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Guideline on Inclusive Disaster Risk Reduction: Disabilities and Disasters

GUIDELINE ON INCLUSIVE DISASTER

RISK REDUCTION:DISABILITIES ANDDISASTERS

This is a working document.Consultations are underway and comments are

welcome.

This document has been prepared

by Betty Dion and Aqeel Qureshi of GAATES

in collaboration with

the Asia Disaster Preparedness Centre

and

the Asia Pacific Broadcasting Union.

Funding was provided by

UN ESCAP

Front Cover Photo: Japan Times

This document is available in alternate formats.


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Dedication

This Guideline document is dedicated to persons with disabilities in the

Asia Pacific Region who, in the face of the ever increasing occurrence

of natural disasters, tsunamis and armed conflicts, are now demanding

their right to be at the table planning for their survival and wellbeing.

Figure 1: Community Consultation in Sri Lanka. Photo: Aqeel Qureshi


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Table of Contents

1. Introduction to the Guideline ........................................................................................... 1

UN Economic and Social Commission for Asia and the Pacific ............................. 11.1.

The Objectives of the Guideline .............................................................................. 21.2.

Target groups ........................................................................................................... 31.3.

Scope of the document ............................................................................................ 41.4.

2. The Convention on the Rights of Persons with Disabilities ............................................ 6

Introduction to the Convention ................................................................................. 62.1.

Using The Convention for Inclusive Disaster Risk Reduction................................. 72.2.

Sri Lanka, Myanmar and the Philippines ................................................................. 82.3.

UN Enable ................................................................................................................ 82.4.

3. Persons with Disabilities and Older Persons .................................................................. 9

Statistics ................................................................................................................... 93.1.

Working with Persons with Disabilities .................................................................. 133.2.

Older Persons ........................................................................................................ 193.3.

4. Inclusive Disaster Risk Reduction ................................................................................ 20

Registry of Persons with Disabilities ..................................................................... 224.1.

Personal Disaster Preparation Kit ......................................................................... 234.2.

Collaboration .......................................................................................................... 244.3.

Twin track approach............................................................................................... 254.4.

Standard Operating Procedures ............................................................................ 254.5.

5. Disaster Management Agencies ................................................................................... 27

Public Education .................................................................................................... 285.1.

Public Education of First Responders ................................................................... 285.2.

Long Term Health, Rehabilitation and Personal Care Support ............................ 295.3.

6. Early Warning Systems ................................................................................................. 30

Guiding Principles on Early Warnings and Communications................................ 316.1.

Methods of Delivery of Accessible Early Warnings ............................................... 336.2.


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7. Universal Design and Accessibility of the Built Environment ....................................... 43

Accessibility of the Built Environment .................................................................... 487.1.

Access to Shelters and Temporary Housing ......................................................... 587.2.

Building an Accessible Community ....................................................................... 597.3.

Designing for Accessible Communities ................................................................. 607.4.

8. Evacuation Techniques ................................................................................................. 62

Transferring Techniques ........................................................................................ 638.1.

9. Accessible Transportation ............................................................................................. 68

10. Accessible Broadcasting ........................................................................................... 72

Introduction to Accessible Broadcasting ............................................................ 7210.1.

Captioning .......................................................................................................... 7310.2. Sign Language Interpretation ............................................................................ 7510.3.

Audio Description ............................................................................................... 7510.4.

Operational procedure - Accessible Disaster Warning Broadcast .................... 7610.5.

11. Information and Communications Technologies and Disaster ................................. 78

Introduction to Accessible ICTs and Disaster .................................................... 7811.1.

Use of Assistive Technologies ........................................................................... 7911.2.

Technical Aids .................................................................................................... 8311.3.

Use of Mobile Telephones ................................................................................. 8511.4.

Pre-disaster Planning Information ..................................................................... 8711.5.

12. Access to Services and Risks & Vulnerabilities ........................................................ 91

Risks & Vulnerabilities ........................................................................................ 9112.1.

13. Communications Strategies ...................................................................................... 96

Accessibility Communication Strategies and Tools ........................................... 9613.1.

Communication Access Options and Tools ....................................................... 9613.2.

Communicating with Persons with Vision Disabilities ..................................... 10013.3.

Communicating with Persons with Hearing Disabilities .................................. 10113.4.

Communicating with Persons with Mobility Disabilities ................................... 10413.5.

Communicating with Persons with Cognitive and Developmental Disabilities 10513.6.

Appendix I - International and National Legislative Frameworks ...................................... 106

Appendix 2 - Definitions and Acronyms ............................................................................. 113


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early warnings through a multi-hazard approach and, in 2010, itexpanded to include overall disaster and climate preparedness.

The Trust Fund recognized that persons living with a disability were

amongst the most vulnerable and most likely to die in the event of amajor disaster1.

In order to maximize the effect of this project, the Trust Fund wiselyrecommended collaboration between the Asia Disaster PreparednessCenter (ADPC), the Asia Pacific Broadcasting Union (ABU) and theGlobal Alliance on Accessible Technologies and Environments(GAATES). We are most grateful to the UN ESCAP Trust Fund fortheir support and their recognition that, by working together, we canincrease the impact of our work.

The Objectives of the Guideline1.2.

The objectives of this Guideline are to:

Build community resilience to coastal hazards by improvingcapacity of inclusive disaster management systems.

Reduce the mortality rate of persons with disabilities insituations of risk.

Raise awareness about inclusive policies, practices and

disaster risk reduction strategies that address theaccessibility of communication, shelter, transportation andearly warning systems.

Foster collaboration between disaster preparednessorganizations, broadcasters and organizations of personswith disabilities to mainstreaming disability issues in disasterrisk reduction strategies.

1The mortality rate for people with disabilities was twice as high as that of the general population in the

Japanese Earthquake of 2011 - Japanese Disability Society


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Build the capacity of disaster management organizations,governments, broadcasters and built environmentpractitioners by providing technical specifications onaccessible communications and the design of accessibleshelters and the built environment.

Target groups1.3.

The audience for this Guideline includes:

Broadcasters whoare responsiblefor developingpolicies andpractices for earlywarning anddisaster riskreduction.

Civil societyorganizations andDisabled PersonsOrganizations.

International AidOrganizations.

Figure 4: Emergency radio broadcast. Photo: Pacmas

Figure 3: The Asian Disaster Preparedness Center (ADPC) Workshop.Photo by ADPC.


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Government officials responsible for disaster risk reductionsuch as National Disaster Management Centers, DisasterManagement Agencies and Bureaux.

Government officials responsible for establishing standard

operating procedures for disaster risk reduction includingemergency communication and evacuation planning, anddisaster mitigation to reduce the effects on citizens.

Government officials who are responsible for evacuation,accessible transportation, accessible housing and sheltersand those responsible for the implementation of the UNConvention on the Rights of Persons with Disabilities.

Early warning system planners, telecommunication andcommunication strategists, transportation planners,

international aid and emergency management agencies.

Scope of the document1.4.

This Guideline is designed toaddress the lack of appropriateinformation and practices oninclusive policies and practiceson disaster preparedness,

accessible early warnings,accessible transportation, andlife safety and evacuation ofpersons with disabilities. Itfocuses on inclusive disasterrisk reduction strategies, fromworking with the community ofpersons with disabilities, to thedesign of a variety ofaccessible early warning

systems that reach all citizens,disaster preparedness andtechnical specifications fordesigning accessible shelters,housing and transportation.

People with disabilities are atFigure 5: GAATES Community ConsultationMeeting Sri Lanka. Photo: Betty Dion


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significant risk in times of disaster, and often lack access toappropriate and disability inclusive disaster risk reduction information.

