Report of the Online Forum on Disabled and other Vulnerable People in Natural Disasters
June 2006
World Bank Disability & Development Team (Human Development Network)
In collaboration with
World Bank Institute's Multimedia Center, Center for International Rehabilitation, Leonard Cheshire Centre of Conflict Recovery, University College London
Index
Executive summary
Introduction
First Week: “Disaster Preparedness & Mitigation”
Emergency Plans
Training
Evacuation
Early emergency communication systems
Shelter
Registration
Second Week: “Emergency Response/Relief”
Engaging Stakeholders
Understanding and responding to diversity within the population of people with disabilities - Women, Children, Seniors, other vulnerable populations
Communication & Mobility / Technology, use of technology
Funding & where money goes, who decides - monitoring expenditure of financial commitments made during disasters
Third Week: Developing standards that are inclusive of all populations for relief and restoration
Main issues and problems of economic and social recovery and reconstruction
Identification of ongoing issues and challenges – especially mitigation
Examples of good practices
Lessons from poor practices
Networking
Final Comments and Conclusions
Appendix I: Disabled and other Vulnerable People in Natural Disasters e- Discussion List of Resources
Relevant publications and news
Relevant organizations, programs and projects
Other resources
Appendix II: Moderators’ Bios
Disabled and other Vulnerable People in Natural Disasters e- Discussion Summary
1
Forum Participants:
Number of Messages Posted:
Number of Resources Shared:
1st Week Moderators:
2nd Week Moderators:
3rd Week Moderator:
687 members
765
122
Maria Veronica Reina and Anne Hayes
Moira Jones and Ashok Hans
Maria Kett
1
Executive summary
As part of a larger knowledge sharing initiative started by the Global Partnership for Disability & Development after the December 26, 2004Tsunami, the World Bank held a three week online discussion on Disabled and other Vulnerable People in Natural Disasters.
Almost 700 participants from civil society, public and private sector of several countries around the world engaged in a very lively dialogue that clearly indicated that people with disabilities and other populations with specific needs should be included in all stages of planning, mitigation and reconstruction in order to guarantee equal access to disaster response and relief. Participants contributed a wealth of interesting first-hand experiences from training and disability awareness to recovery and reconstruction projects targeting specific vulnerable groups. Some of these experiences were identified as good practices.
To great extent the topics raised from different parts of the world reveal common concerns: lack of general awareness among all the different stakeholders including people with disabilities, existence of physical, communication, and cultural barriers, and the need to mainstream disability issues into disaster-related policies. In addition, participants raised a number of issues that are of particular concern to particular countries or regions, such us use of cell phones and other technologies as early warning system in more developed regions. Differing views on the necessity of registration of vulnerable populations for a successful preparedness and strategies for reconstruction highlighted that the priorities in disaster planning, relief and recovery for vulnerable populations vary significantly across regions and countries.
Overall, the more than 760 messages received also call the attention on the need of continuing and replicating a dialogue initiated in this forum in a sustainable manner.
Introduction
From May 22 to June 9, 2006 the World Bank organized an e-mail based electronic discussion on the issue of “Disabled and other Vulnerable People in Natural Disasters". The discussion was hosted by DevForum - The World Bank Platform for E-Discussions and Communities - and it was open to all interested parties; however intended participants needed to complete subscription in order to be granted with file access and e-participation.
The objective of this dialogue was to solicit informationand recommendations regarding disabled people and other vulnerable groupsin natural disasters. Participants worldwide enriched the online dialogue with valuable contributions. The discussion was fed by the active participation of experts on disability issues as well as emergency planners, responders and relief organizations and included people from students to government officials to representatives of NGOs (Non-Governmental Organizations) and DPOs (Disabled People Organizations). The e-discussion began on May 22 and ended on June 9, 2006. Each week of the three week e-discussion were dedicated to one of the following topics:
1st Week:“Disaster Preparedness & Mitigation
2nd Week:“Emergency Response / Relief”
3rd Week:“Short/Medium Term Social-Economic Recovery & Reconstruction (with mitigation)”
In order to facilitate the exchange, the posting was moderated and the discussion organized under subtopics. At the end of each day, the moderators summarized the key points of discussion.
The following conclusions, which are grouped by week, are the result of the debate. They will be made available to emergency and development agencies including the World Bank, policy-makers and civil society.
First Week: “Disaster Preparedness & Mitigation”
During the first week, the discussion focused on the topics of “Disaster Preparedness & Mitigation.” The subtopics proposed by the moderators were:
Day 1: Emergency Plans (by need, disaster, and setting)
Day 2: Training (first responders and community involvement)
Day 3: Evacuations and early emergency communication systems
Day 4: Registry and shelter design
Day 5: Recommendations and other areas not yet discussed
The following sections summarize the diagnosis of the situation and recommendations on the main themes addressed by the participants during the first week.
