other
people with disabilities to meet with you as
part of your routine shelter planning. Discuss
with them which shelters they would be more
likely to use in the event of an emergency and
what, if any, disability-related concerns they
may have while sheltering. Develop site-specific
instructions for your volunteers and staff to
address these concerns.

A shelter worker helps a person

onto a cot using a portable lift
provided by the shelter.

A individual who uses a wheelchair sits on a cot

that is placed against a wall. The height of the
bed and the wheelchair seat are of similar height
making it possible for this person to transfer from
the wheelchair to the bed.

A shelter worker helps a man

transfer onto a cot.

Sheltering (continued)
Many shelters have a no pets policy and some mistakenly apply this policy to exclude
service animals such as guide dogs for people who are blind, hearing dogs for people
who are deaf, or dogs that pull wheelchairs or retrieve dropped objects. When people
with disabilities who use service animals are told that their animals cannot enter the
shelter, they are forced to choose between safety and abandoning a highly trained animal
that accompanies them everywhere and allows them to function independently.

Action Steps: Service Animals

Adopt procedures to ensure that people with disabilities who use
service animals are not separated from their service animals when
sheltering during an emergency, even if pets are normally prohibited
in shelters. While you cannot unnecessarily segregate persons who
use service animals from others, you may consider the potential
presence of persons who, for safety or health reasons, should not be
with certain types of animals.

A man using a wheelchair arrives at

a shelter with his family and service
animal.

A woman has a service animal

lying on the floor next to her cot.

Individuals whose disabilities require medications, such as certain types of insulin that
require constant refrigeration, may find that many shelters do not provide refrigerators
or ice-packed coolers. Individuals who use life support systems and other devices rely
on electricity to function and stay alive and, in many cases, may not have access to a
generator or other source of electricity within a shelter.

Sheltering (continued)
Action Steps: Medications, Refrigeration, and Back-up Power
Ensure that a reasonable number of
emergency shelters have back-up generators
and a way to keep medications refrigerated
(such as a refrigerator or a cooler with ice).
These shelters should be made available on
a priority basis to people whose disabilities
require access to electricity and refrigeration,
for example, for using life-sustaining medical
devices, providing power to motorized
wheelchairs, and preserving certain
medications, such as insulin, that require
refrigeration. The public should be routinely
notified about the location of these shelters.
In addition, if you choose to maintain a
confidential registry of individuals needing
transportation assistance, this registry could
also record those who would be in need of
particular medications. This will facilitate your
planning priorities.

A person using a wheelchair

picks up medication at the
shelter.

People who are deaf or hard of hearing may not have access to audible information
routinely made available to people in the temporary shelters. Individuals who are blind
or who have low vision will not be able to use printed notices, advisories, or other
written information.

Action Steps: Communications

Adopt procedures to provide accessible
communication for people who are deaf
or hard of hearing and for people with
severe speech disabilities. Train staff on the
basic procedures for providing accessible
communication, including exchanging notes
or posting written announcements to go with
spoken announcements. Train staff to read
printed information, upon request, to persons
who are blind or who have low vision.

A shelter worker reads

printed information to a
woman who is blind.

Returning home
The needs of individuals with disabilities should be considered, too, when they leave a
shelter or are otherwise allowed to return to their home. If a ramp has been destroyed, an
individual with a mobility impairment will be unable to get into and out of the house. In
case temporary housing is needed past the stay at the shelter, your emergency response
plan could identify available physically accessible short-term housing, as well as housing
with appropriate communication devices, such as TTYs, to ensure individuals with communication disabilities can communicate with family, friends, and medical professionals.

Action Steps: Planning

Identify temporary accessible housing (such as accessible hotel rooms within
the community or in nearby communities) that could be used if people with
disabilities cannot immediately return home after a disaster if, for instance,
necessary accessible features such as ramps or electrical systems have been
damaged.

A portable trailer provides temporary

accessible housing for an individual who
uses a wheelchair and his family. In
addition to accessible features inside, the
trailer also has an accessible entrance,
accessible parking, and the trailer is
located on an accessible route to other
site features in the mobile home park.

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RETURNING HOME

(continued)

A man using a wheelchair and his service animal enters

temporary accessible housing provided in an apartment building.

Contracting for emergency services

Many local governments provide emergency services through contracts with other local
governments or private relief organizations. These entities may not fully understand
the role they need to play in meeting your obligation to provide accessible emergency
services.

Action Steps: Contracting for Emergency Services

Make sure that contracts for emergency services require providers to
follow appropriate steps outlined in this document. Review the terms of
these contracts on a regular basis to ensure that they continue to meet the
accessibility needs of people with disabilities. Provide training to contractors
so that they understand how best to coordinate their activities with your
overall accessibility plan for emergency services.

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