ULSS 20 Verona
RDD – Recommendations for Good Practice
“RESCUING Injured Disabled Persons in Case of Disasters - Civil
Protection’s Challenge in the Challenge”
Grant Agreement: N°07. 030601/2005/423643/sub/a5
Recommendations for Good Practice
Project Partners
With the support of the
European Commission
ULSS 20 Verona
RDD – Recommendations for Good Practice
UNITED NATIONS CONVENTION ON THE RIGHTS OF PERSONS
WITH DISABILITIES
Article 11. Situations of risk and humanitarian emergencies
“States parties shall take, in accordance with their obligations under international law,
including international humanitarian law and international human rights law, all necessary
measures to ensure protection and safety of persons with disabilities in situations of risk,
including situations of armed conflict, humanitarian emergencies and the occurrence of
natural disasters.”
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EXECUTIVE SUMMARY
6
CHAPTER 1: DEFINITION OF DISABILITY
7
1.1
INTRODUCTION
7
1.2
THE WHO DEFINITION OF DISABILITY
7
1.3
DISABILITY DEFINITION IN EUROPE
8
1.4
FROM MEDICAL MODEL TO SOCIAL MODEL
10
1.5
THE CONVENTION ON THE RIGHTS OF PERSONS WITH DISABILITIES
11
1.6
THE DEFINITION IN THE PROJECT
12
CHAPTER 2: DEFINITION OF DISASTER
14
2.1
INTRODUCTION
14
2.2
DEFINITIONS
14
2.3
TOWARD A NEW APPROACH
16
2.4
THE MAIN PARADIGMS
17
2.5
PARTICIPATION AND VULNERABILITY
18
2.6
THE DEFINITION IN THE PROJECT
20
CHAPTER 3: LITERATURE REVIEW
21
3.1
INTRODUCTION
21
3.2
OBJECTIVES OF THE WORK
21
3.3
KEYWORDS
21
3.4
METHODOLOGY APPLIED
22
3.5
SETTING
22
3.6
DISCUSSION
3.6.1 GUIDELINES
3.6.2 INSTRUCTIONS FOR HELPERS (MANUALS)
3.6.3 SELF-HELP INSTRUCTIONS
3.6.4 RESEARCH, CASE STUDIES, REPORTS AND GOOD PRACTICES
3.6.5 CURRENT SITUATION
3.6.6 RECOMMENDED APPROACHES
22
23
25
28
29
33
36
3.7
CONCLUSIONS
43
3.8
RECOMMENDATIONS
44
CHAPTER 4: LEGISLATIVE REVIEW
45
4.1
INTRODUCTION
45
4.2
OBJECTIVES OF THE WORK
45
4.3
KEYWORDS
46
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4.4
METHODOLOGY APPLIED
46
4.5
SETTING
47
4.6
DISCUSSION
4.6.1 THE EUROPEAN PICTURE
4.6.2 ITALY
4.6.3 HUNGARY
4.6.4 SLOVENIA
4.6.5 SPAIN
4.6.6 IRELAND
47
48
49
50
51
52
52
4.6
CONCLUSIONS
54
4.8
RECOMMENDATIONS
55
CHAPTER 5: SECTOR ANALYSIS
56
5.1
INTRODUCTION
56
5.2
OBJECTIVES OF THE WORK
57
5.3
KEYWORDS
57
5.4
METHODOLOGY APPLIED
57
5.5
SETTING
58
5.6
DISCUSSION
5.6.1 DESCRIPTIVE ANALYSIS OF THE SECTOR
5.6.2 CURRENT SITUATION
5.6.3 SECTORAL EXPERIENCES
5.6.4 APPROVED DOCUMENTS OR EXPRESSIONS OF INTEREST
58
58
64
69
74
5.7
CONCLUSIONS
75
5.8
RECOMMENDATIONS
76
CHAPTER 6: RECOMMENDATIONS FOR GOOD PRACTICE
78
6.1
78
INTRODUCTION
6.2
KEY CONCEPTS
6.2.1 ROLE OF PERSONS WITH DISABILITY
6.2.2 NEEDS OF PERSONS WITH DISABILITY
6.2.3 DIVERSITY AND DISABILITY
6.2.4 STAKEHOLDERS AND ACTORS INVOLVED
6.2.5 COMMUNITY-BASED APPROACH
6.2.6 INTER-SERVICE/INTEGRATED/TRANSVERSAL APPROACH
6.2.7 THE DIFFERENT STAGES OF DISASTER
78
78
78
78
78
79
79
79
6.3
POLICY AND PRACTICE
6.3.1 NORMS AND LEGISLATION
6.3.2 SIMULATION SCHEMES
6.3.3 TECHNOLOGY
6.3.4 ACCESSIBILITY
79
79
80
80
80
6.4
TRAINING AND INFORMATION
6.4.1 TRAINING AND CAPACITY BUILDING
6.4.2 INFORMATION
6.4.3 STATISTICS AND DATA
6.4.4 AWARENESS RAISING
80
80
81
81
81
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6.4.5 INTERNATIONAL ALLIANCES AND NETWORKING
6.4.6 FUNDING
6.4.7 EXCHANGE OF GOOD PRACTICE
82
82
82
6.5
KEY ELEMENTS OF A COMMUNICATION RESCUING AND TRASPORTATION SYSTEM FOR
DISABLED PERSONS IN CASE OF DISASTER
6.5.1 INTRODUCTION
6.5.2 PLANNING AND PREPAREDNESS
6.5.3 RESCUE AND RECOVERY
6.5.4 RELIEF
83
83
84
85
86
BIBLIOGRAPHY
87
AUTHORS AND PROJECT PARTNERS
964
ACKNOWLEDGEMENTS
96
SPECIAL THANKS
98
ANNEXES
99
ANNEX 1: OFFICIAL DEFINITIONS OF DISABILITY BY INTERNATIONAL ORGANISATIONS
99
ANNEX 2: MATRIX AND GUIDELINES FOR COLLECTION OF LITERATURE INFORMATION
102
ANNEX 3: SUMMARY MATRIX OF LITERATURE PER PARTNER COUNTRY
105
ANNEX 4: MATRIX AND GUIDELINES FOR COLLECTION OF LEGISLATIVE INFORMATION
114
ANNEX 5: SUMMARY MATRIX OF LEGISLATION PER PARTNER COUNTRY
118
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EXECUTIVE SUMMARY
In December 2005, the European Commission (DG Environment - Directorate A: Communication, Legal
Affairs and Civil Protection) awarded ULSS 20 Verona (Italy) a grant for the co-financed project
“Rescuing Injured Disabled Persons in Case of Disasters - Civil Protection’s Challenge in the Challenge”
(Grant Agreement 07.030601/2005/423643/SUB/A5).
As has emerged from recent dramatic experiences, persons with disabilities are the most at risk in case of
disasters of any typology. With this in mind, the above-mentioned project aims at identifying and
establishing shared guidelines and recommendations for efficiently and effectively responding to the needs
of persons with disabilities in the case of disasters.
In the implementation of its activities, ULSS 20 Verona has collaborated with a multi-sectoral team of
partners Choros (Italy); Codice Europa (Spain); Hope Project (Ireland); The Ministry of Youth, Family,
Social Affairs and Equal Opportunities (Slovenia); University of Pécs (Hungary), as well as supporters at
the European level such as national and local civil protection units, fire brigades, emergency systems units,
social services and associations for persons with disabilities.
This report summarises the findings of the research that was carried out by the partners within the
framework of the above-mentioned project. The contents of this report were discussed at the project final
conference held in Verona on 8-9 November and modified according to participants’ comments and
suggestions.
The report intends to reach a wide audience, including European civil protection units; other organisations
dealing in rescue operations (e.g. emergency services, emergency planners and responders, relief
organisations); organisations representing persons with disabilities and European policy makers.
The sole responsibility for the contents of this report lies with the author and the European Commission is
not responsible for any use that may be made of the information contained therein.
March 2008
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CHAPTER 1: DEFINITION OF DISABILITY
1.1
INTRODUCTION
In the context of the project “Rescuing Injured Disabled Persons in Case of Disasters – Civil Protection’s
Challenge in the Challenge” a two-day technical meeting was held on the 4th and 5th of April 2006 in
Verona. At this meeting, it was agreed that one of the first project tasks was the identification and analysis
of existing definitions of disability in order to agree upon one definition of disability to be utilised within
the context of the project. ULSS 20 Verona led this activity.
1.2
THE WHO DEFINITION OF DISABILITY
In 1976, the World Health Organisation (WHO) provided a first definition/classification of disability called
the International Classification of Impairments, Disability and Handicaps (ICIDH). This classification
makes a distinction between impairment, disability and handicap, defined as follows: “an impairment is
any loss or abnormality of psychological, physiological or anatomical structure or function; a disability is
any restriction or lack (resulting from an impairment) of ability to perform an activity in the manner or
within the range considered normal for a human being; a handicap is a disadvantage for a given individual,
resulting from an impairment or a disability, that prevents the fulfilment of a role that is considered normal
(depending on age, sex and social and cultural factors) for that individual”1.
According to the ICIDH classification, handicap is a function of the relationship between disabled persons
and their environment and it occurs when they encounter cultural, physical and/or social barriers, which
prevent their access to the various systems of society that are available to other citizens. Therefore,
handicap is the loss or limitation of opportunities to take part in the life of the community on an equal level
with others.
The evolution of the ICIDH classification is the ICF (International Classification of Functioning, Disability
and Health), published by WHO in May 2001 and accepted in 191 countries as the international standard to
describe and measure health and disability2.
The ICF defines functioning and disability as multi-dimensional concepts, relating to: the body functions
and structures of people; activities people do and the life areas in which they participate; factors in their
1
World Health Organisation. Document A29/INFDOCI/1, Geneva, Switzerland, 1976
World Health Organisation, International Classification of Impairments, Disabilities, and Handicap: A manual of classification
relating to the consequences of disease, Geneva, 1980
2
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environment that affect these experiences. For each of these components, the ICF provides a hierarchy of
classifications and codes. In the ICF, a person’s functioning or disability is conceived as a dynamic
interaction between health conditions and environmental and personal factors3. The new ICF classification
illustrates a clear shift: from describing disability, impairment and handicap in terms of diminishment to
describing body structure, functioning activities and participation in an objective way.
The ICF takes into account the social aspect of disability and provides a mechanism to document the
impact of the social and physical environment on a person’s functioning. For instance, when a person with
a serious disability finds it difficult to work in a particular building because it does not provide ramps or
elevators, the ICF identifies the needed focus on an intervention (e.g. the provision of these facilities in the
building), not that the person should be forced out of the job due to an inability to work. By measuring the
ability/inability of an individual to participate actively in the society, this classification puts all disease and
health conditions on an equal level irrespective of their cause, creating a new neutral approach that tries to
overcome discrimination and stigmatisation.
1.3
DISABILITY DEFINITION IN EUROPE
The definition of disability is a very complex issue4. There is no common definition of “disability” across
Europe. Definitions and criteria for disability in Europe vary according to policy objectives, legislation and
administrative standards in the different Member States and, as such, differ widely throughout the Member
States5. Nevertheless, questions of definitions are crucial to the development of coherent policies in respect
to disability.
It was in this context that the Directorate General for Employment and Social Affairs in 2002
commissioned a study, produced by Brunel University6, based on comparative analysis of national policies.
The study provides detailed country by country information about national policies in favour of disabled
persons and analyses the way in which different definitions of disability have influenced those policies.
The report shows that the different definitions of disability present within single nations are relevant to
different policies. The definitions used in anti-discrimination legislation are usually very broad, potentially
including people with minor disabilities. These laws focus on the act of discrimination rather than the
health status of the person. The definitions used in social policy are more restrictive, as they are used
within processes which allocate scarce resources to those whose needs have been recognised.
3
http://www3.who.int/icf/icftemplate.cfm (WHO ICF website); http://www.cdc.gov/nchs/about/otheract//icd9/icfhome.htm (ICF
homepage)
4
http//www.un.org
5
COM (2005) 604 final, 28.11.2005
6
Definition of disability in Europe: a comparative analysis, Brunel University, 2002
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What emerges from the study is the fact that confusion and lack of clarity concerning the concept of
disability present a major barrier to the drawing up of comparative analyses and evaluations of disability
policies and programmes within the European Commission. It is therefore necessary to formulate open
inclusive definitions of disability at a European level in order to model society in a fully inclusive way.
Notwithstanding the lack of a common definition of disability, there are numerous initiatives at the EU
level to strengthen EU commitment and raise awareness of disability issues more generally. In 2003, the
EU decided to adopt the European Year of People with Disabilities (EYPD). The concept developed by the
Commission and the Member States for the European Year offered disabled people at national, regional
and local levels the opportunity to bring their issues of concern to the forefront and contribute to focusing
policy priorities and encouraging specific actions7.
The Year was set up as a people’s campaign, built on a strong alliance of non-governmental organisations
representative of people with disabilities, such as the European Disability Forum8 and disability
organisations at the national level, public administration commitment, social partners, corporate support
and organisations of service providers. The Commission emphasises the fact that people with disabilities
and their representatives should be put at the forefront for the campaign for change and involved in the
planning, monitoring and evaluation of changes in policies, practices and programmes 9. The EYPD
campaign has reinforced the message, at all levels, that disability does not mean inability10.
The EU strategy on disability was clearly fixed in the Disability Action Plan (DAP), established by the
European Commission to ensure a coherent follow-up policy to the European Year of People with
Disabilities in the enlarged Europe.
The EU strategy is built on three pillars: (1) anti-discrimination legislation and measures, which provide
access to individual rights, (2) eliminating barriers in the environment that prevent disabled people from
exercising their abilities, and (3) mainstreaming disability issues in the broad range of community policies
which facilitate the active inclusion of people with disabilities11.
7
COM (2003) 650 final, 30.10.2003
The European Disability Forum is the non-governmental umbrella organisation representing people with disabilities at
European level. http://www.edf.feph.org.
9
COM (2005) 486 final, 13.10.2005
10
COM (2005) 486 final, 13.10.2005
11
COM (2005) 604 final, 28.11.2005
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The DAP covers the period 2004-2010 and is centred on three operational objectives: (1) full
implementation of the Employment Equality Directive, (2) successful mainstreaming of disability issues in
relevant community policies, and (3) improving accessibility for all12.
The Commission emphasises the fact that structured mainstreaming of disability is indispensable in the
changing EU economic and social environment. Mainstreaming means that the needs of disadvantaged
people have to be taken into account in the design of all policies and measures and that action on behalf of
disadvantaged people is not limited to those policies and measures specifically addressing their needs13.
Disability policies are essentially the responsibility of Member States, but community policies and actions
impact the situation of disabled people in many ways14. Therefore, the EC recommended that Member
States take full account of the DAP when developing national disability policies.
1.4
FROM MEDICAL MODEL TO SOCIAL MODEL
Disability is difficult to define because it is a multi-dimensional concept with both objective and subjective
characteristics. When interpreted as an illness or impairment, disability is seen as fixed in an individual’s
body or mind. When interpreted as a social construct, disability is seen in terms of socio-economic, cultural
and political disadvantages resulting from an individual’s exclusion.
Persons with disabilities, advocacy groups, medical practitioners and the general public all have a different
view of disability. And the meaning of disability has evolved over the years through various perspectives.
The two major classifications are the medical model and the social model discussed below.
The medical model views disability as a personal problem directly caused by disease, accident or some
other health condition and capable of amelioration by medical interventions such as rehabilitations. For the
medical model, disability is an intrinsic characteristic of individuals with disability. This assumption
translates into practices that attempt to fix individuals’ abnormalities and defects, which are seen as strictly
personal conditions. This model has been criticized for its limitations. The model ignores the role of the
social and physical environment in the disabling process. Moreover, the model locates the defect in a
person’s body or mind and that person may be defined as defective, abnormal and by extension
biologically or mentally inferior15.
12
Idem
COM (2003) 650 final, 30.10.2003
14
COM (2005) 604 final, 28.11.2005
15
http://www.hrsdc.gc.ca/en/home.shtml
13
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In contrast, the social model sees disability not as an inherent attribute of a person, but as a product of the
person’s social context and environment, including its physical structure (the design of buildings, transport
systems, etc.) and its social constructions and beliefs, which lead to discrimination16.
There are many variations of the social model but all portray disability as a social construct created by
ability-oriented and ability-dominated environments. According to this model, even though impairment has
an objective reality that is attached to the body or mind, disability has more to do with society’s failure to
account for the needs of persons with disabilities.
A distinct subgroup of the social model is the human right model. This model is primarily concerned with
the individual’s inherent dignity as a human being.
The European Commission sees disability as a social construct and a human rights issue 17. Article 13 of the
Amsterdam Treaty says that the Union has the power to combat discrimination on the grounds of sex,
religion or belief, race, age, sexual orientation and disability.
The EU social model of disability stresses the environmental barriers in society which prevent the full
participation of people with disabilities in Europe18. It implies that policies should be directed at the
removal of barriers to full participation for disabled people, rather than "problematising" disabled persons.
This suggests that policy should be concerned with identifying disabling situations rather than disabled
people.
One of the limits of the social model, as seen by the EC, is the fact that the model raises a number of
important issues for social policies, but does not give indications on how definitions in social policy should
be formulated and operationalised19.
1.5
THE CONVENTION ON THE RIGHTS OF PERSONS WITH DISABILITIES
The UN Convention on the Rights of Persons with Disabilities was adopted on December 13, 2006 and
opened for signature and ratification on 30 March 2007 at the United Nations Headquarters in New York.
This human rights treaty, the first in the 21st century and the fastest negotiated in history, will protect and
promote the rights of 650 million persons with disabilities, 10% of the world's population. It represents the
long-term strategy for the states and their obligations towards persons with disabilities. An unprecedented
16
Definition of disability in Europe: a comparative analysis, Brunel University, 2002
COM (2001) 271 final, 29.05.2001
18
COM (2003) 650 final, 30.10.2003
19
Definition of disability in Europe: a comparative analysis, Brunel University, 2002
17
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82 countries signed the Convention and 44 signed the Convention's Optional Protocol, a monitoring
mechanism that addresses individual violations20.
According to the Convention, disability is an evolving concept and results from the interaction between a
person’s impairment and obstacles, such as physical barriers and prevailing attitudes that prevent their
participation in society21. The more obstacles there are the more disabled a person becomes. Persons with
disabilities have long-term physical, mental, intellectual, or sensory impairments such as blindness,
deafness, impaired mobility and developmental impairments. Some people may have more than one form
of disability and many, if not most people, will acquire a disability at some time in their life due to physical
injury, disease or aging22.
1.6
THE DEFINITION IN THE PROJECT
The ICF classification of functioning disability and health views functioning and disability as a complex
interaction between the health condition of the individual and the contextual factors of the environment as
well as personal factors. The picture produced by this combination of factors and dimensions is of "the
person in his or her world". The classification treats these dimensions as interactive and dynamic rather
than linear or static. It allows for an assessment of the degree of disability, although it is not a measurement
instrument. It is applicable to all people, whatever their health condition. The language of the ICF is neutral
as to etiology, placing the emphasis on function rather than condition or disease. It also is carefully
designed to be relevant across cultures as well as age groups and genders, making it highly appropriate for
heterogeneous populations23.
Furthermore, the ICF definition has taken into account aspects of both the social and medical model and
achieved a synthesis of both approaches which is useful for multiple users and in different sectors.
The ICF defines disability as a functioning in multiple life areas and sees disability as a result of an
interaction between a person (with a particular health condition) and that person’s contextual factors
(environmental factors and personal factors). Moreover, according to ICF definition disability covers a
spectrum of various levels of functioning at the body, person and societal levels. Disability denotes
impairments in body functions and structures, as well as limitation in activity and restriction in
participation all at the same time. In this sense, ICF represents health and participation in society as basic
human rights.
20
http://www.un.org/disabilities/convention/signature.shtml
The Convention on the Rights of Persons with Disabilities, Preamble, point e.
22
http://www.un.org/disabilities/convention/questions.shtml
23
http://en.wikipedia.org/wiki/International_Classification_of_Functioning,_Disability_and_Health
21
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Therefore, we consider the following definition of disability as the more comprehensive and appropriate
definition within the context of the project: Rescuing Injured Disabled Persons in Case of Disasters: Civil
Protection’s Challenge in the Challenge:
Disability is defined as "the outcome or result of a complex relationship between an individual's
health condition and personal factors, and of the external factors that represent the circumstances in
which the individual lives" (WHO - International Classification of Functioning Disability and
Health, 2001).
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CHAPTER 2: DEFINITION OF DISASTER
2.1
INTRODUCTION
During the bilateral meeting held on the 4th of August 2006 in Verona between ULSS 20 Verona and the
Hungarian partner (Pécs University), it was decided that Pécs University would be in charge of the task of
collecting the existing definitions of disaster as a first step towards agreement upon one definition to be
utilised within the context of the project. After reviewing and receiving feedback from Choros and Codice
Europa on a summary document with the results of the research on the definitions of disaster, ULSS 20
Verona in collaboration with the Italian National Department for Civil Protection formalised a final
document with the above-mentioned information.
2.2
DEFINITIONS
To arrive at a common definition of disaster is quite a complex issue. There have been many attempts to
define disasters, but all run into the problem of either being too broad or too narrow 24. In general, most
disaster events are defined by the need for external assistance, but the decision on which situations require
external assistance may differ by country or region and, in some situations, may also depend on political
considerations.
Cited below are the main definitions available in literature:

Disaster is “an act of nature or an act of man of sufficient magnitude and severity to create in the
community a situation where the normal pattern of life is suddenly disrupted, posing serious and
immediate threats to public health”25 (A. Chamiowitz, 1980)

“An overwhelming ecological disruption occurring on a scale sufficient to require outside
assistance”26 (PAHO-Pan American Health Organization, 1980)

“Disasters are exceptional events which suddenly kill or injure large numbers of people” 27 (Red
Cross/Red Crescent)
24
www.pitt.edu
Chamiowitz, A. (1980), Disease problem in post-disaster situations. In: Mahon, A.G., Jooste, M. (eds) Disaster Medicine;
Report of proceedings of the International conference on disaster medicine held in Cape Town August 1979, Cape Town,
Rotterdam, South Africa, AA Balkema.
26
www-paho.org
27
http://www.pitt.edu/~epi2670/disaster/DisasterEpidemiology.pdf
25
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“A disaster, by definition, is an unscheduled, overwhelming event that causes death, injury, and
extensive property damage”28 (Rubin et al. 1985)

A disaster is “a sudden calamitous event producing great damage, loss, and distress”29 (Webster’s
Third New International Dictionary)

“A great or sudden misfortune”30 (The Concise Oxford Dictionary)

“Very recently the Dutch Parliament passed a new Disaster Act. It defines disaster as an event that
endangers the life and health of many people or causes severe harm to material interests, and that
requires coordinated efforts on the part of agencies and organisations from various fields of
expertise”31 (Uriel Rosenthal in L. Comfort 1988)

“Disasters are sudden unplanned disruptions in the social order”32 (L.Comfort, 1988)

“A disaster is an interruption in time and space of normal processes causing death, injury or
homelessness, economic or property loss, and/or significant environmental damage. The
interruption is beyond the coping capacity of the community and/or is beyond the assumed risk
factors of human activity such as transportation and handling of dangerous goods. The interruption
precludes war. The community is able to cope with an event if and only if: there is no requirement
for assistance from outside the community; the community can assume the cost of the event, and
normal community activity is not disrupted because of the event”33 (Definition chosen by EPCCanadian Electronic Disaster Database for the purpose of its database on disasters)

