Emergency Evacuation Preparedness: Taking Responsibility For Your Safety A Guide For People with Disabilities and Other Activity Limitations

Emergency Evacuation Preparedness: Take Responsibility for Your Safety

The media repeatedly reported stories about the two wheelchair users who successfully escaped from the World Trade Center using evacuation chairs on September 11^th, 2001. We also heard about one wheelchair user who died (see “A Day To Remember”).

We did not hear about others whose activity limitations prevented them from successfully evacuating. But we heard reports from those who successfully evacuated the towers and who told of passing people who could not keep up (e.g., older people, people with respiratory conditions and limited endurance, and other people with no apparent disability).

Their chances of surviving could have significantly improved if evacuation plans had been in place:

• which included them.

• that were regularly practiced by reviewing procedures using announced as well as surprise drills.

If you just rely on the employer or the building manager to make sure things are in place, it may or may not happen.

Paul Ray of Dearborn Heights, Mich., is a contractor for Ford Motor Co. His office had a fire drill about a month ago. Ray, who has quadriplegia and works on the second floor, said it was the first fire drill in the 18 months he's worked there. When the alarm went off, he went to the elevator bank, where Ray said designated fire wardens seemed surprised to see him. He said he had never been told about the building's evacuation plan.

"My confidence was not exactly inspired," said Ray, a programmer. "I was a little surprised. I thought Ford would have a little better control over the situation."

"I'm hoping that they're at least a little more aware of the fact that I am there, working on their second floor," Ray said. "I don't know if it's something they just don't think about it or everybody's just so stressed out with their other nonsense that they don't have time to deal with it. As a quadriplegic I do not go down stairs, period. I don't have the balance for it. It's a little disturbing.”  (Bondi 2001)

A Harris Interactive survey commissioned by the National Organization on Disability, December 2001, found that "50 percent of employees with disabilities say no plans have been made to safely evacuate their workplace, compared to 44 percent of people without disabilities.  Eighteen percent of people with disabilities feel extremely or very anxious about their personal safety in the event of a crisis, compared to 8 percent of people without disabilities.”  (National Organization on Disability 2002)

Preparing Takes Time and Effort

Preparation may seem like work.  It is.  Preparing does take time and effort.   You can do a little at a time. The important thing is to start preparing.  The more you do, the more confident you will be that you can protect yourself. Don’t assume you have been included in emergency plans.

What the Law Says

Because there are no federal guidelines requiring disaster or evacuation plans, many people are unclear exactly whose responsibility it is. (Bondi 2001)

The Americans with Disabilities Act of 1990 (ADA) does not require formal emergency plans. But ADA’s Titles I, II and III do require that employers, public services, and public accommodations and services operated by private entities modify their policies and procedures to include people with disabilities.  Therefore when plans are created or revised they need to include people with disabilities and activity limitations.

Give Attachment A: “Disability-related Issues for Emergency Plan Coordinators” to personnel who are responsible for creating, reviewing, maintaining, practicing and revising emergency plans.

Get Involved in the Planning Process

Create, Review and Practice Emergency Plans

Seek out the risk management team to determine if there is a CURRENT plan. Review the plan. Make sure your site is not just using a boilerplate, nonspecific or generic disaster plan. Each building and sometimes each area [in large buildings] is unique and should have its own plan.  It is important to treat all people with disabilities as individuals. Do not "lump" all people with disabilities into one category. For example, there are some emergency plans where all people with disabilities were "directed" to go to the area of rescue assistance to await members of the emergency team to escort them to safety. As a general rule there is no reason that individuals with hearing or vision loss cannot use the stairs to make an independent escape as long as they are effectively notified of the need to evacuate and can find the stairway. (Bondi 2001)

When there is no plan, or when the plan is not current, encourage management to develop one and become involved in the planning process.

Include yourself and others with or without disabilities who:

• have a user's perspective and are knowledgeable about the relevant federal, state and local accessibility building codes;

• can share information from a cross‑disability perspective, (they have experience  and can consider the needs of those with different types of disabilities [hearing, vision, mobility, speech, cognitive and sensitivity to airborne chemicals]);

• can provide concrete, practical knowledge.