As a result of the lack of inclusion in disaster risk reduction strategies,

persons with disabilities are more likely to succumb or become furtherdisabled in disaster situations. Due to the effects of climate changeand, in part to increasing frequency, natural hazards continue to causesignificant loss of life in the Asia Pacific region. Between 1970 and2010, 1.7 million hazard-related deaths were recorded in the region51% of the global total.

For this project, the Asia Disaster Preparedness Center has identifiedSri Lanka, Myanmar and the Philippines for primary focus, althoughthe document has been written to be applicable to the entire Asia

Pacific region.


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h) Respect for the evolving capacities of children with disabilities andrespect for the right of children with disabilities to preserve theiridentities.

When signing the Convention, States can choose whether to sign theOptional Protocol. This Protocol commits them to additionalobligations and also provides an opportunity for people andorganizations to file a complaint with the Committee on the Rights ofPersons with Disabilities if they feel that they have been denied theirrights under the Convention.

While the Convention deals with allaspects of life, it is significant to note that

situations of risk and humanitarianemergencies were assigned a specific articlein the Convention. They recognized the realitythat persons with disabilities and older personsare the most vulnerable populations insituations of disasters, including fire,earthquakes and floods. Persons withdisabilities and older persons have a mortalityrate twice that of the general population.

Using The Convention for Inclusive2.2.

Disaster Risk Reduction

The Convention is a tool that can be used bycountries, disaster risk reductionorganizations, broadcasters and disabledpersons organizations to promote inclusivepolicies and practices that ensure that persons with disabilities areconsulted and included in disaster planning and recovery strategies.

This means that they are part of the discussion on early warningssystems, including appropriate notification of pending disasters andrisks. Accessible transportation services to reach shelters withaccessible sanitary facilities are an important aspect of Article 11.

Countries that have signed and ratified the Convention are obliged toestablish a Focal Point within their government, and to develop an

Article 11 Situations of riskand humanitarian emergencies

The Convention states thatcountries shall take all necessarymeasures to ensure theprotection and safety of personswith disabilities in situations ofrisk, including situations ofarmed conflict, humanitarianemergencies and the occurrenceof natural disasters. This meansthat accessible housing,emergency shelters andaccessible transportation mustbe available to persons withdisabilities when situations of riskand humanitarian emergenciesoccur.


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action plan for implementation. The Focal Point will necessarily involveall the stakeholders who have responsibility or an interest in the

Article. It is the obligation of the government Focal Point to create aframework to promote, protect and monitor the implementation of the

Convention. They are also obliged to report on their progress withintwo years of the date of signing the Convention.

The Convention can be used as a strong impetus for action on the partof the government departments, civil society organizations,broadcasters, disaster risk reduction agencies and DisasterManagement Centers.

Article 9 offers specific obligations andresponsibilities related to accessibility.

Sri Lanka, Myanmar and the Philippines2.3.

Sri Lanka has signed the Convention on the30th of March in 2007.

Myanmar did not sign the Convention but wentdirectly to the ratification on the 12 thof July,2011.

The Philippines signed the Convention on September 25th, 2007 andratified it the following year on April 15, 2008.

UN Enable2.4.

The UN Enable website (www.enable.org)provides a list of all thecountries that have signed the Convention and its Optional Protocol.

Additionally, they provide a list of global initiatives such as theInternational Day on Disaster Reduction and the Global Platform forDisaster Risk Reduction.

More information on International and National Legislative Frameworksis provided in Appendix 1.

Article 9 -Accessibilityis of

particular importance to personswith disabilities as it addressesthe need for accessible buildings,transportation, and access toinformation and access toservices. Accessibility impactsall aspects of life includingsituations of risk and disasters.
http://www.enable.org/http://www.enable.org/http://www.enable.org/http://www.enable.org/


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3. Persons with Disabilities and Older Persons

Statistics3.1.

According to World Health Organization (WHO) statistics, there are

over 400 million persons with disabilities in the Asia Pacific Region,

(approximately two thirds of the worlds population of persons withdisabilities), with 80 % of them living in rural areas of the region.

The Asia-Pacific region is the most disaster-prone area in the world,with over 50 % of the world disasters occurring there. The regionexperiences with regular frequency, geological hazards such asearthquakes and tsunamis, as well as with increasing frequency,weather-related hazards such as typhoons, floods, droughts andwildfires.

Sri Lanka

The World Health Survey (WHS, 20022004) reports that Sri Lankahas a disability prevalence rate of a 12.9%, yet the 2001 Sri LankaCensus indicated a national rate of only 1.6 %, which is lower still thanthe 1986 disability survey findings of 2.0 %.

Figure 6: Elderly person being lifted. Photo: Daryl Chin


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The root cause of disability is considered to be poverty andconsequently, the effects of inadequate nutrition, disease, poordrinking water, improper hygiene, accidents, armed conflicts andgenetic disorders etc.1

Figure 7: Causes of Disability in Sri Lanka

2

Figure 8: Types of Disability by Category

3

Myanmar

Myanmar was found to have a disability prevalence rate of 6.4 % in theWorld Health Survey (WHS, 20022004), yet a rate of only 2.0 % ifusing the Myanmar National Census of 1985, affirmed by the 2007disability survey.

The First Myanmar National Disability Survey conducted by theDepartment of Social Welfare and the Leprosy Mission International in2010, indicated that a total of 2.3% of Myanmars population havesome form of disability, translating to approximately 1.3 million personsliving with disability. Of this, 68.2% are persons with a physicaldisability, 13.3% are persons with a visual disability, 10.4% arepersons with a hearing disability and 8.1% have some form ofintellectual disability.4

Causes of disability include lack of nutrition, congenital conditions andaccidents. The Asian Development Bank estimates that the number of

1Prithipura Communities. Sri Lanka.http://www.prithipura.org/page.php?area_id=1&page_id=23

2Country Profile on Disability: DEMOCRATIC SOCIALIST REPUBLIC OF SRI LANKA. Japan

International Cooperation Agency, Planning and Evaluation Department. March 2002. Final report ofThe Study of Physically Impaired People of Sri Lanka.3Country Profile on Disability: DEMOCRATIC SOCIALIST REPUBLIC OF SRI LANKA. Japan

International Cooperation Agency, Planning and Evaluation Department. March 2002. TEAMS. Finalreport of The Study of Physically Impaired People of Sri Lanka.4Disability Rights in Burma (Disability Rights in Burma/Myanmar). Sida. September 2012.www.sida.se.
http://www.prithipura.org/page.php?area_id=1&page_id=23http://www.prithipura.org/page.php?area_id=1&page_id=23http://www.prithipura.org/page.php?area_id=1&page_id=23http://www.sida.se/http://www.sida.se/http://www.sida.se/http://www.sida.se/http://www.prithipura.org/page.php?area_id=1&page_id=23


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persons with disabilities is 15%, with Burma having a very largepopulation of persons with vision disabilities and mine victims.5

Philippines

Philippines was found to have a startling disability prevalence rate of28.8 % in the World Health Survey (WHS, 20022004), yet a rate ofonly 1.2 % if one were to believe the Philippines Census of 2000.

Sadly, the recent Typhoon Haniyan has contributed to the death ofover 10,000 people, and has created a new population of Filipinos whoare living with a disability.

Of the persons with disabilities, the 1995 National Census found thatthe breakdown by disabilities indicated that 46% of persons with adisability have a vision disability, 15% have a physical disability, 13%have a hearing disability and 65 % have an intellectual disability. It isobvious that many people have multiple disabilities.

Children with Disabilities

Globally, the World Report on Disability estimatesthat the prevalence of children with disabilitiesvaries widely due to the varying definitions andmeasurements used that relate to disability. Inmore developed countries, children may have adisability, just as likely from birth as from an injury,whereas, in less developed countries, children faceadditional risk factors for disabilities, includingpoverty, malnutrition, poor health, and lack ofaccess to health care (including immunization),disease and injury.