“A serious disruption of the functioning of a community or a society, causing widespread human,
material, economic or environmental losses which exceed the ability of affected community or
society to cope using only its own resources. Disasters are often classified according to their cause
(natural or man-made)”34 (Official definition of Disaster of the United Nations)
28
Rubin C.B., Barbee D.G. (1985), Disaster recovery and hazard mitigation: bridging the intergovernmental gap. Public
Administration review
29
Babcock Gove P. Webster’s Third New International Dictionary. Unabridged Online. Merriam Webster.
30
Stevenson A. (2004) The Concise Oxford English Dictionary. 11th Edition.
31
Rosenthal U.(1988), Disaster Management in the Netherlands: Planning for Real Events. In Comfort L.K., Managing
Disaster: Strategies and Policy Perspectives
32
Comfort L.K. (1988), Managing Disaster: Strategies and Policy Perspectives
33
Tudor C. (1997), EPC Electronic Disaster Database and its Characteristics. Emergency Preparedness. Canada. Ottawa.
34
UN, Dep. of Humanitarian Affairs, ONUG/DHA, Gestion des Catastrophes (ESF), 1992, Glossair
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“Disaster means a serious disruption of the functioning of society, posing a significant, widespread
threat to human life, health, property or the environment, whether caused by accident, nature or
human activity, and whether developing suddenly or as the result of complex, long-term
processes”35 (Tampere Convention)

“A crisis event that surpasses the ability of an individual, community, or society to control or
recover from its consequences”36 (NOAA - Coastal Services Centre. US)