Make sure you are included in the decisions regarding which equipment and procedures will work for you.

You need to be a part of the discussion regarding the selection of and use of the accommodation, procedures, equipment and assistive devices that will work for you to provide a safe evacuation. You are the best provider of information regarding your specific abilities and limitations and how best to provide you appropriate and effective assistance.  (Cameron)

Individuals with disabilities don't always agree on the best ways to provide accessibility services. Be prepared for some debate. Usually there is an easy, appropriate solution that provides adequate accommodation options.

Talk to the emergency services coordinator regarding how qualified people with disabilities can be recruited. Sometimes you can find qualified people with disabilities by contacting a disability‑related organization such as an ATA (Alliance for Technology Access) Center or Independent Living Center (ILC).  ATA centers are community‑based, consumer‑directed centers focusing on technology. Independent living centers (ILCs) are private, nonprofit corporations that provide advocacy and services to maximize the independence of individuals with disabilities and the accessibility of communities. To contact an ATA Center or an ILC in your area, and for a listing of other disability related organizations (see References and Resources.)

Fire Department Issues

Be aware that some police and fire department personnel are more experienced and knowledgeable regarding disability-related evacuation access issues. Other fire departments may not have the most updated information regarding evacuation issues for people with disabilities and activity limitations.  Therefore, open discussions and give and take debates are important. If you get advice you do not agree with, decide what is best for you.

Approaches vary among local fire and police departments, regarding:

• Empowering people to be experts.

• Whether individuals with disabilities and other activity limitations should remain in the building and when provided, assemble in an area of refuge to await the arrival of the fire fighters to get help with evacuation.

• Whether evacuation chairs (fold‑up chairs, which can be stored near emergency exits and allow for people to be moved up or down stairs) should be used? Some fire departments mistakenly believe that they can jam up the stairways.  This is not the case. It has been proven by one company that someone operating an EVAC+CHAIR can keep up with people without disabilities. “At least one other person can walk beside this evacuation device at a normal rate of descent. “(Byzek 2001) On September 11, 2001 two wheelchair users escaped from the World Trade Center using “evacuation chairs with inexperienced helpers because they broke the rules. Most who did what they were expected to do--wait to be rescued—died.” (Byzek and Gilmer 2000)

• Whether service animals should be permitted to evacuate down the stairway with their owners. Tthere are examples of the fire department instructing that the dog be separated from its owner. This is typically not necessary and clearly proven by Michael Hingson, a survivor of the September 11th attacks who was working in the North Tower of the World Trade Center Tower when it was struck.  Evacuating from the 78th floor, Michael, who is blind, relied on his own instincts, his guide dog, Roselle, and his business associates to make it to safety.  He recounts, “I feel like I was as prepared as possible.  I knew the evacuation procedures, I attended all the building fire drills, I knew the exit routes.  So when the attacks hit, I had a sense of preparedness, self-sufficiency, and the confidence to take a leading position in evacuating myself and others to safety.”

Practice Plans Through Regular Drills

Practice is very important; it increases skill and instills confidence in one's ability to cope in an emergency. On September 11, 2001 one wheelchair user who did escape from the World Trade Center using an evacuation chair explained to the press that she had forgotten that the evacuation chair was under her desk. Two secretaries remembered and reminded her where it was!  (Byzek and Gilmer 2000)

Her forgetting about the device, combined with another wheelchair user who worked at World Trade Center recalling only a single demonstration of the device shortly after the 1993 bombing, indicates that the need for preparedness had worn off soon after the first attack. Whatever evacuation plan existed had not been practiced regularly.  When disaster struck, the plan fell apart. Most of those who had been assigned to help with rescue devices were frightened and fled downstairs. (Byzek and Gilmer 2000) 

Practice and drills consist of one of three types of activities:

• walk through procedures,

• announced drills,

• surprise drills.

Plans should ensure that shift workers and others who work on the premises or are at the site outside typical hours, (cleaning crews, evening meeting coordinators, etc.) are included in drills. Identify and plan for times (of the day and the week) plus locations in the workplace where the basic life safety or emergency contingency plans have not been put in place or due to some other factor, might not work.  