5Disability Rights in Burma (Disability Rights in Burma/Myanmar). Sida. September 2012.www.sida.se.

In less developed AsiaPacific countries,estimates indicate thatapproximately 90 % ofchildren with disabilitiesdo not attend schools, andtherefore are not includedin disaster risk reductionstrategies aimed at childsafety.
http://www.sida.se/http://www.sida.se/http://www.sida.se/http://www.sida.se/


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Older Persons

As a consequenceof the aging

process, many olderpersons typicallyhave some type ofactivity limitation ordisabling condition,but they often donot identify ashaving a disabilitybecause theyconsider their level

of ability and activityas appropriate fortheir age. It isinevitable that asthe population ofolder persons

increases, there will be higher global and national disability rates.

The population of older people in the Asia Pacific Region is increasingrapidly in comparison with the other segments of the population.Currently, this cohort represents approximately 11% of the totalpopulation and is projected to increase to 20% by the 2025. It willmore than quadruple by 2050. Older people who live mostly in ruralareas are poor, the majority are women and most of them arewidowed.6

While many countries are beginning to recognize the importance ofincluding persons with disabilities in disaster risk reduction strategies,few countries in the Asia-Pacific region, with the exception of Japan,

have developed an action plan for addressing and incorporating thespecific concerns and limitations of older persons in emergencysituations.

6 International Workshop Human Rights of Older Persons in Asia-Pacific Region Focus on Health and

Welling Being: Summary of Proceedings and Outcome Statement. International Federation on Ageing.

Centre for Gerontological Studies. Thiruvananthapuram, India 2012.

Figure 9: Disaster Risk Management Project (DRM). An elderlyperson with a disability goes down the stairs of the Cyclone shelter in

Mohanagar, Sitakunda, Bangladesh. Photo: IPSnews


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Working with Persons with Disabilities3.2.

Use of Language

The appropriate use of language can create an environment wherebypersons with disabilities feel greater inclusion within the community.The disability community often develops its own preferences aboutlanguage, based on regional variations and attitudes. Inacknowledgement of multiple viewpoints, the terms 'persons withdisabilities' and 'disabled people' are the most common terminologyused in the English language. Some prefer the term 'persons withdisabilities' to emphasize the person first and the disability assecondary, while others prefer the term 'disabled people' to highlightthe role society has in their disability. 7

It is important to recognize that persons with disabilities are people justlike anyone else, with abilities and limitations. They deserve the samerespect and acknowledgement of their place and roles in families, inthe community and as part of society as a whole, and should not beviewed as second class citizens or as a societal burden.

Concerns of Persons with Disabilities with respect to DisasterRisk Reduction

All people have varying degrees of functionality and ability, rangingfrom limited agility, which may affect ones ability to open doors,get inor out of a cot or off of a cooking stool, to limited capability to get off ofthe floor, walk very far, or use a manual wheelchair. Mobility and agilitydisabilities can be due to a variety of causes; a spinal cord injury froma work accident; missing one or more limbs because of violence or anatural disaster; or weak muscles and bones from lack of propernutrition, etc. A mobility disability may be temporary, like a broken armor leg, illness and disease, or even pregnancy.

7World Bank. Disability and Development. FAQ.

http://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTDISABILITY/0,,contentMDK:21150847~menuPK:420476~pagePK:210058~piPK:210062~theSitePK:282699,00.html
http://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTDISABILITY/0,,contentMDK:21150847~menuPK:420476~pagePK:210058~piPK:210062~theSitePK:282699,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTDISABILITY/0,,contentMDK:21150847~menuPK:420476~pagePK:210058~piPK:210062~theSitePK:282699,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTDISABILITY/0,,contentMDK:21150847~menuPK:420476~pagePK:210058~piPK:210062~theSitePK:282699,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTDISABILITY/0,,contentMDK:21150847~menuPK:420476~pagePK:210058~piPK:210062~theSitePK:282699,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTDISABILITY/0,,contentMDK:21150847~menuPK:420476~pagePK:210058~piPK:210062~theSitePK:282699,00.html


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People with a mobility disability are concerned about how they willescape from a dangerous environment, situation, or structure duringan emergency or disaster. Many people with mobility disabilitiescannot stand independently and are able to walk only a short distance

to an evacuation center during an emergency situation. Many peoplewho use crutches, canes, braces, etc. and people with limitedmovement frequently cannot move quickly.

People who use wheelchairs areoften concerned about being leftbehind, not being able to accessshelter facilities or not being assisted.Many people who use wheelchairs

cannot independently get in and outof their wheelchairs.

They may worry that their wheelchairor wheeled mobility aid will be leftbehind or damaged.

Most people, during an emergency, are more concernedwith their life safety than they are with injuries, but theyworry about being dropped during an evacuation.

People with a vision disability include people with either low vision orblindness, and includes conditions such as tunnel vision, or onlyhaving peripheral vision. Some people with vision disabilities may stillhave light perception, others may see colours well, but shapes only asa blur; or only a very small area but see it well; or they may see thewhole area reasonably well but lack precise vision.


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Figure 10: Global causes of blindness due to eye diseases.

In less developed countries, including in the Asia Pacific Region,cataracts and other preventable and treatable issues are the leadingcauses of blindness and severe vision disabilities.8

While a person who is blind or vision disabled can usually manage ontheir own in a familiar environment, when it comes to a disaster oremergency situation, they will need help to maneuver in a new,unfamiliar environment that may be dangerous.

People who are blind or who have a vision

disability may have a walking stick, guidedog, or a long white cane with a red tip, toguide them; some others may have nomobility aid at all, others use a familymember to guide them.

People who are blind or low vision areconcerned about their ability to detectdanger and move about safely.

They may be concerned that the

pedestrian route may be blocked and, with the emergencysirens sounding and public announcements, their ability touse their hearing is decreased.

8Vision 20/20: The Right to Sight. Global Initiative for the elimination of avoidable blindness. Action Plan

2006-2011. WHO, Vision20/20, IAPB. Geneva, Switzerland. 2007


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They may also be concerned about not receiving importantdisaster risk reduction information, and if they do, it may notbe in a format that they can use.

People who are hard of hearing are limited in their ability to hear whatis being said in conversation with one or more persons, even if theyare fortunate enough to be wearing a hearing aid. They may or maynot be able to hear public announcements from a megaphone orloudspeaker. Hearing loss varies from being a slight inconvenience tobeing a major communication barrier. Persons who have a profoundhearing disability usually communicate using sign language.

The main concerns of a person who is

deafened or hard of hearing is not hearingevacuation alarms, people talking or yellingdirections or public evacuation announcementsor other sounds such as an explosion.

A common concern is communication withemergency personnel, shelter staff, people atfuel and food distribution sites, etc. During anemergency situation, this is very stressful for aperson who is deaf, deafened, or hard of

hearing.