“A disaster is a situation or event which overwhelms local capacity, necessitating a request to a
national or international level for external assistance”37 (CRED - Centre for Research on the
Epidemiology of Disasters)
The definitions cited above lead to the following conclusions/considerations:
1. Different disaster definitions are formulated in the different fields according to their usefulness.
2. The majority of definitions focus on a mismatch between tasks and resources in such a way that
problems that could have been solved if resources were available are not solved unless resources are
brought in from outside the affected area.
3. Some definitions focus on exceptionality, unpredictability and normality break aspects of disasters.
4. There is often a clear cut distinction between natural and man-made disasters.
5. Some definitions keep the focus on death, injury or property damage.
The above listed definitions analyse the effects of disasters from different points of view without taking
into full consideration the interrelation of the different factors involved. Furthermore, most of them
consider only the tangible resources involved in the event.
2.3
TOWARD A NEW APPROACH
In a scientific article in 1997, Al-Madhari and Keller38 underlined how the term disaster has to be seen
from many prospectives (e.g. sociological, psychological, medical, relief, economic, academic, etc.)
because all of these fields are interrelated. For example, a medical disaster definition emphasising the
number of persons in immediate need of medical treatment has to consider also the psychological and
social aspects related to this topic. In a similar way, disaster economy must also include intangible
variables and focus on what promotes health and well being, both physical and mental. The two authors
35
Tampere Convention on the Provision of Telecommunication Resources for Disaster Mitigation and Relief Operation, 1988
www.csc.noaa.gov
37
www.cred.be
38
Al-Madhari, A.F. & Keller, A.Z. (1997), Review of disaster definitions. Prehospital and disaster medicine
36
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highlighted how it is not feasible to formulate a universally acceptable definition of disaster that can satisfy
all practitioners because most of the definitions used are too general. Nevertheless, they stressed the
urgency to formulate an agreement upon definitions in the various fields and areas concerned with
disasters.
Other authors39 recently noted that in addition to non-universally accepted definitions of disaster, there are
no universally available criteria to define disasters in terms of the consequences, such as the casualties and
the cost of the damage. For example, it is not essential that deaths occur for an event to constitute a
disaster. Also, there is no minimum economic loss to qualify the event as a disaster, as communities have
different financial resources available for protection and recovery. Furthermore, disasters are often
classified as natural or man-made, but the distinction between natural and man-made disasters is not very
evident. In fact, environmental changes that can lead to events defined as disasters are more often the
results of an interrelation between natural and human activities. Furthermore, technical scarcity,
organisational scarcity and political scarcity have more to do with society than with nature40.
2.4
THE MAIN PARADIGMS
Participation and interdisciplinarity in disaster start with identifying the different paradigms in which these
concepts are embedded.
The technological paradigm (pre-1960) was based on the modernist paradigm that natural hazards cause
disasters, and therefore focused on technological and scientific solutions. Disaster studies were the domain
of geologists, seismologists and hydrologists and the application of the paradigm resulted in top-down
controlled projects for disaster prevention41.
The behavioural paradigm (1960-1970s) sought to eradicate disaster by changing the behaviour of the
people living in areas at risk of disasters through education and training42. This paradigm was based on the
premise that people are capable of determining risk and strategising their living patterns and therefore, an
involvement of local residences was deemed necessary in producing disaster management and risk
reduction politics.
Ibrahim M. Shaluf, Fakharu’I-razi Ahmadun, Aini Mat Said (2003), A review of disaster and crisis. In Disaster Prevention
and Management
40
Mehta L. (2000), Rethinking key assumptions in natural resources management: drawing lessons from the case of water. Draft
report, presented at the 8th biennial conference of the international association for the study of the common property.
Bloomington, Indiana
41
Warner J., Waalewijn P., Hilhorst D. (2002), Public Participation in Disaster-Prone Watersheds. Time for Multi-Stakeholder
Platform. Paper for the Water and Climate Dialogue. Disaster Studies. Irrigation and Water Management Group: Wageningen
University
42
Burton I., Kates R. W., and White G.F. (1978), The environment as hazard, Oxford University Press, New York
39
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The vulnerability paradigm (1980-1990s) placed emphasis on the political causes of disasters and
stressed how societal structures result in different impacts of disasters on communities. Disaster risk can be
defined as the interplay between natural hazard and vulnerability. In this view, economical and political
power differentials lead to unequal distribution of vulnerability and thus impacts risk and disaster43.
Disaster management would need to focus on political and social changes at the local, national and
international level44. The application of the vulnerability paradigm includes training of local relief
organisations and awareness raising and it represents the first serious look to stakeholders’ involvement in
addressing disaster45.
Nowadays more and more attention is given to the mutual constitution of society and environment and their
complex interplay.
A new complexity paradigm (or holistic paradigm) finds its origin in a growing understanding of the
complex interrelationship of ecology and society. Recent climate change, the overburdening of ecosystems
and the depletion of natural resources have led to a reconsideration of the relationship of humans and the
environment46. People are not just vulnerable to hazards, but hazards are increasingly the result of human
activity. In this view, disasters are as deeply embedded in the social structure and culture of a society as
they are in an environment47.
Following this approach, the non-predictability and exceptionality of a disaster are called into question. If
disasters are seen as a process, even the distinction between disasters and normal life are blurred. In
addition, according to this approach, it could be said that a number of people live in chronic emergency
situations in a large part of the world48.
2.5
PARTICIPATION AND VULNERABILITY
The holistic paradigm, which analyses the complexity of interactions between different factors involved in
the disaster process, recognises the up and down sides of participation. Public participation concerns the
inclusion of all the people who have a stake in disaster management. Affected populations, in this view,
43
Hewitt K. (1983), Interpretations of calamity from the viewpoint of human ecology. Allen & Unwin, London, Sydney
Christoplos I., Liljelung A., and Mitchell J., (2001), Re-framing risk: the changing context of disaster mitigation and
preparadness.
45
Warner J., Waalewijn P., Hilhorst D. (2002), Public Participation in Disaster-Prone Watersheds. Time for Multi-Stakeholder
Platform? Paper for the Water and Climate Dialogue. Disaster Studies. Irrigation and Water management. Group Wageningen
University
46
Hilhorst D.(2002), Complexity and diversity: Unlocking social domains of disaster response. In: G. Bankoff, G. Frerks and D.
Hilhorst. Vulnerability. Disaster, Development, People. Earthscan, London
47
Oliver-Smith, A., and S. Hofmann eds (1999). The angry earth: disaster in anthropological perspective. Routledge, New
York and London
48
Frerks, G., Hilhorst D., and Moreyra A. (1999). Natural disasters: a framework for analysis and action. Disaster Studies,
Rural development sociology group, Wageningen University, Wageningen
44
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have to be involved in all phases of the process avoiding connotations of victimisation and dependency and
fostering people’s own capacities and coping strategies49.
There are several reasons to encourage communities’ participation. In fact, it is considered impossible for a
government to be as effective as self-organising communities50. While top-down approaches fail to deliver
well-coordinated management, participation is considered capable of increasing the success of policy and
management because of its inclusiveness. Furthermore, preparedness and relief plans, risk assessments and
risk reduction strategies can only be promoted and implemented with the involvement of stakeholders51.
Other studies look at participation in disaster management from a human rights point of view 52. In this
view, people at risk have the right to participate because their lives and livelihoods are affected. This
approach looks at affected and vulnerable people as main actors in the process underlining their potential
and coping capacities, rather than portraying them as victims or passive recipients. This concept also
breaks the connotation of dependency of affected people.
The human rights approach gains special importance in the context of the EC co-financed project
“Rescuing Injured Disabled Persons in Case of Disasters - Civil Protection’s Challenge in the Challenge”,
where a particular group of vulnerable people, the disabled population, are the subject of the rescue
procedures. Even in this case, interventions will be more sustainable and receive more legitimacy if this
part of the population has participated in planning, providing appropriate interventions and are actively
involved actively in all the phases of the rescue processes. The European Commission emphasises that
people with disabilities and their representatives should be involved in the planning, monitoring and
evaluation of changes in policies, practices and programmes53.
Interrelation of factors and multi-level participation in disaster management found its practical application
in the creation of multi-stakeholder platforms. A multi-stakeholder platform is where the different actors
that have a stake in the management of a common-pool resource come together and discuss issues of
mutual concern. Special recognition is given to vulnerable groups. The platform intends to bring together
49
Morrow, B. H. (1999). Identifying and mapping community vulnerability. Disasters
Christie, F., and Hanlon, J. (2002). Preparedness pays off in Mozambique, Chapter 3 in: IFRC-RCS. (2002). World Disasters
Report 2002; focus on reducing risk, Eurospan, London
51
Lavell, A. (2002). The Lower Lempa River Valley, El Salvador: From risk to sustainability: experience with a risk reduction
and development project. In: G. Bankoff, G. Frerks and D. Hilhorst (eds). Mapping Vulnerability. Disasters, Development and
People. Earthscan, London
52
Anderson, M. B., and Woodrow, P. J. (1989). Rising from the ashes: development strategies in times of disaster, Westview
Press, Boulder.
53
COM (2005) 486 final, 13.10.2005
50
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all actors depending on or taking an interest in the resource. Government, civil society and community are
grouped together in the pursuit of a common strategy54.
2.6
THE DEFINITION IN THE PROJECT
The interdisciplinarity, multi-sectoral and process-related characteristics of disaster are emphasised by the
UN in the implementation of the International Strategy for Disaster Reduction, where public and
stakeholder participation and local action (including social networks) are deemed necessary for the creation
of a comprehensive and inclusive program focused on risk reduction, institutional reform and capacity
building55.
The project “Rescuing Injured Disabled Persons in Case of Disasters - Civil Protection’s Challenge in the
Challenge” therefore considers the following as the most appropriate and comprehensive definition for
disaster:
“A disaster is a function of the risk process. It results from the combination of hazards, conditions of
vulnerability and insufficient capacity or measures to reduce the potential negative consequences of
risk”56 (UN-ISDR – International Strategy for Disaster Reduction, 2004).
54
Friedmann, J. (1992). Empowerment: The politics of alternative development. Cambridge, MA and Oxford, UK: Blackwell
UNISDR Secretariat (2002). Living with risk: a global review of disaster reduction initiatives. Geneva: UNISDR
56
www.unisdr.org
55
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CHAPTER 3: LITERATURE REVIEW
3.1
INTRODUCTION
This chapter summarizes the results of research on literature published worldwide on the subject of persons
with disabilities and emergencies. As agreed during the 1st technical meeting in Verona, the Italian Partner
CHOROS was responsible for gathering all information from partners, carrying out additional research and
consolidating the findings into a single summary document.
The objective of the literature review was to collect and summarize documents that appeared the most
significant and finally extrapolate recurrent topics, fundamental ideas and recommendations. A particular
focus was put on key concepts, good practices and recent research.
The methodology was a combination of collecting existing literature and identifying recurrent issues,
together with exposing what could constitute a guideline for programming future interventions. The
research was carried out at the European (primarily partner countries, with some notable exceptions) and
extra-European (US, Canada, Asia and Australia) levels. US literature production proved the most
extensive and often the most precise, up-to-date and respectful of persons with disabilities inclusion and
autonomy.
3.2
OBJECTIVES OF THE WORK
As indicated above, the overall purpose of the literature review was to identify, order and summarize the
main documents that deal with the subject of disability and disaster in a correlated way. In order to reach
this objective, the study was broken down into different sections:
1. A main list of documents, distributed in international, European and extra-European sub-sections
2. A report focusing on literature contents
3. A report focusing on recommendations
3.3
KEYWORDS
Persons with disabilities, vulnerable persons, civil protection, emergency services, inclusion, communitybased rehabilitation (CBR), accessible locations, multidisciplinary task force, self help, empowerment,
special needs, unified approach, creating positive attitudes, training.
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METHODOLOGY APPLIED
The methodology for carrying out the research activities involved a number steps, starting with initial
discussions on the draft methodology taking place during the first project technical meeting (April 2006).
The formal guidelines for literature collection for approval by all partners were elaborated between April –
September 2006. The guidelines were written in such a way to ensure that the partners would collect the
literature in the same format, thus facilitating the task of drawing up the summary report. (See annex 2)
On the basis of the guidelines, partners carried out the research activities through a literature review
(books, journals, newspaper articles, laws and online literature). At a second meeting in April 2007, initial
information about the literature was presented and discussed and some adjustments were made to the
methodology in order to complete the research. However, this literature review does not present a
definitive overview of the literature on the topic. Most of it was obtained through the web and more
research should be conducted directly involving institutions, local decision makers and persons from
disabilities organisations. However, the present literature review does represent a first source of
information in terms of publications on the topic.
3.5
SETTING
The review was carried out in the countries of the partner organisations, specifically Hungary, Italy,
Ireland, Slovenia and Spain. In addition, the review was carried out consulting the websites of main
international institutions (as ONU, or the Red Cross) and in countries where more online information was
available. These countries included: USA, Canada, Australia, European countries and Tsunami-affected
area countries. American and European academic institutions were also considered.
3.6
DISCUSSION
This chapter first cites and examines any guidelines, instructions for helpers (manuals), self-help
instructions, as well as research, case studies, reports and good practices when it comes to persons with
disabilities and emergencies. It then goes on to give a current situational overview as outlined or discussed
in specific literature regarding the rescue of persons with disability in case of disaster. The last two sections
of the chapter provide conclusions and recommendations based on the results of the research and analysis
on the literature collected (guidelines, instructions, case studies, etc.).
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3.6.1 GUIDELINES
Recent official documents (ONU General Assembly resolutions from 2001 through 2006)57 stress the need
to assure safety, equal rights and the inclusion of persons with disabilities in emergency situations. These
documents define disability as the result of the interaction between subjects and environmental barriers and
recommends taking a holistic approach.
International organisations (WHO, UNICEF, ILO)58 promote guidelines on how to identify the population
with special needs in case of emergency and assess their needs; establish multidisciplinary force in the
acute phase of a disaster (WHO); approach disability issues in developing countries affected by
emergencies (UNICEF); and how to include special measures and resources for persons with disabilities
(especially ex-combatants) in crisis response and reconstruction phases in order to promote their
rehabilitation in society. ILO, UNESCO and WHO, (1994) have stressed that community-based
rehabilitation (CBR) should be included as a relevant component of social policies. According to the CBR
approach, most problems facing adults and children with disabilities could be solved at the community
level with the support of national and regional level service providers. The service-delivery system should
be the result of coordinated work between the social, educational and health sectors.
The European Commission strategy in the field of equality and non-discrimination focuses on occupation,
education, accessibility and security on the job. The European Union Disability Strategy (2000-06) focuses
on three main objectives: co-operation between the Commission and the Member States; full participation
of people with disabilities; mainstreaming disability in policy formulation.
In Europe, the issue of disability in emergency situations seems to be mainly treated in the field of
workplace safety. The European Agency for Security and Health at work (OSHA)59 gives instructions in
order to guarantee disabled workers’ security and health, particularly in case of fire.
European Member States (research is limited to the RDD project partners) seem to focus mainly on
evacuation issues in case of fire (Ministries of Interiors France60, Italy61 and the United Kingdom Disability
Discrimination Act). The Irish Office of Public Works62 has published a website information guide, which
57
http://www.un.org/esa/socdev/enable/rights/convtexte.htm
http://www.who.int/violence_injury_prevention/other_injury/disaster_disability2.pdf;www.unicef.org/rosa/inclusive_consolida
ted.pdf; http://www.ilo.org/public/english/employment/recon/crisis/download/disabled.pdf
59
http://osha.europa.eu/publications/factsheets/53/fact53_fr.pdf
60
http://hygiene-securite.ac-aixmarseille.fr/PDF/Incendie/Arr%EAt%E9%20du%2025%20juin%201980%2010%20oct%2005.pdf
61
http://www.vigilfuoco.it/speciali/sicurezza/sicurezza_insieme/disabili/pdf/soccorso_disabili.pdf
62
http://www.flooding.ie/prepared2.htm
58
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states that the safety of the elderly and persons with disabilities should be considered as a priority in case of
floods and that employers are requested to put in place all the necessary measures to ensure that workers
with disabilities can easily evacuate the buildings in the event of fire. No mention of disability in
emergency situations can be found in Hungarian and Slovenian literature, where civil protection and
citizens security matters seem not to drive attention to the special needs of persons with disabilities.
At an international level, the Red Cross/Red Crescent National Societies are active in promoting first aid
education amongst a variety of vulnerable groups in different countries. In 2005 the Red Cross took part in
the workshop, “First aid education for vulnerable groups,” where a taskforce was set up in order to map
current activities and good practices, as well as identify appropriate guidelines for empowering vulnerable
groups coping strategies by adapting and adjusting the community first aid approach 63.
Many organisations active in the field of international response to humanitarian crises (Handicap
International, Oxfam and Save the Children)64 stress the fact that very little information exists about people
with disabilities in armed conflict and in refugee camps, especially children. Relying on long and
significant experience in the field, they give recommendations and suggestions about how to develop and
implement inclusive programmes.
Documents released by extra-European countries (USA and Canada) offer important contributions in the
field of emergency and disability. Federal US documents, such as the Americans with Disabilities Act
(ADA)65 and the National Council on Disability (NCD)66, focus on strategies regarding how to promote the
safety of persons with disabilities during an emergency.
Several US organisations, especially those located in US states more at risk of disasters (such as
California), have produced relevant information. California Governor’s Office of Emergency Service
website67 provides accurate guidelines on “Special Needs in Emergency Planning and Preparedness”.
Several American academic institutions also provide recommendations on disability and disasters. The
University of Kansas68 publishes a guide for parents and relatives in which prejudices about persons with
disabilities are denounced and the need to consider the “disabled problem” as a resource in the field of
emergency preparedness is stressed.
63
http://www.firstaidinaction.net/en/index.php
http://60gp.ovh.net/%7Engovoice/documents/VOICE%20out%20loud%205_final.pdf; Oxfam Development Casebooks;
http://www.savethechildrensweden.org
65
http://www.ada.gov/emergencyprep.htm
66
www.ncd.gov
67
http://www.oes.ca.gov/Operational/OESHome.nsf/a0f8bd0ee918bc3588256bd400532608/dacb46bbe634284488256f5000751a
18?OpenDocument&Highlight=0,disabilities
68
www.nobodyleftbehind2.org
64
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In a publication by William Boyce69 titled, “Adaptation of Community Based Rehabilitation in Areas of
Armed Conflict” (School of Rehabilitation Therapy, Social Program Evaluation Group, Queen's
University, Kingston, Canada), Queen’s University of Canada discusses how the principles of communitybased rehabilitation (CBR) need to be introduced into the humanitarian help system.
The review of existing guidelines or recommendations indicates that international institutions stress the
need for a holistic approach to the issue related to the safety of persons with disabilities in situations of
emergency. In addition, they also emphasize the need for the intervention in crisis and reconstruction
phases of a multidisciplinary force system sensitised to the specific needs of persons with disabilities. RDD
project partner countries (with the exception of Ireland) are still engaged in considering evacuation issues
in case of fire or floods, but do not really take into account the multifaceted nature of these issues.
3.6.2 INSTRUCTIONS FOR HELPERS (MANUALS)
A wide production of manuals over the last five years is the result of a growing interest regarding the issue
of the safety of persons with disabilities in emergency situations. The reasons for this increase in interest
during the last few years need to be investigated. The growing incidence in the occurrence of disasters
worldwide (including war and terrorism) and the relevance given by the media are some of the probable
causes. International humanitarian organisations have deepened their concern around “special needs” issues
on the basis of their recent involvement in humanitarian missions.
When referring to “people with special needs,” Module 5 of the “Community Based Psychological
Support” Training Manual (International Federation of Red Cross and Red Crescent Societies) 70 stresses
the need for supporting community self-help. In addition, the manual places emphasis on the importance of
addressing the needs of persons with disabilities, children, the mentally ill, elderly and persons affected by
HIV and a section of the manual is devoted to “helping the helpers”. The Handicap International Manual
“How to Include Disability Issues in Disaster Management” (2005)71, published after the 2004 Bangladesh
floods, provides relief operators with step-by-step suggestions on how to adopt inclusive procedures in
different phases of an emergency. It also provides evacuation and rescue techniques addressed to persons
with disabilities based on their specific disability.
69
http://www.dinf.ne.jp/doc/english/asia/resource/apdrj/z13jo0500/z13jo0506.html
http://psp.drk.dk/graphics/2003referencecenter/PSP_Manual_eng.pdf
71
http://www.addc.org.au/webdocs/Emergencies%20&%20Conflict/Manuals/HI_%20MANULAL_How%20to%20Include%20
Disability%20Issues%20in%20Disaster%20Management_Sept2005.pdf
70
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The United Kingdom-located Healthlink Worldwide Association72 publishes a number of articles related to