Walk Through Procedures

Recommend that a portion of staff meetings be devoted to discuss and practice separate parts of a plan. This allows you and your colleagues to concentrate efforts on the particular parts of the plan and particular individuals requiring more extensive practice. This time can be used, for example, to practice evacuation techniques, methods of transferring in and out of evacuation devices, carrying techniques, use of evacuation devices, and use of two-way communication systems in areas of rescue.  It is critical that members of an emergency response team (e.g., fire wardens, floor monitors) be involved in this practice. This is also a way of introducing new people to important parts of the plan.  (United States Fire Administration 1995)

Innovative educational techniques such as role-playing or the use of audio‑visual aids can also be helpful.

Don't assume you'll know how to use the evacuation chair when you need it. Make sure you and your support network practices using it.

Know how to get to all the exits. Practice this as part of your regular drills.

Know how to report safety hazards (i.e. fire extinguishers that need servicing, exits which are not kept clear, furniture and other items that block barrier‑free passages).

Teach your support network how to operate your equipment in an emergency (for example, how to disengage the gears of a power wheelchair).

If you are hard of hearing or deaf, practice having co-workers communicate important information to you through gestures.

If you are blind have co-workers practice guiding you.

If you use a service animal be sure you include the animal in all drills.

When there are people whose knowledge of English may be limited, training should cover techniques so they are understood and can be practiced without additional translation (pictures, simple plan language).

Announced Drills

As with the walk through procedures, these drills serve as training tools. Such drills will also help identify crucial coordination activities and communication links. Announced drills are also a good time to practice:

• communicating emergency information to people with vision and hearing loss,

• coping with different scenarios and unforeseen situations such as blocked paths or exits.

Surprise Drills

The emergency plan should include conducting surprise drills two or three times a year, at different times of the day and different shifts. These drills should include some realistic elements (e.g., blocked paths or exits), forcing people to use alternative routes.  Performance of these drills should also be evaluated and feedback given to all participants.  Plan revisions and updates typically need to be made after these evaluations.

Emergency Health Information

Carry on you at all times emergency health information containing your critical health information and emergency contacts.  Emergency health information communicates to emergency and rescue personnel what they need to know about you if they find you unconscious, confused, in shock, or just unable to provide information.  Make multiple copies of this information to keep in your: emergency supply kits, car, work, wallet (behind driver's license or official identification card), wheelchair pack, etc. See Attachment B: EMERGENCY HEALTH INFORMATION.

Evaluate Your Need to Identify as Someone Who Requires Assistance During an Evacuation

You do not have to identify as a person with a permanent disability to qualify for needing assistance. There are many people, including those who identify and those who do not identify as having a disability or who have no visible disability, who may also need assistance.  Some people may need assistance because of conditions that are not apparent. Others may have obvious disabilities or conditions but may not need assistance. Some people may perform well in a drill but some will experience problems in emergency situations.

People with respiratory conditions, who were interviewed after going through the 1993 and 2001 World Trade Center evacuations, described the terror they experienced when faced with the grim reality of extreme exertion required to escape down the many flights of stairs in unfamiliar and smoke‑filled stair towers. They also acknowledged that prior to that emergency evacuation they had never considered themselves as having a disability that would qualify them for inclusion in the emergency evacuation plans for those requiring specific assistance. (Bondi 2001)  (Juillet 1993)

Two men who helped a wheelchair user transfer to an evacuation chair hanging in the stairwell of the World Trade Center on September 11, 2001, and transported her safely down from the 68^th floor, observed that they passed a number of older people and some people who were overweight and could not keep up. (Horovitz 2001) People who were deaf and hard of hearing could not receive instructions on the stairwell after the power and lights went out.         