Emergency Plans
Most contributions highlighted the necessity of the inclusion of people with disabilities and other vulnerable group in the design of different stages of planning. In rural areas, where Community Based Rehabilitation (CBR) committees and other local based community organizations may be in place, disaster preparedness should be conceptualized and implemented with the involvement of all community members. Their participation is crucial to ensure equal access to disaster evacuation and relief. As a result, vulnerable groups and their specific needs are clearly identified while measures and facilities are adjusted to incorporate such needs. According to the participants, basic needs of vulnerable populations should be seen as the equivalent of the general population’s; however, there may be different requirements in fulfilling their needs. The participants concluded that evaluation and monitoring of the inclusion of vulnerable groups in preparedness should be also part of planning. Since all disasters are local, starting locally is always the best plan. Developing a bottom up approach to planning was the most accepted suggestion.
Key points for disaster planning for vulnerable population, especially people with disabilities include:
- equal access to shelter facilities
- equal access to evacuation/ transportation
- equal access to disaster clean up
A particular topic of discussion that attracted the interest of some participants was the incidence of medicine stock control policies on people with disabilities and older people in natural disaster situations. Restrictive policies should be reviewed and provisions made that would enable patients to more easily access medicine in cases of emergencies.
Another point was to extend the preparedness beyond the civil society- government partnership to increase participation of the local community. For relatively isolated communities, private sector involvement in response planning is critical. For example, fuel, food, and transportation are often supplied by the private sector. Consequently, there is a need to raise awareness of the local community and in particular the private sector on the specialized needs of people with disabilities and other vulnerable groups in situation of natural disasters.
Regarding the cost of including vulnerable groups into planning, some participants agreed that this process does not have to be costly for either national or local stakeholders, but instead requires planners to redistribute existing funds.
Finally, there was a general agreement that people with disabilities and other vulnerable populations must develop their own emergency plans as well as establish support groups at the community level.
Training
With regard to specific training on the inclusion of people with disabilities and other vulnerable population in emergency planning, there was a general consensus on a twin track approach: training vulnerable populations is as important as training emergency planners and responders from governmental and other agencies.
The majority of the participants referred to providing training in accessible format for people with disabilities and other populations. This consideration includes materials in Braille, audio versions, large print, use of sign language interpreters, plain language, etc. The need of delivering trainings in facilities that are physically accessible was also mentioned. In addition, people with auditory disabilities should be trained and, at the same time, encouraged to become volunteers, so they can help their deaf communities when interpretation is not available.
One of the communication tools for preparedness that was mentioned was a booklet highlighting the specific needs of the types of disabilities which could be used as a training and reference manual for disaster/relief personnel. This manual would also help to educate persons with disabilities and sensitize the general public as well.
Training of trainers was indicated as a good model for small towns and rural areas in order to enhance the capacity of disaster management committees and prepare a core team of trainers that can easily multiply the effects with limited resources.
Moreover, one of the e-discussion participants brought attention to the fact that families of disabled people often shy away from informing State officials about the existence of people with disabilities. As a result, issue often remains unaddressed at the locallevel.
Evacuation
When discussing evacuation of people with disabilities and other vulnerable groups, most participants said that emergency-preparedness drills should include real participation of people with disabilities and other vulnerable groups. Simulations or role play exercises where persons without disabilities take the role of disabled people should be avoided.
One participant indicated that persons with disabilities and other vulnerable groups need to be accommodated first not last.
Another aspect that was highlighted was the effect of the evacuation trauma on some populations, such as elder people and children. There is a need to raise awareness of the general population of the trauma of people with disabilities caused by the lack of inclusion in initial planning.
Early emergency communication systems
The development of an end-to-end early warning system[1] is fundamental to save lives when disasters occur. Developing and maintaining all feasible channels of open communication within and across vulnerable groups. The inclusion of satellite and ordinary mobile phones was indicated as an asset for the majority of the participants. Many of them highlighted that the warning system should be accessible for people with disabilities and other groups, especially people who are deaf and deafblind.
There was an animated discussion about access to mobile phones for disabled persons. Although some participants had concerns about feasibility in developing nations, it was generally recognized that cell phones help inform relevant authorities, groups, neighbors, friends and relatives of the status people with disabilities in emergency situations. It was recognized that due to power outages the life of batteries are often short and therefore limit the usefulness of cell phones to the initial stages of the disaster.
A participant presented the proposal to establish a 24-hour hotline for disabled people to call the local government councils. Other participants stated the need to disseminate information on locations of potential assistance and bring awareness to the procedures that one should follow in the case of emergency since many people with disabilities are not aware of the available resources or plans.