In 2007, Sri Lankas first-ever conversational signlanguage dictionary was published, and in 2008 the Sri Lanka SignDictionarywas created by Deaf Sri Lankans in association with theCentral Federation of the Deaf.9

In Myanmar, the government wants to develop and promote astandard sign language; however, they are in the very early stages ofdeveloping a unique Myanmar Sign Language. As the Deaf communityis not formally organized and does not have a national deaf communitypresence, a national sign language has not emerged naturally.10As afirst step, however, the Ministry of Social Welfare, Relief and

9Rohana Special School. Sri Lanka.http://www.rohanaspecialschool.org/sri-lankan-sign-language-dictionary/10Pluralization: An Alternative To The Existing Hegemony In JSL. Deaf Around The World: The Impact Of Language.Soya Mori.2010.http://www.universitypressscholarship.com/search?f_0=keywords&q_0=Myanmar%20Sign%20Language
http://www.rohanaspecialschool.org/sri-lankan-sign-language-dictionary/http://www.rohanaspecialschool.org/sri-lankan-sign-language-dictionary/http://www.rohanaspecialschool.org/sri-lankan-sign-language-dictionary/http://www.universitypressscholarship.com/search?f_0=keywords&q_0=Myanmar%20Sign%20Languagehttp://www.universitypressscholarship.com/search?f_0=keywords&q_0=Myanmar%20Sign%20Languagehttp://www.universitypressscholarship.com/search?f_0=keywords&q_0=Myanmar%20Sign%20Languagehttp://www.rohanaspecialschool.org/sri-lankan-sign-language-dictionary/


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Resettlement Department of Social Welfare, working with the Schoolfor the Deaf Children Mandalay, published the Myanmar SignLanguage Basic Conversation book, along with the Sign LanguageDictionary Parts 1 and 2 on December 1, 2007.11 There is some

evidence that there is a mix of American Sign Language and JapaneseSign Language used at different schools and facilities for the Deaf andhard of hearing. 12

The Philippine Sign Language or Filipino Sign Language is thenational deaf sign language of the Philippines, and has been stronglyinfluenced by American Sign Language. Also there is a stronginfluence of Signing Exact English which is used in most of the schoolsfor the Deaf in this country.13 The Philippine National Association ofSign Language Interpreters was established on May 21, 2011.

People with intellectual disabilities are people whose ability to learn isaffected, they may be slow or limited in their learning processes, andmay not be able to apply what they learn. This type of disability isoften hidden. It can vary in severity from very mild to an inability to

read or write or understand spoken or written communication.

This can affect a persons independence, resulting in areliance on family or social support networks. Safety can becompromised, especially in a disaster evacuation.Sometimes an individuals behaviour may be unpredictableand may appear irrational. Confusion, lethargy, apathy,anxiety and phobias can cause people to refuse to followdirections.

11School for the DeafMandalay.http://deafschoolmdy.com/signlanguage.aspx12Sign language in Burma: two Burmese finger spelling systems used in Yangon. Justin Watkins. 2010.http://eprints.soas.ac.uk/10275/13Sign Writing in the Philippines. http://www.signwriting.org/philippines/philippines02.html

Instructions or questionsshould be kept short andsimple, using a calm

voice.

Use gestures and body
http://deafschoolmdy.com/signlanguage.aspxhttp://deafschoolmdy.com/signlanguage.aspxhttp://deafschoolmdy.com/signlanguage.aspxhttp://eprints.soas.ac.uk/10275/http://eprints.soas.ac.uk/10275/http://www.signwriting.org/philippines/philippines02.htmlhttp://www.signwriting.org/philippines/philippines02.htmlhttp://www.signwriting.org/philippines/philippines02.htmlhttp://eprints.soas.ac.uk/10275/http://deafschoolmdy.com/signlanguage.aspx


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Intellectual and developmental disabilities can becaused by a condition that hinders or interferes withdevelopment before or during birth, or in the earlychildhood years. Iodine deficiency is the main cause

for potentially preventable developmental disabilityin childhood, as well as causing goitre and hypothyroidism in people ofall ages. It is, unfortunately, still quite prevalent in the Asia Pacificregion.

People with learning disabilities have difficulties with perception andtrouble professing information. Some people with learning disabilitieslearn better with visual processing, while others learn more easily withauditory processing.

Some people with intellectual disabilities or with a learningdisability may not be very aware or concerned about theirpersonal safety.

The characteristic difficulty of dealing quickly with questionsor instructions, slowed response times, and an inability toread, write or understand verbal communication may inhibita person from taking action.

A person could have a combination of disabilities. Some conditions,such as cerebral palsy, strokes and aging can result in a combinationof disabilities. Hidden disabilities vary and cannot be seen but can bevery limiting. These include epilepsy, breathing or heart problems.People with breathing and heart related disabilities are not easilyidentified. People with speech disabilities may also be difficult toidentify. An emergency is precisely the type of situation in which ahidden disability becomes revealed. Stressful situations can provokeincreased symptoms.

Some people with hidden disabilities worry that in an emergencysituation, they will not receive the assistance they require, especially ifthey have not told anyone of their disability. As their disabilities areinvisible, it is often assumed that they are capable of evacuatingindependently.

language to reinforceyour point, in a calmmanner.


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Older Persons3.3.

Older persons are often concerned that they may no longer be asindependent as they once were. This is a huge issue as older peoplewho live mostly in rural areas are frequently poor, the majority arewomen and most of them are widowed.14

Persons who are older may not hear a siren, audible announcementsor be able to go down steps quickly, cross uneven ground, or evacuatewithout some assistance. Older persons frequently need a little moretime and guidance from their family.

Generational integration is common place whereby older persons areoften part of a larger family unit that includes children andgrandchildren.

14 International Workshop Human Rights of Older Persons in Asia-Pacific Region Focus on Health and

Welling Being: Summary of Proceedings and Outcome Statement. International Federation on Ageing.

Centre for Gerontological Studies. Thiruvananthapuram, India 2012.


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4. Inclusive Disaster Risk Reduction

National and local governmentdepartments responsible fordisaster preparedness forsuch multi-hazard events astyphoons, floods,earthquakes, etc. are underincreasing pressure as the

incidents of disasters continueto occur around the world.The pressure is, of course, todevelop mitigation measuresand

develop appropriate preparedness plansthat will reduce the mortality rates of their

citizens and constituents. The mitigationmeasures should be designed for multiplehydro-meteorological events.

Mainstreaming people with differences inage and ability into preparations foremergency situations, (i.e. disastermanagement and disaster risk reduction) isnecessary to ensure the wellbeing ofeveryone. While people with disabilities do

not have special needs, it is true that theycan face additional barriers in emergencysituations. The removal of these barriers can be accomplished withthe development of standard operating procedures that plan for

Mortality rates are always highest for

those most vulnerable citizens.Much work is now being done toexamine that population that includeswomen, children, persons withdisabilities and older persons. Themost successful programs haveresulted from the realization that theworlds population is made up ofpeople with differences, differencesin age, literacy, education, mobility,and financial resources. It is normalto be different, everyone is.

Figure 11: Wheelchair user perished in tsunami becausethey could not access the shelter. Photo: Japan Times


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accessible early warning systems, accessible communications andaccessible transportation and housing.

Lets examine some of those barriers. People with mobility disabilitiesmay move slower and may use a mobility device such as a wheelchairor crutches. People who are deaf or hard of hearing may not be awareof the early warning system, if it is only audible. People who are blindwill likely need some assistance with moving safely in a dangerousenvironment. People with cognitive disabilities may need assistanceto understand a situation and seek a safe place.

Figure 12: Flooding in Indonesia after the tsunami. Photo: AP/ Fili Sagapolutele

Not only do these barriers pose a potential risk to personal safety but itmust also be recognized that persons with disabilities are likely atfurther risk to mortality due to new challenges caused by the disaster,such as lack of access to health care, difficulty maneuvering in a newand unpredictable environment and lack of access to personal support

and transportation. This is why they are at increased risk and sufferhigher mortality rates than the general population.

Inclusive disaster risk reduction cannot be accomplished with minimaleffort. It takes a concerted effort, including consultation with the


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community of persons with disabilities to ensure that standardoperating procedures, training, communication, health care and

accessibility of early warnings and assistive technologies are all inplace. The disability community is aware of the challenges, successesand short-comings in existing procedures. They can participate in thedevelopment of disaster recovery procedures, disaster preparednesscommunity public education sessions, and they can provideinformation on their own personal preparedness readiness.

Additionally, emergency personnel, broadcasters and health careproviders must also understand their responsibilities and becomfortable carrying them out. Service organizations such as hearingaid or wheelchair providers and government departments that areresponsible for service for persons with disabilities may also be able toprovide information on the current state of preparedness of thecommunity and challenges that they face.