disability issues. Healthlink has promoted a method valid worldwide, especially in war contexts, which
gives suggestions to NGOs on how to deal with projects involving persons with disabilities. Paradoxically,
war can create opportunity for persons with disabilities. In Bosnia and other countries devastated by the
result of war and conflicts, the destruction of institutionalised rehabilitation services for relatively few
persons with disabilities resulted in new community-based services being set up. These services reached
many more people and encouraged the service-users to get actively involved.
Sustainable Design International Ltd Academic Paper (2002) discusses how to protect and evacuate people
with disabilities from buildings in the event of fire. The author states that there is a clear lack of
comprehensive technical guidance on protection from fire, which has resulted in the creation of a barrier to
the full inclusion of people with disabilities. Given that people with disabilities are more than capable of
playing an active role in a fire defence plan, their potential should be empowered73.
European production of manuals on the topic of disability and emergency seems to be more limited when
compared with extra-European production and also when considering the complexity of the task. The
results of the review of existing instructions for helpers for the RDD partner countries suggest a lack of
interest when it comes to considering the needs of persons with disabilities in disasters situations.
The Irish National Disability Authority Guide shifts the responsibility for evacuating people with
disabilities in case of emergency from the Fire Service to those who manage the building on a day-to-day
basis, claiming that a building should be designed to ensure the safe evacuation of all individuals. In order
to accomplish this evacuation time needs to be evaluated, specifically taking into consideration the person
who will take the longest time to escape. The nature of the disability, the number of people with disabilities
and their disposition within the building are also critical issues requiring careful consideration.
In its publication “Protezione Civile in Famiglia”, the Italian National Civil Protection provides some
information on how to act in an emergency situation involving persons with disabilities. In Italy other
institutions devote attention to the issue. The Municipality of Pescara (in partnership with associations of
persons with disabilities and the Civil Protection) in the booklet “Ti aiuto io” provides procedures for
emergency planning for the safety of persons with disabilities. In a publication in the field of civil
protection, the University of Trieste and Piemonte Orientale74 provide a study focused on procedures to
utilize for the rescue of persons with disability. The Consejería de Sanidad Y Servicios Sociales Del
72
http://www.healthlink.org.uk/
http://www.sustainable-design.ie/fire/NRZP-CNDC_CJWalsh_Fire-Disability-Workshop-Overheads_2007-05-24.pdf
74
http://www.ing.units.it/bca/jscript/
73
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Gobierno De Cantabria in Spain in “Mapping Disability in Cantabria” provides information on population,
resources available and needs perceived at regional and local levels related to persons with disabilities.
This document is useful for spotting the location of persons with disabilities in case of disasters/emergency.
A publication by an Internet portal in Hungary titled, “Rescue persons with disabilities in case of fire”,
gives instructions on how to use a special evacuation-chair in case of fire.
USA production in the field is generally wide, focused on procedures, step-by-step suggestions and appears
very much concerned about the different kinds of needs in relation to specific disabilities. Among USA
public institutions, the U.S. Fire Administration75 and the Job Accommodation Network (U.S. Department
of Labor)76 provide emergency procedures for employees with disabilities in office occupancies. An
emphasis has been put on alarms and signs, a "buddy system" for helping persons with disabilities and on
specific technical devices. They also consider the case of cognitive and psychiatric impairments.
Several academic institutions carrying out programmes on disaster management (with reference to specific
disasters that have affected US areas, such as hurricanes or earthquakes in California) have produced
manuals and instruction materials for residents and rescuers. The Western University of Health Sciences
(Pomona, California) includes suggestions about strategic planning and resources in a manual titled, “Why
and How to Include People with Disabilities in Your Emergency Planning Process?”77. The U.S. University
of Southern California in “Disabled Persons and Earthquake Hazards”78 deals with emergency
preparedness and response measures for persons with disabilities and provides recommendations.
Among U.S. organisations created and directed by persons with disabilities, The Center for an Accessible
Society79 offers recommendations regarding accessible facilities in case of disaster and reliable rescue
communications. In addition, it highlights the need to work in partnership with the disability community,
provide training, promote universal design and implement adequate strategies.
To summarize, instructions for helpers (manuals) on international and local levels deal with the issue of
rescue procedures in general and with the rescue of the persons with disabilities in particular. In the last
decade, a great amount of literature of this sort has been published appearing as an “answer” or response to
the growing attention to catastrophes (disasters, wars, acts of terrorism, etc.) worldwide. International
humanitarian organisations have produced articulated training manuals addressing the topic of a population
with special needs in international settings. European countries limited to specific areas (Italy, Ireland and
75
http://www.usfa.dhs.gov/citizens/disability/
http://www.jan.wvu.edu/
77
http://www.nobodyleftbehind2.org/~rrtcpbs/findings/pdfs/FinalWhyandHow.pdf
78
http://www.crid.or.cr/digitalizacion/pdf/eng/doc9611/doc9611.htm
79
http://www.accessiblesociety.org/
76
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Spain), can rely on brochures created by civil protection departments, academic institutions and welfare
institutions. Nevertheless, the necessity of examining and taking into consideration the special needs of part
of the population has not yet been addressed worldwide in a homogeneous and systematic way. As
indicated previously, the USA production in the field is generally wide, focuses on procedures, step-bystep suggestions and appears highly concerned about the different kinds of needs related to specific
disabilities. In this area, the involvement of several organisations of persons with disabilities competent in
the field of rescuing procedures is remarkable.
3.6.3 SELF-HELP INSTRUCTIONS
Among European RDD project partners, Ireland can rely on the brochure “Creating a flood plan for family
and the elderly”80 for self-help instructions. This brochure offers recommendations on how families can
manage emergencies and work on their own rescue plan, especially in the presence of persons with
disabilities and the elderly. In these cases, the establishment of a “buddy system” is recommended.
USA literature production on the theme of self-help is wide and detailed. The self-help perspective is most
likely promoted due to the U.S. psycho-social long-standing vision. Both public institutions and
organisations of persons with disabilities provide self-help manuals. In a manual called “Individual with
Special Needs Preparing and Planning,” the Federal Emergency Management Agency (FEMA)81 gives
suggestions on how persons with disabilities can protect themselves in case of an emergency.
Recommendations refer to specific needs such as being visually and hearing impaired, people with specific
medical conditions, etc. Other documents, in collaboration with the American Red Cross in one case, focus
on being ready to evacuate and give practical suggestions, information on organisations to count on, etc.
They propose an “action checklist” before a disaster and a “disaster supplies kit”82. After the events of
September 11th 2001 in the U.S., the call for partnership and participation was reinforced by the National
Organization on Disability (NOD). NOD’s “Disaster Mobilization Initiative” included a call “to ensure that
people with disabilities are included at all levels of preparedness planning”83.
Los Angeles County and academic institutions, such as Lamar University84 and Western University of
Health Sciences85, both offer “packets” that work as self-help manuals and list different devices and actions
to undertake in case of emergency.
80
http://www.flooding.ie/Pdfs/Risk_of_flooding_Bro3.pdf
www.fema.org
82
http://www.redcross.org/services/disaster/0,1082,0_3_,00.html
83
http://www.nod.org/index.cfm?fuseaction=page.viewPage&PageID=457&C:\CFusionMX7\verity\Data\dummy.txt
84
http://www.disaster-research.us/special_needs1.htm
85
http://www.cdihp.org/evacuation/toc.html
81
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Several private organisations working for the rights of persons with disabilities focus on emergency
preparedness for persons with disabilities in the workplace and at home (DPC, Disability Preparedness
Center)86. Others focus on how to respond to visual, cognitive, mobility, illness, speech and psychiatric
impairments in case of an earthquake (Independent Living Resource Center - ILCRSF)87. The Northridge
earthquake that affected the greater part of the city of Los Angeles in 1994 played a great role in
encouraging a participatory approach when dealing with issues related to disability and disaster planning
and response. A group called “Disabled People and Disaster Planning” (DP2) was created after the
earthquake. The group met between 1996 and 1997 and developed recommendations and guides on how to
deal with problems identified during and after the Northridge quake (DP2 1998). These guides often
include self-assessment tools related to specific disabilities. They recommend “avoiding the avoidance”,
recognizing real needs, creating a network of “friends” and identifying evacuation ways.
The review of self-help instructions demonstrates that a self-help perspective is not generally adopted by
European countries, at least not by RDD project partner countries. This suggests that this approach is not
very familiar or popular in European culture in the field of citizens’ protections. In Europe, the civil
protection mechanisms seem more oriented in providing support and “help” in a top-down approach
instead of helping communities and persons with disabilities to help themselves by empowering them
through the promotion of family/community/friends networks, as the U.S. literature suggests.
U.S. publications appear to be of great help in improving persons with disabilities informal rescue
networks. The involvement of organisations of persons with disabilities has a great effect in sensitising,
disseminating information and providing knowledge in this regards.
3.6.4 RESEARCH, CASE STUDIES, REPORTS AND GOOD PRACTICES
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”88. The results of this online debate were
collected in a document highlighting short, medium and long-term lack in disaster response policies when
addressing the needs of persons with disabilities. In the short term, persons with disabilities are seen as
“collateral damage”. In the medium term, persons with disabilities are not involved in planning and in the
long term, the rebuilding of accessible infrastructures doesn’t always happen.
Very little attention to the topic of disability and disaster response has been given by research institutions
in Europe. Reports, case studies and good practices reviews are a much unattended field. The book
86
www.disabilitypreparedness.org
www.ilrcsf.org
88
http://siteresources.worldbank.org/DISABILITY/Resources/News---Events/463933-1166477763817/EdisNatDisas.doc
87
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Earthquakes can be considered one exception (C. Rodrigue and E. Rovai eds. London: Routledge, 2002)89.
In the chapter “Disability and Disaster: Victimhood and Agency in Earthquake Risk Reduction”, Ben
Wisner analyses the complex relations linking disability and disaster, how disability and normality are
defined and the implications of these definitions in policy responses. Current emergency management
approaches are also illustrated and final recommendations are proposed.
The publication Abili a Proteggere (“Able to Protect”) is worth mentioning.90 This book, focused on a
particular case study, is a type of reference manual for public administrations on the best approach for
including persons with disabilities into the workplace. Although the subject matter does not specifically
relate to the topic of this report, it is interesting to note that the case study was carried out within the Italian
Department of Civil Protection, whose main task is the protection of the civilian population, primarily in
the event of natural and man-made disasters.
A study on real life cases has been promoted by the University College Cork, Birnbaum 91. Chapter 5
outlines a number of fundamental databases that should be available and included in flood management.
Included in this are flood action data and contingency plans which give vulnerability scores (elderly and
persons with disabilities). The effectiveness of the Part M of the Building Regulations92 in Ireland, which
covers mainly the issue of accessibility to buildings for all (including people with disabilities), has been
evaluated through a report by the National Disability Authority. As indicated in the “Instructions for
Helpers (Manuals)” section, the Sustainable Design International Ltd Academic Paper (2002) addresses the
issue of how to protect and evacuate people with disabilities from buildings in the event of a fire, noting
that the lack of comprehensive technical guidance on protection from fire has resulted in the creation of a
barrier to the full inclusion of people with disabilities.
An interesting initiative has been developed by the Taskforce Disability & Society (Netherlands) in
partnership with Rvarium® (NL).93 This initiative, involving persons with disabilities, representatives of
the fire department and policy makers, included research regarding firstly, statistics concerning the number
of people who are disabled during a disaster and secondly, the level of preparedness of the regions and
communities to rescue persons with disabilities in the case of disaster.
89
C. Rodrigue and E. Rovai eds. Earthquakes. London: Routledge, 2002.
90
http://www.abiliaproteggere.net/
http://cmrc.ucc.ie/publications/reports/ISDI_FINAL_REPORT.pdf
92
http://www.nda.ie/cntmgmtnew.nsf/0/D7B9326DE8BF2CBA802570CF00348A4C/$File/09_part_m.htm
93
http://www.tfhs.nl/
http://www.rvarium.nl/
91
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As a result of this research, a DVD entitled “Not scared, but prepared” was produced and distributed at no
charge, as well as a “Not scared, but prepared” test accessible online at www.crisis.nl. Furthermore, this
research led to the preparation of written learning materials for fire brigades.
According to a study by the UK Department for International Development's Disability Knowledge and
Research Programme (Disability KaR)94, the Tsunami tragedy constituted an occasion for more extended
research. Through the International Disability Rights Monitor (IDRM), a collaboration between the Office
of the United Nations Special Rapporteur on Disabilities and the Disabled People International
organisation (DPI) promoted qualitative and quantitative research on “Disability and Early Tsunami Relief
Efforts in India, Indonesia and Thailand”95. Through direct visits to the effected countries and review of
several case studies, the researchers found that people with disabilities have been largely excluded from the
relief effort at the level of non-governmental organisations. Awareness was low with disability not being a
topic of discussion during the majority of organising and coordinating meetings.
September 11th and the Katrina disaster have also given impulse for additional research efforts. Several
researches and case studies have been conducted in the U.S., especially after 9/11. The brochure “Saving
Lives by Including People with Disabilities in Emergency Planning” by NCD (National Council on
Disability)96 contains a report on disaster experiences of people with disabilities. Samples of the types of
barriers experienced by people with disabilities are documented by empirical research in “Little input into
counties’ disaster planning”. The research highlighted that only 39 percent of people surveyed had an
emergency plan in place for evacuating their home and that disaster preparedness and emergency response
systems are typically designed for people without disabilities.
The American Psychological Association (APA)97 published a research on post disaster trauma, focused on
the anxiety perceived by persons with disabilities and in children who developed disabilities as a
consequence of the disaster.
A report (Lessons Learned)98 on fire emergency management was published by the State of California
Independent Living Council (SILC)99. Several problems were identified in this report: lack of
transportation, neighbours unaware of nearby persons with disabilities, distant family members of persons
with disabilities with no way to contact them, inaccessible shelters and rescue devices, groups of persons
with disabilities locked in inaccessible locations and neutralised mobility devices.
94
http://www.disabilitykar.net/research/thematic_conflict.html
http://www.ideanet.org/cir/uploads/File/TsunamiReport.pdf
96
www.ncd.gov
97
www.APA.org
98
www.calsilc.org
99
http://www.calsilc.org/impactCAWildfires.pdf
95
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A research report on “Exemplary and best practices in disaster preparedness and emergency response for
people with disabilities” (Nobody Left Behind - University of Kansas Research and Training Center on
Independent Living, 2007)100 states that the majority of emergency managers are not trained for dealing
with a “special needs” population. The mission of this research was to investigate 30 randomly selected
counties, cities or boroughs in the United States that have recently experienced a natural or man-made
disaster in order to determine if disaster plans include persons with disabilities.
Through case studies, the research “Incorporating special needs populations into emergency planning and
exercises”101 (Nobody Left Behind) identified issues that may directly affect the population with special
needs during various types of emergencies and disasters. This research suggests that the following should
be anticipated: hesitancy/refusal to evacuate, emotional trauma, loss of possessions and/or homes,
disorientation and confusion (cognitive issues), increased need for assistance services, increased mortality
rate. One of the suggestions was that local municipalities should make efforts to consider a voluntary
special needs registry focused on assisting the most medically vulnerable populations. Qualitative research
among emergency managers established that the majority require additional funding, trained personnel, a
mandate and additional public education efforts.
The NOD’s (National Organization on Disability) case study on Katrina (SNAKE Project)102 emphasizes
the lack of independent living or advocacy models in procedures. The case study also offers several
recommendations on how to ensure that disability and senior organisations are represented, emergency
information is given in an accessible format, transportation is accessible and safe housing and communities
cross training provided.
On the website for the Center for an Accessible Society103, several articles on case studies deal with the
lack of detailed and reliable plans for evacuating and rescuing persons with disabilities in buildings. Relief
agencies are geared toward dealing with a lot of people rapidly, but they are not really equipped to deal
with individuals with disabilities. In addition, co-workers in charge of helping are not trained for rescuing
persons with disabilities.
EVAC+CHAIR CORP, a company which produces special evacuation chairs for persons with disabilities,
reported about a survivor from the World Trade Center that could evacuate the building thanks to this
100
www.cilmc.org
http://www.nobodyleftbehind2.org/findings/finalreport_best_0307.htm#_ftn1
102
www.nod.org/Resources/PDFs/katrina_snake_report.pdf; http://www.katrinadisability.info/PDFsK/katrina_snake_report.pdf
103
http://www.accessiblesociety.org
101
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special chair. “The story of one man's escape from the World Trade Center: it took us an hour and a half to
get down 69 floors" 104.
“Adaptation of Community Based Rehabilitation in Areas of Armed Conflict” by William Boyce105
highlights how the principles of community-based rehabilitation may also be applied in areas of conflict
and explains the challenges faced in trying to do so. The study is based on a 1989 Rehabilitation
International/UNICEF Technical Support Programme, which produced a review of the physical
rehabilitation needs of children and women victims of armed conflict. The recommendations promote
community-based rehabilitation (CBR), research and prevention, attention towards women, children and
mental disability and the overall incorporation of disability issues into international aid programmes.
In summary, researches, reports and case studies regarding disability and emergency situations appear
mainly as a U.S. topic. Among international organisations the World Bank report-based online forum has
collected direct experiences of persons with disabilities in order to gain a reliable understanding of the
issue. The knowledge and experience of people with disabilities can help to provide a new and more
comprehensive perspective regarding issues such as personal safety and security. Only active participation
of persons with disabilities in all phases of emergency and contingency planning can build on and increase
empowerment – transcending a mere clinical, biomedical and individualised approach to disability and
disaster.
3.6.5 CURRENT SITUATION
In the literature on emergency management and disaster planning, “disability” often appears in checklists
and taxonomies of “social factors” or “vulnerable groups” that require special attention in disaster
planning.
The growth of an international disability rights movement since the 1980s shows that people with
disabilities want more than to be treated as a “problem to be solved”. According to author Ben Wisner,
there are three approaches visible in the practice of emergency management and planning today: First, is to
do nothing. In situations where there are few resources and many needs, persons with disabilities are
simply not given priority. The second approach is to provide special services and arrangements for people
with impairments or disabilities. This planning is for the most part done from the “top down”. Implicit in
the above statements is a view of disability as an individual medical condition. The third is a participatory
and inclusive approach that actively involves the persons with disabilities and their organisations in the
104
105
http://www.evac-chair.com/
http://www.dinf.ne.jp/doc/english/asia/resource/apdrj/z13jo0500/z13jo0506.html
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process of assessing their vulnerability to harm and their capability for self protection in the face of
hazards.
Documented experiences from emergency relief work shows that people with disabilities need specific
attention in order to benefit from relief work. People with disabilities feel the impact of a crisis more
intensely than other people but they are easily excluded in the emergency relief systems and thus aren’t
able to benefit from them.
According to NOD, during the 2005 Gulf States hurricanes response and recovery phases, disability
advocates worked to get disability experts into the shelters to assess and assist the needs of people with
disabilities106 such as those who could not hear the announcements over the loud speakers, could not see
the signage directing them to assistance or were at risk to lack of necessary medications.
After the Tsunami, the more acute needs of persons with disabilities have soared. The WHO estimates that,
as a result of the Tsunami, there will be a 20% increase in the population with disabilities and a third to half
of all affected people will suffer mental distress. In Thailand, the Tsunami caused permanent disabilities to
more than 800 victims and a great number of immediate and long-term needs for people with different
types of disabilities107.
In the wake of a disaster, the notion of rights may appear to vanish behind the reality of the immediate
needs of all survivors. However, it is the issue of rights that lies at the root of humanitarian efforts
following disasters and emergencies, rights that should be equally available to all. The continued exclusion
of people with disabilities from the exercise of fundamental human rights – both in the wake of disasters
and more generally – is a vital issue that needs to be addressed108.
According to the World Bank109, with the recent major disasters, the media has focused on the lack of
preparedness in emergency planning for people with disabilities pre and post disaster.
The organisation breaks out and describes the short, medium and long-term issues concerning people with
disabilities in disaster situations, as well as the most significant problems with the existing process.
106
107
www.nod.org
Ter Haar, Aartjan,Call for a disability-adjusted response to the Tsunami disaster, DCDD Newsletter, No 10, Apr 2005, p 5 -
6.
108
State Independent Living Council (SILC) Fire Disaster Issue Brief April 2004, page 8,
http://www.calsilc.org/impactCAWildfires.pdf
109
http://siteresources.worldbank.org/DISABILITY/Resources/280658-1130273084709/18218301157998399432/DECwbMinDec5.doc
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Short-term issues concerning people with disabilities in a disaster situation are:

Lack of communication alternatives

Not enough, if any, trained specialists in the areas of psychological, occupational and physical
therapy

Shelters and transportation not accessible

Disaster preparedness and emergency response systems typically designed for people without
disabilities

People with disabilities seen as “collateral damage”
Medium to long-term issues concerning people with disabilities in a disaster situation are:

Planning without any input from people with disabilities

Not enough funding

Rehabilitation needs not met

Rebuilding an accessible infrastructure not occurring

Policies requiring the accommodation of disability needs
The biggest downfall of the entire process is:

Lack of coordination among organisations and agencies dealing with disaster response/relief and
those dealing with disability issues

Many times, agencies/organisations have the funds to incorporate disability issues, but are not made
aware of the issues
According to NCD (National Council on Disability)110 people with disabilities frequently encounter
barriers to physical plants and communications, as well as programmes in shelters, recovery centres and in
other facilities. In addition, information and lessons learned are not shared across agency lines and
therefore, experience does not enlighten the development of new practices. People with disabilities and
activity limitations tend to be left out of preparedness and planning activities. Disaster preparedness and
emergency response systems are typically designed for people without disabilities, for whom escape or
rescue involves walking, running, driving, seeing, hearing, and quickly responding to instructions.
Information related to the emergency needs of people with disabilities is not widely integrated into a
number of general emergency management courses.
110
www.ncd.gov
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In the guidelines “A second guide for parents”111, author June Isaacson Kaile (University of Kansas,
Nobody Left Behind) focuses on prejudices about persons with disabilities and states, “no definition fits
all, no definition fits persons”.
According to the Report SNAKE112 there were numerous governments and non-profit agencies carrying
out assessments in the field, but no unified approach for coordinating the work.
According to HANDICAP INTERNATIONAL113, persons with disabilities tend to be invisible in
emergency registration systems. Lack of awareness is one of the major factors causing persons with
disabilities not to understand/comprehend disaster and its consequences. People with disabilities are often
excluded from disaster response efforts and are particularly affected by changes in terrain resulting from
disaster. People with disabilities are often deprived of rescue and evacuation services, relief access, safe
location/ adequate shelter, water and sanitation and other services. Emotional distress and trauma caused by
a crisis situation often have long-term consequences on people with disabilities.
3.6.6 RECOMMENDED APPROACHES
In article 11 of the recent UN “Conventions on the Rights of People with Disabilities”, (Dec. 2006)
114
it
states that “in situations of risk and humanitarian emergencies, States Parties shall take…all necessary
measures to ensure the protection and safety of persons with disabilities in situations of risk, including
situations of armed conflict, humanitarian emergencies and the occurrence of natural disasters”.
ILO, UNESCO and WHO (1994) see community-based rehabilitation (CBR)115 as a component of social
policy that promotes the rights of people with disability to live within their communities, enjoy health and
participate fully in educational, social, cultural, religious, economics and political activities.
“Empowerment” is a key concept in social movements of minorities116. In psychological terms it breaks
down the isolation felt by a person with disabilities as he/she learns the root causes of their isolation and
lack of power. Empowered persons with disabilities are more open to connecting with others as part of a
social movement or local self-help groups. These groups, in turn, can be the perfect partners for planners
who accept the value of participatory action research.
111
http://www.jik.com/index.html
http://www.katrinadisability.info/PDFsK/katrina_snake_report.pdf
113
http://www.addc.org.au/webdocs/Emergencies%20&%20Conflict/Manuals/HI_%20MANULAL_How%20to%20Include%20
Disability%20Issues%20in%20Disaster%20Management_Sept2005.pdf
114
http://www.un.org/esa/socdev/enable/rights/convtexte.htm
115
www.unicef.org/rosa/inclusive_consolidated.pdf;
http://www.ilo.org/public/english/employment/recon/crisis/download/disabled.pdf
116
Ben Wisner, “Disability and Disaster: Victimhood and Agency in Earthquake Risk Reduction, 2002
112
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Community-based rehabilitation (CBR), research and prevention, attention towards women, children and
mental disability, and the overall incorporation of disability issues into international aid programmes 117 are
strongly recommended.
NOD118 strongly emphasizes the importance of tapping the knowledge, experience and opinions of people
with disabilities (2002). The organization stresses that people with disabilities should be included in
preparedness planning for all emergencies and all plans should take people with any kind of disability into
account (e.g. the blind, mentally ill, those with and without physically apparent disabilities).
To maintain the dignity and independence that lies at the heart of the disability movement, people with
disabilities must take personal responsibility for their safety, to the degree allowed by their disability.
In terms of larger policy issues for planning, preparedness, response, relief and recovery, people with
disabilities must advocate, monitor, advise and help however possible at the local, state and federal levels.
Training people with disabilities to develop expertise in disaster/security/emergency management will save
lives. It also increases the pool of experts on these important issues as they affect all citizens.
According to “UN Enable”, the following recommendations should be organized according to the temporal
phases of a disaster:
A) Prevention phase and plans
B) Acute phase
C) Reconstruction long term phase
A) Prevention Phase and Plans
Twenty years ago the UNDRO Report (1982: 44-45)119 began to pose vital questions about the
involvement of persons with disabilities when developing or upgrading communities’ emergency plans, for
example120:

Are services for persons with disabilities included in the community’s emergency plans? Has
information been sought about (the needs of all disabled groups) and how to meet them?