Furthermore, many participants shared some interesting experiences regarding communication and information systems related to emergency planning for people with disabilities. For example, as response to the need for information on evacuation strategies for people with disabilities, a tool kit was developed in Canada with the cooperation of disability organizations. The kit includes information on specialized transportation, evacuation devices and evacuation strategies. It also included a publication on emergency sign language and information on technical aids, general introduction to fire and emergency preparedness. This kit is available at cost and it could be replicated and adapted for other environments/circumstances.
In other case cited, the Disaster Office has linked with the Council of/for Disabled Persons to build a data base for emergency purposes, so the specific needs are included in the system; the information is shared with the teams on the ground.
Shelter
The majority of the participants that made contributions about shelters pointed out that shelters should become accessible for people with disabilities and should eliminate all the barriers that could prevent people with disabilities and other groups from the provision of services. Some of the identified barriers include:
- Lack of physical access to the facilities
- Lack of accessible communication and communication in alternative languages and formats
- Blocked or nonexistent disabled parking
- Blocked accessible paths by parked law enforcement vehicles
- Lack of access to the facilities with Service Dogs.
- Lack of accessible bathrooms
- Lack of accessible sleeping equipment
- Lack of access to food and healthcare needs
- Lack of or loss of contact with the rest of the family
- Lack of facilities for Power for people who need to recharge power devices
The concepts of universal design[2], evacuation shelters, and resources werebrought up as a way to address the needs of all people including people with disability, children, older people, etc. instead of segregated facilities.
Registration
There was a very interesting debate on the need of registering disabled people and other vulnerable population; however, no agreement on the subject was reached. While some participants were inclined to establish registration as a way to quickly reach these groups and provide them with the needed assistance, other participants raised issues related to the right of privacy of people with disabilities and the potential uselessness of such measure in practice. Other alternatives to registration that were mentioned include local training, integrated public information, and local disaster exercises.
Second Week: “Emergency Response/Relief”
The second week of the e-discussion addressed the broad topic of Emergency Response/Relief. Five sub topics were suggested by the moderators:
Day 1:Engaging Stakeholder groups
Day 2:Understanding and responding to diversity within the population of people with disabilities - women, children, seniors, and other vulnerable populations
Day 3:Communication & Mobility / Technology, use of technology
Day 4:Funding & where money goes, who decides - monitoring expenditure of financial commitments made during disasters
Day 5:Developing Standards that are inclusive of all populations for relief and restoration
The 2nd week discussions naturally focused on natural disasters, however, it was stressed that disasters as a result of wars, torture and terror activities should not be excluded from the discussion of emergency relief. The following sections summarize the diagnosis of the situation and recommendations on the new main approaches and themes contributed by the participants during the second week.
Engaging Stakeholders
The participants listed a few elements to successfully engage those who need to be involved such as disabled people organizations, agencies, relief agencies and local communities and others,.
One obstacle is presented by those who see disability as a “medical” issue, given that they do not see the need for discussion and inclusion of people with disabilities in their development of policy and practice. For the uniform engagement of the various groups into the planning segment of disasters, agencies addressing an inclusive approach must understand disability as a social and human rights issue.[3]
The lack of understanding the policies of each organization and agency at international and national levels working in the field of Disaster Risk Management (DRM) and evaluating their response to the needs of people with disabilities are other challenges to be considered. Indeed, in some countries people with disabilities themselves are focused on their day-to-day survival issues and are therefore difficult to mobilize in order to direct the work
The participants shared some good practices related to this subtopic:
- In Bangladesh at the Disaster and Emergency Response (DER) group, believed that disabled people should become an intrinsic part of all disaster responses, and soon learned that if the responses are accessible to persons with all types of disabilities (wheelchair users, severely visual, hearing and intellectual disabilities) it could most certainly be accessible to older people, children, pregnant women, severely ill patients and all others. In August 2005, the DER convened a workshop on Gender & Diversity, where we also participated[4]. This was aimed at coming up with a sort of a checklist[5]. While this checklistwas mostly focused on gender-based elements, it also addressed diversity, by including ethnic & religious minorities, HIV/AIDS, sex workers, older people, pregnant & lactating mothers, people living in absolute poverty apart from disabled people.
- A DRM Program of Government of India- United Nations Development Program in India where during the village planning exercises the work is supported by the task force during an emergency was cited as a good example, even much more remains to be done.
Regarding future actions, the discussion around engaging stakeholders identify the following items as especially relevant:
- Inclusion of emergency response/relief issues in international instruments and policies. The International Convention on the Rights of Persons with Disabilities (ICRPD), Articles 10 (Right to Life) and 11 (Situations of Risk)
- Development of inclusive policies at all levels and in all agencies involved with emergency relief.
- Completion of an inventory of organizations involved in Disaster Response Management at the national and international level.
Finally, it was stated that in particular situations Government might have control over the capital of the country but the rest of the country may be in the control of either rebel forces or local warlords. We must keep in mind that in such situations, there is no type of government structure to use and all planning for disaster relief may have to come for local communities or agencies outside the country.