Registry of Persons with Disabilities4.1.

An inventory or registry of persons with disabilities is an effective wayto identify people within a community that might need assistance in an

emergency. Emergency response organizations have, in somejurisdictions, created a database of people who have self-identified asneeding some assistance. In other jurisdictions, civil societyorganizations or disabled persons organizations have taken on thistask.

The registry program must be strictly confidential and maintain theprivacy of personal information. A public awareness campaign,piggybacked perhaps on municipal mailings or announcements,should be designed inviting people to register their names, location

and individual needs. This important information should be enteredinto a database that can be accessed by an emergency responseagency in the event of an emergency. It should be stressed that it isthe responsibility of the people registered to update their information ifthey move or if their needs change. A more informal version of this


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may exist in smaller communities with community leaders assumingthe responsibility of identifying those who need assistance in an

emergency.

Personal Disaster Preparation Kit4.2.

People with disabilities and olderpersons and their families mustdevelop an individual personalsurvival kit so that they areprepared and so that they reduce

dependence on others during anemergency.

The personal survival kit should include:

A communication plan: a mobile phone, a flag orpersonal alarm or sign to alert people that help is

needed. A list of emergency contacts of family and friends who

will check on them and will provide assistance ifnecessary.

Medical supplies and a supply of personal medications.There are internet sites and social media that have setup systems to communicate with family and friends inan emergency. See Section 11 on Information andCommunication Technologies.

Water, matches, a battery-powered flashlight and driedfood supplies.

Blankets and extra clothing.

Figure 13: Emergency preparedness kit.Photo: iStock


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Tools and extra mobility devices, personal items suchas hearing aid batteries.

Collaboration4.3.

National Disaster Management Agencies, state and local agencies andInternational Aid Agencies all have an important role to play inreducing deaths and injuries in a disaster. Every country has a

The most importantlifesaving strategy forpeople with disabilities isto work together withthose developing disasterpreparedness plans.

Figure 14: Disaster Survival Products (Japan) Photo: AqeelQureshi


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different organizational structure but there should always beinvolvement of people with disabilities.

The most important disaster risk reduction strategy is for the disasterreduction and preparedness agencies and departments to worktogether with the community of personswith disabilities and olderpersons. Everyone has important input. Disaster Risk Reduction(DRR) agencies understand the meteorological and hydrologicalconditions and effects of climate change that affect the forecasting ofpotential disasters. They are responsible for developing national anddistrict strategies for predicting and mapping coastal hazards anddesigning early warning systems and disaster recovery programs.

Interestingly, it is has been the authors experience that policies andprocedures that have been designed to accommodate persons withdisabilities and older persons have had a beneficial impact on themortality rates and well-being of all citizens.

Twin track approach4.4.

While DRR programs developed by mainstream disaster management

centres are designed to address situations for all citizens, it must berecognized that the removal of some of the barriers that face personswith disabilities will require specific consideration and mitigationstrategies that address their accessibility and personal needs. Byworking together these strategies can be integrated into themainstream standard operating procedures.

Standard Operating Procedures4.5.

Policies and procedures for both early warnings

and disaster risk reduction differ from community tocommunity, depending on geographicconsiderations, political will, the availability offinancial resources, the types of disasters thatoccur and cultural reasons. While this must be a

Working together, themortality rate of the mostvulnerable can bereduced.


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consideration, it is recognized that the nature of disability remains thesame in all communities. Policies and procedures for both early

warnings and broadcasting may also differ from community tocommunity.

The challenge faced by providers of emergency warnings, media,disaster managers, and coastal communities is understanding thesimilarities and differences among different coastal hazards and the

characteristics of the early warnings that areissued. The challenge faced by everyone,but especially persons with disabilities, isensuring that there is an early warningsystem that they will be able tohear/see/understand and identify as a hazardwarning. Warnings might vary from theposting of a notice in a community centre, tothe hoisting of a red flag, to broadcastingwarnings on television and radio to a word ofmouth information program.

Work is being completed by UN ESCAP to identify different types of

coastal hazard early warning systems and reviewing and documentingthe relevant existing standard operating procedures in response todeveloping recommendations for synergies. These synergies will

make the existing early warning systems fullyoperational for the use in multi-hazardscontexts.

Figure 15 Early WarningSystems: Siren Strobe

Photo: Northland RegionalCouncil


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5. Disaster Management Agencies

Figure 16: Workshop program for Reduction of Vulnerability to Floods in Thailand hosted by ADPC atTha Luang Municipality of Ayutthaya province, Thailand. Photo: CBM

Some of the responsibilities of the Disaster Management Agencies(DMA) include:

Hazard mapping.

Drills and simulations.

Post disaster analysis of gaps in disaster managementpolicies and practices.

Auditing the accessibility of potential and existing shelters.

Preparing a plan to provide transportation to isolated people.

Developing a pyramid system to alert isolated people.

Identifying capacities and responsibilities of differentstakeholders.

Conducting risk and vulnerability assessments.

Identifying and promoting the legal framework for inclusionof persons with disabilities.

Developing public awareness campaigns about inclusion ofpersons with disabilities in preparedness strategies.


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Assisting organizations of persons with disabilities to designpersonal emergency preparedness kits.

Working with emergency relief agencies to developstrategies to ensure that people with disabilities are able toaccess food and water.

Public Education5.1.

DMAs should design public educationprograms to reach vulnerable people:

Consult with organizationsof persons with disabilities.

Use a variety of formatssuch as large print, radio,television, electronicformats, communitymeetings, person-to-personcontact to promoteinformation on what to do

before a disaster occurs orduring a disaster.

Assess mainstream publiceducation materials to see how it can be improved to reachvulnerable people.

Hire a sign language interpreter for community meetings.

Public Education of First Responders5.2.

First responders, emergency and fire personnel and disastermanagement staff should become familiar with how to include personswith disabilities in disaster preparedness. This Guideline Manual canbe very useful in understanding issues and designing mediationstrategies. A training program for first responders and emergencydisaster management staff is an excellent idea. International

Figure 17: A wheelchair user receives helpdescending a staircase in an emergency.Photo: Betty Dion


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organizations of persons with disabilities have designed some of thesepublic education training programs.

Long Term Health, Rehabilitation and Personal Care5.3.

Support

Unfortunately, the sad reality is that disasters such as earthquakes,tsunamis, fires and armed conflicts create a whole new population ofpersons with disabilities. This results in an inordinate need for healthand rehabilitation care. Increased numbers of persons with medicalneeds and persons with disabilities will require that an inclusive,

comprehensive and stable long term health strategy be developed andimplemented. International organizations of persons with disabilitiesexperienced in post disaster rebuilding are an excellent resource indesigning long term rehabilitation and personal support care for personswith disabilities.


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6. Early Warning Systems

Figure 18: Tsunami Early Warning Sign. Photo: Newswire Team/Whitireia Journalism class

An early warning system (EWS) is an information system that providesinformation on potential hazards that might evolve into a disaster. Theobjective of an EWS is to monitor the first signs of emerging hazards inorder to be able to trigger early disaster warnings to facilitate appropriateresponses by individuals and communities to reduce or mitigatetheir risk.

It is necessary to ensure that early warning systems reach persons withdisabilities and comply with the United Nations Convention on the Rightsof Persons with Disabilities.

As disasters have become more of a frequent phenomenon worldwide, ithas become clear that persons with disabilities have been ignored andexcluded from consideration in the design of the disaster early warnings.


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Possible reasons include: (1) Lack of accessible early warnings (2) Lackof inclusive disaster preparedness and procedures, (3) Lack of access to

information and communication technologies in disaster responses, (4)Lack of anti-discrimination legislation, (5) Lack of understanding on howto reach persons with disabilities and (6) Lack of will to make changes.