Have the views of persons with disabilities been taken into account in making the plans? If there are
existing organisations for persons with disabilities in the community, have they been contacted for
117
http://www.dinf.ne.jp/doc/english/asia/resource/apdrj/z13jo0500/z13jo0506.html
www.nod.org
119
This section is referenced in the UNDRO Report as being adapted from an article in ‘Emergency Management Newsletter’
(edition of 6 November 1981) published by FEMA, Washington, D.C., U.S.A
120
www.radixonline.org/resources/ disability_and_disaster_wisner.doc
118
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advice when developing emergency plans? (They also can provide expertise in creating self-help
and awareness programs).

Does the emergency organisation have a way for identifying persons with disabilities during an
emergency? Is it known who needs special care in case of disaster, and where she/he lives and
works?

How are the emergency needs of persons with disabilities recognized in the community?

Have local shelter areas been checked to see if they will be able to handle persons with disabilities?

How can it be demonstrated that meeting the needs of the persons with disabilities will improve
life-safety for the entire community?

Has it been taken into consideration that persons with disabilities can be self-sufficient and serve as
a valuable resource in emergencies, and their greater awareness and wider participation in
emergency planning will benefit everyone?

Are persons with disabilities included in community preparedness exercises and is it defined how
can they assist in an emergency?

Do they, and the community, know what to expect in an emergency? What activities need
volunteers? Which would be suitable for disabled volunteers based on the type of disability?
WHO, Department of Mental Health, recommends working towards developing or strengthening feasible,
strategic plans for national level mental health programmes121.
UNICEF stresses the need for regular surveys, creating positive attitudes, roles for parents’ organisations in
teaching–learning processes and the training of teachers on inclusive education122.
According to ILO plans should include persons with disabilities in each phase. Disabled people’s
organisations should be supported and empowered123.
According to the World Bank124 the following actions should be undertaken:

Continue to work toward greater inter-agency/organisation coordination

Build up the capacities of DPOs (chief management) to strengthen them to be a resource in times of
disaster

Create a checklist/policy recommendations
121
http://www.who.int/violence_injury_prevention/other_injury/disaster_disability2.pdf
www.unicef.org/rosa/inclusive_consolidated.pdf
123
http://www.ilo.org/public/english/employment/recon/crisis/download/disabled.pdf
124
http://siteresources.worldbank.org/DISABILITY/Resources/280658-1130273084709/18218301157998399432/DECwbMinDec5.doc
122
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Produce a 1 or 2 page guideline for field workers with very simple and basic information on what
they need to do for people with disabilities pre and post disaster

Keep policymakers up-to-date and informed

Get important leaders/players together

Create workgroups and online self-paced training programmes

Promote more meetings/conferences so that disability issues can be brought to attention
Emergency managers need to strengthen their relationships with organisations of persons with disabilities;
have stronger outreach and targeted technical assistance (NCD, National Council on Disability)125.
Steps are suggested in the Job Accommodation Network publication “Employers' Guide to Including
Employees with Disabilities in Emergency Evacuation Plans” (supported by U.S. Department of Labour,
Office of Disability Employment Policy)126 for including disabled employees in emergency evacuation
planning. One suggested step is asking all individuals whether they will need assistance during an
emergency, considering that people with disabilities are generally in the best position to assess their own
particular needs. Emergency alarms and signs should also be provided, a "buddy system" implemented,
evacuation devices purchased, any physical barriers removed, heavy gloves provided to protect individuals'
hands from debris when pushing their manual wheelchairs, a patch kit available to repair flat tires and extra
batteries for those who use motorized wheelchairs.
The guide suggests specific devices to help people with different disabilities, such as vibrating paging
devices, wireless communicators etc. and considers the case of cognitive and psychiatric impairments.
Recommendations include: listening and learning from the disability community, utilizing expertise,
creating a forum, promoting the growth of disability advocate, including disability specific issues;
providing insightful input on strategies, etc.
The use of participatory action research in hazard identification and assessment of vulnerabilities and
capabilities is deemed necessary127. This new dialogue would be based on the following principles (Spodak
1995):

Accessible disaster facilities and services

Accessible communications and assistance

Accessible and reliable rescue communications

Partnerships with the media
125
www.ncd.gov
http://www.jan.wvu.edu/media/emergency.html
127
Ben Wisner, “Disability and Disaster, cit.
126
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
Partnerships with the organisation for persons with disabilities

Disaster preparation, education and training

Universal design and implementation strategies
According to NOD128:

Disability and senior organisations have to be represented

Emergency information should be given in an accessible format

Accessible transportation should be provided

Safe housing and communities

Cross training disability and aging specific advocates and service providers need to strengthen their
understanding of local and state emergency management systems

Durable Medical Equipment (DME) is also needed
The SNAKE Project129 Report recommends the establishment of a team that mirrors the management
structure of the National Response Plan to support disability and senior issues. The federal (or national)
level should have a designated person for these issues who reports directly to the Principal Federal Officer
(PFO). This person should have operational emergency management experience as this is needed during a
response and recovery operation. He/she must be vested with the responsibility, authority and resources for
providing overall day-to-day leadership, guidance and coordination of all emergency preparedness, disaster
relief and recovery operations of the federal/national government on behalf of disability and senior
populations.
Cross training is also stressed:

Both emergency managers and disability and aging specific organisations should engage in some
quick cross orientation/training meetings

Emergency management staff should acquire basic knowledge of the local and state emergency
management systems. Courses on emergency planning and special needs populations (training for
local and state emergency planners and organisations serving seniors and people with disabilities)
should be a start

Disability and aging specific organisations should be used to strengthen responders understanding
of which organisations can offer what services under what conditions

Since people with disabilities are not a homogenous group, different capabilities, opinions, needs,
and circumstances, should be considered
128
129
www.nod.org
http://www.katrinadisability.info/PDFsK/katrina_snake_report.pdf
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There should be a national stockpile of durable medical equipment to ensure readily available
supplies of durable medical goods for the communities
B) Acute Phase
According to WHO130 in the acute phase rescuers should:

Identify persons with disabilities

Provide help to special needs

Establish a multidisciplinary task force
The European Agency for Security and Health at Work (OSHA)131 gives instructions in order to guarantee
disabled workers’ security and health. In emergency procedures several measures are suggested in order to
assist persons with disabilities in case of evacuation, fire, etc. (i.e. emergency wheelchair in case of fire,
visual and vibrating fire alarm signals, sign language training for fire men, etc.).
Handicap International recommendations include132:

Rapid assessment forms

Local disabled people’s organisations included in the planning

Accessibility taken into account (latrines, water point, etc.)

International relief staff sensitised on disability issues

On-site training on inclusion provided

Disability issues included in funding agencies guidelines
The ADA (American Disability Act) provides several hints on strategies in helping persons with
disabilities during an emergency and notes issues that have great impact:

Notification

Evacuation

Emergency transportation

Sheltering

Access to medications

Access to mobility devices

Access to information
130
http://www.who.int/violence_injury_prevention/other_injury/disaster_disability2.pdf
http://osha.europa.eu/publications/factsheets/53/fact53_fr.pdf
132
http://60gp.ovh.net/%7Engovoice/documents/VOICE%20out%20loud%205_final.pdf
131
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Concerning areas of rescue assistance, if these areas do not have escape routes they should have the
following133:
1) An operating phone, cell-phone, TTY and a two-way radio so emergency services can be contacted
2) A closing door
3) Supplies that enable individuals to block smoke from entering the room from under the door
4) A window and something to write with (marker, lipstick, etc.) or a “help” sign to alert rescuers that
people are a particular location
5) Respirator masks
The SNAKE134 Report is very detailed about procedures. Recommendations are:

Utilize the skill sets and expertise of disability specific and aging organisations in order to help
prevent deterioration, expensive hospitalisations or nursing home placements for some evacuees.

Assist people in quickly replacing critical durable medical equipment (DME) and essential
medications to speed a return of their level of functioning, allowing them to manage independently
in a general population shelter and temporary housing.

Continue to provide the services, support benefits and programs to maintain the integrity of the
family unit and to allow individuals to live in the community as they rebuild their lives.
The team on the ground should include people with expertise/advocacy backgrounds at the national and
local level (community level). These individuals should have access and be present in shelters, temporary
housing and other assistance centres. The team should establish information systems for people with
disabilities and seniors identify their support/service needs and the way to access services. The teams
should be skilled in assessing the general health, well being and access to support structures and services
needed by the disability and aging populations located in shelters and temporary settings. They should also
be able to quickly orient shelter personnel and emergency managers regarding these needs.
In addition, video programming distributors, including broadcasters, cable operators, and satellite
television services should be strongly reminded that they should comply with the obligation to make
emergency information accessible to people with hearing and vision disabilities.
C) Reconstruction Phase
In the Report on Special Needs Assessment for Katrina Evacuees, (SNAKE Project)135 many detailed
critics and recommendations are offered, such as:
133
http://www.ada.gov/emergencyprep.htm
http://www.katrinadisability.info/PDFsK/katrina_snake_report.pdf (cit.)
135
http://www.katrinadisability.info/PDFsK/katrina_snake_report.pdf
134
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Add questions during all intake processes that help to identify needs and/or issues of disability and
aging individuals.

Provide support organisations with supplemental governmental funding in order to support their
critical role in the response effort.

Disabled and senior groups should be invited (by civil protection at the regional and national level)
to participate in planning accessible and secure spaces in facilities.

Disaster recovery centres should incorporate local and national organisations for persons with
disabilities into their service delivery process.

Opportunities for cross-training should be provided so that organisations can become familiar with
existing programmes.

Considering that not all individuals utilize disaster centres, information on services should be
disseminated using multiple communication arteries (radio, TV, internet, fax sheets, posters, etc.).

As a rebuilding measure, governments should make all funding requests contingent on changes in
building codes to stress accessibility for persons with disabilities.
3.7

CONCLUSIONS
The necessity of examining and taking into consideration the special needs of part of the population
has not yet been addressed worldwide in a homogeneous and systematic way.

In most cases, people with disabilities appear to be seen as a “collateral damage”.

Prejudices about persons with disabilities seem to be widespread.

Persons with disabilities have a tendency to be categorized as “all the same”.

Agencies are apt to not be aware of the needs of persons with disabilities.

The disability issue appears not to be widely integrated into a number of general emergency
management courses.

Information and lessons learned have a tendency not to be shared across agency lines.

Research suggests that there is a lack of a unified approach for coordinating the work in this field.

The materials reviewed indicate that international institutions stress the need for a holistic approach
to the issue related to the safety of persons with disabilities in situations of emergency.
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Academic institutions outside Europe and international humanitarian organisations stress the
importance of carrying out accurate assessments of the needs of persons with disabilities and the
need for the promotion and implementation of community-based rehabilitation programmes.

In general, RDD project partner countries show a limited interest in considering the needs of
persons with disabilities in disaster situations and are mainly only addressed within the field of
workplace safety. While they are engaged in considering evacuation issues in case of certain
emergencies/disasters, such as fire or floods, they do not take the multifaceted nature of these issues
into account.