Some people with disabilities in the interest of privacy or because they do not need specific assistance, choose not to identify themselves among those listed as “needing assistance or disabled” in the emergency management plan. The danger in doing this is that if you do need assistance, it will not be there when you need it. Many realized after the incident that they did need assistance. Others had not realized how vulnerable they were outside of normal working hours when there were few co‑workers around to provide emergency assistance. (FEMA & United States Fire Administration 2001)

Many do not recognize their own need for assistance. Encourage your friends and colleagues to identify themselves, if you think they may need specific assistance during an emergency. Use a checklist to help people feel free to self-identify as needing assistance (see Will you need assistance in an emergency evacuation?) Let people know that while self-identification is voluntary, you can ask that the information be kept confidential and that it only be shared with those who have responsibilities for emergency response.

• Is your name on the current log containing the names of all people needing assistance?

• Is the list maintained by the building managers and kept at all security stations?

• Is the list updated frequently so it can also include people who may have temporary activity restrictions? 

Master the Skill of Giving Quick Information on How Best to Assist You

Be prepared to quickly give emergency responders critical information on how they can assist you without causing injury. Take charge and practice how to quickly explain to people how best to assist you. Be prepared to give clear, specific and concise instructions and directions to rescue personnel. Determine how much detail is needed. Be prepared with additional instructions if more details are needed. You know your abilities and limitations and the best way that someone can assist you or ways in which you can assist them. Practice giving these instructions clearly and quickly, not in four paragraphs but a few quick phrases, using the least amount of words possible, for example:

• Take medication from top drawer of desk by window.

• Take my communication device from that table. I am hard of hearing.

• Take my manual wheelchair .

• The traditional "fire fighter's carry" is hazardous for me because of my respiratory condition. Carry me by …..

• I can manage steps independently, carry my other crutch and walk in front of me. 

• I’m blind, let me take your left arm above the elbow and I’ll follow you out.

• I need to hang on to you, I have poor balance, but I can walk steps.

• You have to carry me out, wheelchair user evacuation chairs are hung at the top of “stairway two, north end” and “stairway three, south end.”

Consider using a carry-with-you preprinted message. Customize a message for yourself, for example:

• I’m deaf, do not speak, I use American Sign Language (ASL). Use gestures or write instructions using simple words.

• I cannot speak, but I do hear and understand.  I communicate using an augmentative communication device.  I can point to simple pictures or key words, you will find a communication sheet in my wallet.

• I may have difficulty understanding what you are telling me, so speak slowly and use simple words.

• I have a psychiatric disability.  In an emergency I may become confused.  Help me find a quiet corner and I should be fine in about 10 minutes.

• I have a panic condition.  If I panic and appear very anxious, speak to me calmly and slowly. Be patient. Ask me if I need my medication and I will direct you.  You may need to ask me more than once. Please stay with me until I calm down.

• Diesel exhaust can kill me. Do not put me in or near idling emergency vehicles.

Establish a Personal Support Network

A personal support network is made up of individuals who will check with you and assist when needed.  This network consists of people who are regularly in the same area as you. 

If you rely on personal assistance services (attendants), they may not be available at the time needed. Therefore it is vital that your personal support network consist of additional people.

Do not depend on any one person. Buddy systems (choosing and training one person to assist you in an emergency) that are commonly used have major weaknesses. To be effective, the person and the buddy must be able to make contact with each other quickly when the need arises. In many situations this can be unrealistic because: the person may be absent, you may be in an area different from your usual location or you may be at the site after regular hours when your buddy is not available (co-workers, fellow students, etc.).

Work out support relationships with several individuals. Identify a minimum of three people at each location where you regularly spend a significant part of your week: job, home, school, volunteer site, etc.  Consider speaking with and training as many people as possible to assist you in an emergency. This is especially critical in settings where people have wide-ranging work and travel schedules and it is difficult to predict who will be at the site in the event of an emergency.

Choose people who are dependable and have the physical and emotional ability to reliably assist you. Usually, people will chose people they like, but sometimes these individuals do not have the qualities you really need for this type of assistance.

Know how you will instantly create a personal support team.  In spite of your best planning, sometimes a personal support network must be created on the spot. Think about what you will need, how you want it done and what kind of people you would select if given a choice of people. (See Give Quick Information on How Best to Assist You)

Establish a Personal Support Network