Early warnings must be provided in both visual and audio formats toinclude the wider community. These EWs need to be developed andfield tested during the preparedness phase, with the support andparticipation of persons with disabilities. Accessible EWS must be builtaccording to the guideline mandated by UNCRPD Article 9,

Accessibility1. See Section 1.

Guiding Principles on Early Warnings and Communications6.1.

Access to reliable, accurate and timely disaster early warnings at alllevels of society is crucial. Information needs to be readily collected,processed, analyzed, and shared in order for individuals andcommunities to respond effectively. Without appropriate information,people are often forced to make crucial decisions based on unclear andconflicting reports. Early warning systems are well recognized as a

critical life-saving tool for floods, earthquakes, storms, tsunami andother hazards.

The following are the guiding principles for early warning systems:

Early warning systems need to be a coherent set of linkedoperational procedures established atnational and locallevels of public administration and disaster managementauthorities.

The early warning process should incorporate best practices

to

communicate warning and advisory information to allmembers of society, including persons with disabilities, so thatthey may take

appropriate actions.

1UNCRPD, Article 9, Accessibility http://www.un.org/disabilities/default.asp?id=269


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Local communities must be able to understand and respondto advisory information; they should have sufficient

knowledge and training about disasters and emergencies towhich they are exposed. This will decrease the possibility ofinjury, loss of life and damage to property and will greatlyassist persons with disabilities.

The local levels of government must have primary responsibilities forearly warnings for producing detailed information on risks, acting on

the basis of warnings, communicating warningsto those individuals at risk and, ultimately, for

facilitating appropriate community actions toprevent loss and damage. The use of symbolsis recommended.

For the system to be effective, all aspects ofthe design, development and implementation

of early warning systems require the substantive involvement ofindividuals and communities, including persons with disabilities at localand national levels.The involvement of persons with disabilities in pre-

disaster planning will ensure that early warnings are understandableand accessible toall.

Early warningcomponents

Effective early

warning systemscan lead to

substantivebenefits for allaspects ofdisastermanagement: risk Figure 19: Tsunami prediction and monitoring. Image Der Spiegel /

NOAA


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assessment analysis, monitoring, predicting the location andintensity of the potential disaster, communicating alerts to authorities

and to potentially vulnerable populations who may have to respond tothe disaster.

An EWS is composed of the following early warning components:

Risk Assessment

Risk assessment provides essential information to set priorities formitigation and planning strategies including the design of the EWS.

Monitoring and Predicting

Systems with monitoring and predicting capabilities provide timelyestimates of the potential risks faced by individuals, communities, andthe environment.

Disseminating Information

Communication systems are needed for delivering warning messagesto the potentially affected locations to alert local and regionalgovernmental agencies, including persons with disabilities. Themessages need to be reliable, simple and in a variety of formats to beeasily understood by authorities and the public. Different formatsinclude audio, visual, print and electronic.

Methods of Delivery of Accessible Early Warnings6.2.

Community Early Warning Systems

Community Early Warning Systems (CEWS) are developed in the localcommunities and managed by that community. It is based on a"people-centered" approach that empowers individuals andcommunities, including people with disabilities. It provides thosethreatened by disasters/hazards to act in sufficient time and in anappropriate manner in a bid to reduce the possibility of personal injury,loss of life, damage to property and the environment. CEWS is a


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protocol in which at-risk communities are actively engaged in theidentification, analysis, treatment, monitoring and evaluation of

disaster risks in order to reduce their vulnerabilities and enhancecapacities. This means that people who are at the heart of the decisionmaking and implementation of disaster risk reduction protocols havethe control of the EWS and can ensure that persons with disabilitiesare included.

In the last 10 years there has been substantial research andinvestment in EWS. This has contributed greatly to improving theeffectiveness of early warnings, and developing and refining newmethodologies, approaches and technologies. However, very little hasbeen done to make disability inclusive EWS in the Asia Pacific Region.The majority of early warning and disaster announcements aredelivered primarily in an audible format; this does not meet the needsof persons who are deaf or hard of hearing and others.

Volunteers

Volunteers can godoor to door by usingmotorcycles, autorickshaws or bicyclesto alert those whomay not receive anearly warning. Thesevolunteers can warncommunity memberswith disabilities aboutdisaster/hazards.This personal

communication canbe very effective inreaching people whoare isolated in thecommunity.

Figure 20: Bangladesh disaster preparedness volunteermaking audible announcement with warning flags inbackground Photo: Claudia Janke. British Red Cross


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Sirens

Sirens are devices that transmit different sounds and voice messages.They are either electro mechanical or electronic. Announcements onelectronic systems can be stored on pre-recorded disks or chipscontaining short instructive early warning alerts.

Sirens are used to provide an early warning alert to potentiallythreatened populations out of doors. Sirens are still the most effectivemethod to warn people outside in the shortest amount of time and can

reach isolated areas (e.g. beaches). They can also reach populationsthat have limited access to other warning devices, such as telephones,cell phones, televisions and radio. However, sirens are not designed towarn people who are deaf or hard of hearing and people withintellectual disabilities. For this population EW notifications can be

provided in other formats.

It is important to note that sirens havelimited capabilities for messaging. Whenactivated, persons with disabilities andothers will be expected to turn to anothersource of information such as a radio or atelevision station or help from familymembers for further instructions.

Figure 21: Storm early warning flag. Photo: LindaTrischitta

Flags

Flags can be raised to indicate that an emergency warning has beenissued. Different color flags can be assigned to different disasterwarning messages. Flags will only work if persons with disabilities andthe general community are educated about their meanings.


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Electronic Signs

Electronic signage systems can bevery useful before, during and afterdisasters for providing information topeople who are deaf and hard ofhearing. These systems form animportant visual EW to supplementaudio systems, especially in outdoorsituations such as stadia, airports,and road and highway messageboards. They can be a goodcommunication strategy to reachpersons with hearing disabilities thatare walking, or driving a car that maynot hear sirens. The messages may contain information such as:Earthquake is coming orTsunami Alert, Proceed South Immediately,Listen to Radio, Flood Risk Area, No Entry, etc. Electronic signs canalso be utilized to direct people toappropriate pedestrian evacuation routes

and give emergency status updates atstaging areas.

Television and Radio

Radio and television are among the bestmass media for distributing generalinformation to a wide area, includingdisaster early warnings and updates.

Television is a major source of news anddisaster information for millions in developing countries. Of course,access to power and ownership of a television is not always possiblein some regions.

Figure 22: Electronic roadside early warningsignage. Photo: Jeff Barnard (AP)

Figure 23: Captioned TVemergency broadcast


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People with hearing, vision and otherdisabilities will not have access to

accessible EWs unless broadcastersincorporate inclusive accessiblebroadcasting. Accessiblebroadcasting includes closedcaptioning, audio description, signlanguage interpretations and easy tounderstand content. Thesestrategies can reduce barriers toaccessing early warnings for persons

with disabilities. See Section 10 onAccessible Broadcasting.

The effectiveness of radio andtelevision is very substantial in developing countries and ruralenvironments and can be used to quickly send out a warning toindividuals and communities. Radio communication systems can alsobe strengthened by incorporating speech to text capabilities atcommunity based information centers.

There is a method to make radio early warningsaccessible to people who are deaf or hard ofhearing. This can be done via captioning -speech to text conversation data which can bedisplayed on a suitably equipped radio. Digitalradio can now include data for speech to textdisplay in the receiver. A text display is one ofthe most effective ways for people who are deaf

or hard of hearing to receive the radio earlywarning.

Figure 24: Captioned radio, with refreshableBrailler. Photo: NPR Labs

Figure 25: Video phone


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Radios are also available with strobe lights, pillow vibrators or Brailledisplay2and assistive technologies that can alert people who are deaf,

hard of hearing and people who are deaf-blind about a potentialdisaster.

Telephones

Telephones play an important role in warning communities about animpending disaster. For example, simple phone warnings saved manylives during the 2004 Indian OceanTsunami. Telephone EWS are particularlyeffective in sending disaster warnings to

individuals and communities.

Mobile Telephones

Short Message Service (SMS) is availableon most mobile phones that permit thesending of short EW messages toeveryone including people who are deafand hard of hearing and even landlinetelephones are capable of SMS. People

with vision disabilities can read SMS EWmessages with the help of Screen Readersoftware3.

Captioned Telephone and VideophoneTelephones with a video screen are capable offull video and audio transmissions forcommunication in real-time for people who aredeaf and hard of hearing. Telephones, bothlandlines and mobiles are capable of adjusting

the volume, transmitting video as well as text.

2Braille Display http://en.wikipedia.org/wiki/Refreshable_braille_display

3Screen Reader is a software application that attempts to identify and interpret what is being

displayed on the computer screen with a text-to-speech synthesizer.

Figure 27. Amplifiedcaptioned telephones.Photo: Vitac

Figure 26: SMS Alerts andwarnings. Photo: VirtuasoftCorp.


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As an alternative to caption relay services for the deaf and hard ofhearing, there is a telephone that will automatically caption theincoming dialogue on a land line. Amplified captioned telephones havea monitor that transcribes the dialogue from the other end ofthe connection in a high-contrast, large-print screen. If the user is notthere to pick up the call, some models of the phone will even record amessage in text!

Cell Broadcasting

Most mobile systems support a feature called cell broadcasting. Apublic disaster early warning message text can be sent via text to thescreens of all mobile devices with such capability. It can betransmitted to any size of cells, ranging from a single cell to the wholecountry. People who are blind and have low vision can also accessthese warning by using a screen reader.

Software and Applications

A variety of software and mobile applications are available that enablepeople to use a computer or smartphone to convert speech-to-text andtext-to-speech4. For example, programs such as Dragon Dictation5isan easy-to-use voice recognition application6that allows one to speakand instantly see the text, it can then be stored on the computer, tabletand smartphone, or be sent by cell broadcast, SMS or email. Thissoftware is frequently used by persons with mobility disabilities.

4Text-to-Speech (TTS) is the artificial production of human speech. The computer system used to

achieve this is called a speech engine.

5Dragon Dictation http://www.nuance.com/dragon/index.htm

6Voice recognition software programs work by analyzing sounds and converting them to text.


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Internet

In the present era of electronic communication, the internet provides auseful platform for disaster mitigation communication and warnings. Anumber of groups, including several national meteorological services,are using the internet for real-time dissemination of earthquake,storms, flood, and tsunami early warnings and information. This earlywarning information must be provided in accessible formats, with ascaptioning, sign language interpretation, audio CDs, mp3 files andPodcast. The website contents must be accessible as per WebContent Accessibility Guidelines (WCAG) 2.07and available indifferent languages. If the website has not been designed to beaccessible, persons who are blind will not be able to read informationon the site with their speech reading software.

Pop-up Early Warnings for desktop/laptop

One of the options for early warningproviders to consider is software thatsends warning messages to "pop-up" on

the desktops and laptops of users. Thisis an excellent feature that can provideinformation to those that need extra timein order to mobilize assistance oraccessible transportation.

7Web Content Accessibility Guidelines http://www.w3.org/TR/WCAG20/

Figure 28: Emergency message distributedvia computer. Photo; AlertUs / ThompsonRivers University


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This software automatically polls a Common Alerting Protocol8

(CAP)message server and downloads the messages it finds. Only themessages that meet user-specified criteria are brought to the user'sattention. These early warning messages come with an option toinclude audio, video, or graphic elements, all contained in the CAPmessage. This technology utilizes LAN and WAN networks to delivershort messages, often less than about 120 characters in length,typically in real time. People who are blind and low vision may get thiswarning with the help of screen reader software9. This is an excellentfeature.

E-mail

Another method used to warn people with disabilities is to send themearly warnings by e-mail so that they can receive it on any devicecapable of receiving emails.

Internet Protocol Captioned Telephone Service

This is similar to video relay service (rather than a telephone network)to provide the link and captions between the caller with a hearingdisability and the communications assistant. The recipient must haveinternet access and power to receive this message.

8Common Alerting Protocol https://www.oasis-open.org/committees/download.php/6334/oasis-200402-cap-core-1.0.pdf


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A Universal Design approach will ensure consideration for everyonewhen planning access to emergency information before, during and

after an emergency; as well as access to sheltering facilities, food,water and sanitation facilities and resettlement housing.

Universal Design is based on seven design principles:

1) Equitable Use

2) Flexibility in Use

3) Simple and Intuitive

4) Perceptible Information

5) Tolerance for Error

6) Low Physical Effort

7) Size and Space for Approach and Use.

Accessibility of the community is the key to integration and inclusion ofpersons with disabilities. An accessible shelter or school will be ableto serve all of the community. Designing a shelter to make itaccessible does not increase the cost substantially; it has beenestimated to cost about 1% of the cost of the building. Conversely, notproviding accessible shelters puts persons with disabilities, theirfamilies and emergency personnel at greater risk of death and injuryas the community struggles to recover from a disaster. Without anaccessible community, people with disabilities face isolation from the

community, which is the biggest obstacle that they have to overcome.

This section on accessibility addresses some technical design issuesthat contribute to an accessible environment. A great deal of

Accessibility of buildings and

roadways is an importantdisaster mitigation strategythat should be part of everycountrys disaster reductionstrategy.


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information is available from the internet and from the GAATESwebsite (www.gaates.org)on technical specifications for accessibility

of architectural elements such as doors, ramps, and signage and toiletfacilities. The International Best Practices in Universal Design: AGlobal Review1document which compared accessibility standards andcodes around the world is available in English, French, Spanish,

Arabic and Serbian from the GAATES website.

Increasingly countries andstates are developing buildingcodes and standards thataddress accessibility, includingtechnical specifications forentrances, doors, clear paths oftravel, communication andwashroom design. In mostcountries, compliance with abuilding code is mandatory,and compliance is monitoredand enforced through the useof building and occupancy

permits. Where there is non-compliance, financial and otherpenalties may be levied.

Sri Lanka

Sri Lanka does not have an official building code; however thePlanning and Building Regulations of Colombo were issued under theUrban Development Authority Law in 1999 and apply only to buildingsin the capital city Colombo. The regulations only contain general

requirements and controls for building and construction and no specificguidelines. Most other cities and towns in Sri Lanka do not have anymandatory code regulating building construction.

1International Best Practices in Universal Design: A Global Review, Betty Dion Enterprises Ltd., 2006

Figure 31: Australia is working with Indonesia toimprove accessibility at schools and public facilities.

Photo: AusAID
http://www.gaates.org/http://www.gaates.org/http://www.gaates.org/


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Myanmar

In 2012, a project to develop the first draft of the Myanmar NationalBuilding Code was organised by the Ministry of Construction, UnitedNations Human Settlements Program and Myanmar EngineeringSociety. Representatives from all relevant government departments aswell as private sector experts, engineers and other stakeholders wereable to participate in developing the draft.

The project was undertaken because theGovernment of Myanmar, in light of destructioncaused by past natural disasters, recognized

that the development a building code was animportant element of disaster preparedness.They recognized that implementing a buildingcode and ensuring compliance with the codewould improve disaster risk reduction.2

Philippines

In December 2007, Presidential Decree (P.D.)No. 1096 was issued, making provisions for the

adoption of the National Building Code of thePhilippines (NBCP), replacing the Republic Act(R.A. No. 6541) of 1972 entitled "An Act to Ordain and Institute aNational Building Code of the Philippines.

The NBCP provides only limited technical specifications for makingbuildings accessible.

In addition to the National Building Code of the Philippines, theAccessibility Law (Batas Pambansa Bilang 344) was passed in July of

1982. The Accessibility Law states that:

2(Myanmar Times, Saturday, 03 November 2012.http://www.mmtimes.com/index.php/national-news/2858-myanmar-

s-draft-building-code-bid-to-improve-risk-reduction.html

Universal design means thedesign of products,

environments, programmesand services to be usable byall people, to the greatestextent possible, without theneed for adaptation orspecialized design. Universaldesign shall not excludeassistive devices for particulargroups of persons withdisabilities where this isneeded.
http://www.mmtimes.com/index.php/national-news/2858-myanmar-s-draft-building-code-bid-to-improve-risk-reduction.htmlhttp://www.mmtimes.com/index.php/national-news/2858-myanmar-s-draft-building-code-bid-to-improve-risk-reduction.htmlhttp://www.mmtimes.com/index.php/national-news/2858-myanmar-s-draft-building-code-bid-to-improve-risk-reduction.htmlhttp://www.mmtimes.com/index.php/national-news/2858-myanmar-s-draft-building-code-bid-to-improve-risk-reduction.htmlhttp://www.mmtimes.com/index.php/national-news/2858-myanmar-s-draft-building-code-bid-to-improve-risk-reduction.htmlhttp://www.mmtimes.com/index.php/national-news/2858-myanmar-s-draft-building-code-bid-to-improve-risk-reduction.html


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no license or permit for the construction, repair or renovationof public and private buildings for public use, educational

institutions, airports, sports and recreation centers andcomplexes, shopping centers or establishments, public parkingplaces, work-places, public utilities, shall be granted or issuedunless the owner or operator thereof shall install andincorporate in such building, establishment, institution or publicutility, such architectural facilities or structural features as shallreasonably enhance the mobility of disabled persons such assidewalks, ramps, railings and the like.

Anthropometrics

Persons who use mobility aidsand devices such as wheelchairs,walkers and crutches require aminimum amount of space tomanoeuvre about independentlythrough the built and outdoorenvironments.

For example, a person who usesa wheelchair requires a clearspace to turn around, usually aminimum of 1500 mm x 1500 mm.They need some space besidedoors so that they can positionthemselves beside the door sothey can pull the door open.

Persons who are blind who use a long white cane and people who usecrutches may also need a little additional space to manoeuvre in thepath of travel.

Figure 32: Space requirements varydepending on the size of the wheelchair.Photo: Okke Ornstein


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Persons with vision disabilitieshave safety concerns regardingobjects that might be in their waysuch as the underside of stairs,tree branches, fountains, cabinets,telephones and low hangingobjects such as signs or even tentpegs that can trip them.

Accessibility of the Built Environment7.1.

The following architectural elements will enable

basic accessibility for persons with disabilities and

older persons. These include the exterior public

realm (roadways), entrances, doors, ramps, stairs

and washrooms. In addition to information on

these basic design elements, this section

addresses accessibility of key community facilities

such as access to water, sanitation and emergency

shelters.

Roadways

A roadway or sidewalk that is free of obstacles will allow access forpeople who use mobility devices such as wheelchairs and crutches.

The ability of people toaccess pedestrianfootways and rivercrossings is especiallycritical in rural areaswhere walking, or using atwo-wheeler or animal-drawn transport is themain means of travel.

Figure 33: Overhanging tree hazard for blindpeople. Photo: Japanese Society forRehabilitation of Persons with Disabilities


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Understandably, during a seriousdisaster, roadways are apt to be

blocked to everyone, but peoplewith mobility disabilities are notable to climb over rubble and willneed assistance. See Section 8on Evacuation Techniques.

When people have to be assistedby emergency response personnelit (1) takes additional time (2)requires that people re-enter themost dangerous zones and (3) itrequires that emergency personnelknow where to go. Obviously, thissituation should be avoided wherepossible.

Pedestrian pathways should be:

Free of steps and stairs

Wide enough to accommodate awheelchair

Free of obstacles such as projectingbuilding elements

If sidewalks are provided, they should havecurb ramps

Identified so that people know where to findthe route

Figure 34: Life in camps is hard for persons withphysical and mental disabilities as they arecompletely dependent upon family for surival.Photo: Saiful Huq Omi


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Entrances

Entrances must be at ground level or be equipped with a ramp or easyslope. They should also be clear of obstacles (1000 mm wide).Entrances should be easy and intuitive to locate for everyone,including for persons with a vision or cognitive disability. A canopy orother covering at an entrance not only makes the entrance easy tofind, but it can prevent rain and provide coverage to persons enteringand exiting the door.

Entrances should:

Be easy to locate

Be connected to an accessible roadway

Have a clear path that has a smoothsurface

Be at ground level or have a ramp

Have curb ramps where sidewalks exist

Figure 35: Flood shelter with wheelchair ramp on raised land inBangladesh. The shelter doubles as a school. Photo: James Pender


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Stairs, Ramps and Handrails

Figure 36 Shrine with accessible ramp. Photo: Betty Dion

Stairs are a huge barrier to many persons with mobility disabilities andolder persons, especially if they use a wheelchair or crutches.

Stairs, ramps and handrails need to be designed so that they are safeand usable to everyone in a community. Using ramps instead of stairsprovides an inclusive means of access to buildings such as sheltersand community washrooms and to facilities such as public waterpumps and food distribution centres.

Ramps should have a safe slope, no greater than 1:12. Rampssteeper than 1:12 can be dangerous as a wheelchair might tip overbackwards. Ramps should also have a side edge or handrail toprotect someone from wheeling off the edge.


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Both stairs and ramps should beequipped with handrails to providesupport to persons going up and down.The handrail should be round or oval sothat it provides a safe and sturdy grip,and it should have a smooth surface so

that the persons grip is not interruptedand so they are not injured.

Handrails should be at a consistentheight above each step (865-965 mm)and above the surface of the ramp forthe entire length of the stair or ramp.This provides consistency for persons

who rely on the handrail for support.

There are a few basis elements in the design of aramp:

It should be at least 900 mm wide

It should have a slope no greater than 1:12

It should have edges on the sides so people donot wheel off the side

It should have enough room at the top andbottom to provide a safe landing so someone can

turn It should have handrails

Figure 37: Handrail design. Drawing: City of

Ottawa Accessibility Design Standard.


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Doors

Doors at entrances and throughout a building should be easy to openwith minimal resistance, but most importantly, be wide enough toaccommodate persons using a wheelchair, walker or personal tricycle.Doors should have a clear opening width of at least 800 mm, and havespace adjacent to the door to enable people who use wheelchairs topull or push the door open.

Doors should:

Be easy to open

Be wide enough (800 mm)

Have a latch or handle that is easy to operate

Have space beside the door to enable peopleto easily pull or push the door open

Figure 38: Clear width of door and maneuvering space. Drawing: Outcrop


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Toileting Options

Sanitary facilities must be usable byeveryone, children, people withmobility disabilities, older persons andpeople who need assistance. This isan extremely important safety andhealth issue. Lack of accessiblesanitary facilities will compromise thehealth of people with disabilities andolder persons and may contribute tothe spread of disease, thus impactingthe health of the community at large.

Temporary accessible toilet facilities are available and should be partof all post disaster equipment supplied by aid organizations. Donoragencies should ensure that they require accessible sanitary facilitiesin all their post disaster rebuilding projects.

Sanitary facilities vary from the veryelementary latrine to a toilet room with avariety of grab bars.

Sufficient space should be provided to allowsomeone to enter the sanitary facility andposition themselves to transfer over thelatrine, commode or toilet. Privacy is aconsideration so it is important to provideenough space to store a wh

didrr guideline document final 2014 05 22

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