The USA appears highly concerned about the different kinds of needs related to specific disability
with researches, reports and case studies seeming to be mainly a U.S. topic. As opposed to most
European countries, the US adopts more of a self-help approach and their publications appear to be
of immense help when it comes to improving the informal rescue networks of persons with
disabilities.
3.8

RECOMMENDATIONS
Need to adopt a participatory and inclusive approach. People with disabilities must advocate,
monitor, advise and help. Need to listen and learn from the disability community.

Important to have community-based rehabilitation (CBR) as a component of social policy.

Need “empowerment” and empowering measures at all levels.

Need to use participatory action research in hazard identification and in any other steps.

Stress the importance of having communication alternatives at every step.
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CHAPTER 4: LEGISLATIVE REVIEW
4.1
INTRODUCTION
This chapter summarizes the results of research carried out in selected European countries concerning
different legislative approaches to the rescue of persons with disability in case of disaster. Codice Europa
and Hope Project were responsible for summarizing the information provided by all of the partners. ULSS
20 Verona edited and revised the final current version of the chapter.
The main objective of the work was to establish what legislation is available in the various countries
relating to disasters and emergencies and more importantly, if disabled people or vulnerable groups in the
community are provided for in these plans.
The methodology was a combination of theoretical (literature/documentation) and practical research
(interviews). The research was carried out at either the local, regional and national level in the five
countries representing the partners participating in the EC-funded project.
For the most part, all five countries taking part in the project are very similar in their treatment of people
with disabilities and plans on how to rescue them from emergencies. Despite some interesting examples of
best practices, there is a lack of specific legislative provisions for rescuing disabled people in case of
emergency disasters.
One of the main conclusions that can be drawn from this research activity is that there is a real need to
review existing relevant legislation, or in some cases, consider the drafting of new legislation to ensure that
persons with disability are provided for in all aspects of a disaster including the planning, mitigation and
reconstruction phase.
4.2
OBJECTIVES OF THE WORK
The overall purpose of this study was to identify the legislation available in selected countries relating to
disasters and emergencies and to establish whether persons with disability or vulnerable groups in the
community are provided for in these plans with a view to identifying good practice.
The legislative review was carried out in the five principal partner countries of this project: Italy, Spain,
Ireland, Hungary and Slovenia. Each partner researched and scrutinized in detail all types of legislation
available in their individual country. Everyone collected information regarding the legal framework at
local, regional, national and European levels which included any recommendations, laws, regulations and
procedures adopted that made reference to the rescue of people with disabilities in emergency situations.
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Once this review was completed (in matrix format) by the five partners, the aim was to consolidate the
work together in one document, highlighting the differences in legislation in European countries
concerning the rescue of persons with disability. In addition, through this comparative review, it was
possible to compare protocols for the rescue of people and vulnerable groups in society and point out any
differences.
4.3
KEYWORDS
Persons with disabilities; vulnerable persons; civil protection; rescue emergency plans; emergency
response; disaster; major emergency management; risk assessment; emergency planning; policy planning;
fire services; code of practice; acts; legislations; laws; guides.
4.4
METHODOLOGY APPLIED
The methodology for carrying out the legislative review was similar to that for the literature review with
the draft methodology discussion taking place during the first technical meeting (April 2006) and followed
by elaboration of the formal guidelines and accompanying matrix for information collection by the partners
between April – September 2006. (See annex 4). The guidelines and matrix were again drawn up in a way
to ensure that the partners collected the information in the same format in order to facilitate the task of
drawing up the summary report.
Partners carried out the research activities, based on the approved guidelines, through a literature review
(books, journals, newspaper articles, laws, theses, conferences), as well as interviews with local
stakeholders. Primary resources were collected through direct interviews with key stakeholders. Although
most of the information was obtained through the Internet on legislation public administration archives and
specialised libraries, currently updated information was also accessed through contacting key informers in
the partner’s regional or local network.
The initial information regarding the legislative review was also discussed at the second meeting in April
2007 and adjustments made to the methodology in order to complete the research. It was an opportunity for
partners to observe how other partners had approached the problem and review and add to their own
research.
The findings were analysed by comparison in order to draw some general conclusions about the situation in
Europe and compile them in a summary report.
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The main body of the summary concerns the conclusions resulting from the comparative analysis between
the regions. This was carried out taking into account, the following criteria:
-
Amount of available legislation concerning this issue cross-countries
-
Types of legislative documents (binding, non-binding, etc.)
-
Measuring which countries have/have not achieved legislative adequacy
-
What conclusions can be extracted from each countries legislation in terms of level of commitment
in the area of concern
It is clear that this report does not present a definitive overview of the European dimension as the study
was carried out only in 5 different countries, but it can be said that the five countries provide a
representative picture of how the issue of disability in the context of an emergency/disaster situation is
addressed.
4.5
SETTING
As indicated above, the information was collected in the countries of the partner organisations (Hungary,
Italy, Ireland, Slovenia and Spain). Each country has a different system in operation but in general, it can
be said that in each country the principle of gradualism applies and depending on the size of the
emergency, the situation is handled either at the local, regional or national level. Therefore, the research
activities carried out at a local level, even if representative of a smaller reality, provide an important source
of information on the subject.
Specifically, the areas of interest were:
-
Italy. Regional level: Veneto. Local level: Verona and Turin. National level: Italy
-
Ireland. Regional level: Cork, Limerick, Clare and Kerry. National level: Ireland
-
Spain. Regional level: Cantabria. National level: Spain
-
Hungary. Regional level: Pecs. National level: Hungary
-
Slovenia. Local level: Ljubljana. National level: Slovenia
As a general comment, although the legislative framework research was carried out at all three levels,
many partners found that local bodies, in particular, were very keen to co-operate with the partners in their
research activities.
4.6
DISCUSSION
This section will begin by providing an overview of existing legislation in Europe that is relevant to the
subject of the rescue of persons with disability in case of disaster.
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This section will go on to present the findings of each country individually on its own merits and interpret
all data and findings. Then it is necessary to examine differences between the countries and systems.
The types of documents that each partner researched and examined in their own countries included
legislation at both a national and a European level: laws, acts, statutes, opinions, recommendations,
directives, regulations, plans and protocols, reports, communications and conventions. It is important to
note that even where it appeared that the principal laws did not consider the issue of disabled persons, any
laws that had been examined were referenced in the matrix. Where laws are identified as treating or
addressing the problem of disabled people, the reference paragraph was translated into English and feature
at the heart of the discussion here.
4.6.1 THE EUROPEAN PICTURE
The European Union’s long-term strategy for the active inclusion of persons with disability revolves
around the Disability Action Plan (DAP) and the European Disability Strategy (2004-2010).
Mainstreaming is at the centre of this strategy and implies analysing the relevant policy areas from the
disability perspective, understanding the diverse needs of people with disabilities and taking them into
account when developing policy.
Disability policies are essentially the responsibility of Member States, but Community policies and actions
impact in many ways on the situation of disabled people136. Therefore the EC recommended that Member
States take full account of the DAP when developing national disability policies.
There are sixteen EU civil protection legislations consisting of various Council and Commission
regulations, resolutions, decisions and proposals relating to civil protection at the European level. While
these documents deal with more robust civil protection capabilities, strengthening of contributions and
better co-operation in civil protection, there is no reference to persons with disabilities and their rescue in
case of disaster.
The most recent piece of civil protection legislation, the Council Decision 2007/162/EC, Euratom of 5
March 2007, establishing a civil protection financial instrument, does not make any specific reference to
persons with disability. However, prevention and other preparedness actions financed within the context of
this civil protection financial instrument foresee the support of actions that consider specific vulnerable
groups.
136
COM (2005) 604 final, 28.11.2005
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More recently, Article 19 of the European Parliament resolution of 4 September 2007, discussing the recent
summer’s natural disasters, “stresses the need to take special care of the specific needs of persons with
disabilities in case of natural disasters in all actions undertaken using the civil protection mechanisms”137.
It is clear that there is room for improvement in the context of European legislation. The lack of strong
legislative provisions on the subject suggests that it is up to the individual Member State to introduce laws
on this subject, thus bringing the principle of subsidiary into play. Perhaps, for once, this is not a good
thing as many Member States do not have provisions for disabled people, while if European regulations or
directives were in place, the individual country would be forced to take appropriate action.
4.6.2 ITALY
As an introduction, it is worth noting that there are numerous laws in Italy that deal with the disability issue
in general and in particular with issues of accessibility. However, as discussed below, there is little
reference to the rescue of persons with disability in case of disaster in the relevant legislation on emergency
preparedness and management.
The national law establishing the National Service for Civil Protection regulates the legislative framework
for disaster management in Italy. (24th Feb. 1992 N° 225). This law does not contain any specific reference
to persons with disability.
There are 5 legislative decrees dedicated to the security of people in the workplace in case of fire, the
management of emergency situations and the security and health of people in the workplace.
The Ministerial decree for national guidelines for the security of people in workplaces in case of fire and
management of emergency situations contains a chapter (8.3) on rescuing disabled people in fire
emergencies. In this chapter it states that workplaces should have measures for fire prevention and the
evacuation of people with disabilities and that emergency plans should foreseen some workers able to help
persons with disabilities (Ministerial Decree 10 March 1998)
In the Ministerial decree regarding general principles of management of health rescue during emergencies,
there is a minor reference to persons with disabilities and only regarding the territory check phase.
(Ministerial Decree 13 February 2001 N° 81)
137
http://www.europarl.europa.eu/sides/getDoc.do?type=TA&reference=P6-TA-2007-0362&language=EN
“European Parliament resolution of 4 September 2007 on this summer's natural disasters”
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Another Italian communication sets out national guidelines for the security of persons with disabilities in
fire emergency and advises on how to create a rescue system for the disabled should a fire breakout.
(Communication N°4 1 March 2002). This communication also contains a checklist of actions in order to
ensure the security of workplaces where there are persons with disabilities.
The Italian National Fire Department appears to have procedures for rescuing disabled people in disasters
or emergencies. An Italian directive on procedures to follow in order to promote the psychological and
physical safeguard of persons during and after a disaster makes reference in their second article to
vulnerable persons, and in particular persons with disabilities. (Directive of the President of the Council of
Ministers – 13 June 2006).
Those that stand out among the above-mentioned legislative provisions are those referring to fire safety and
in particular workplace safety in case of fire (guidelines for risk assessment, prevention and protection
measures and emergency management), as emergency plans need to consider disabled people and the
distinction between mobility impairment and sensorial disabilities. It is clear that the Italian National Fire
Department has considered disability issues in their work and could provide useful insight to other relevant
departments on this subject.
4.6.3 HUNGARY
The research on the situation in Hungary reveals that the legislative situation concerning the rescue of
persons with disability in case of disaster is rather poor.
Hungary has an act (Act LXXIV of 1999) on the direction and organisation of disaster management and the
protection against major accidents related to hazardous materials. This act incorporates the subsidiary
system of prevention and protection of man-made and natural disasters into a uniform frame and regulates
and harmonizes the activities of the state, governmental, municipal and civil organisations on different
levels. It also defines the duties and measures of the government and the Government Coordination
Committee as the government organ responsible for the preparation and coordination of governmental
decisions related to disaster management.
There is a law which deals with current health care (CLIV 1997) and a regulation (158/1999 (XI.19) on
disaster medicine, which harmonises the aforementioned law and act. However, none of these all important
pieces of legislation contain any reference or provision for persons with disabilities in an emergency
situation or how to rescue them.
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4.6.4 SLOVENIA
One of the base pieces of legislation in Slovenia is the governmental act/doctrine on protection, rescue and
assistance. This is the fundamental doctrine for organisation, preparedness, action and implementation of
protection, rescue and aid in the case of natural disasters. There is a law (UL RS 71/93) on the protection
against natural and other accidents which regulates the protection of people, animals, assets, cultural
heritage and the environment against natural and other accidents. Slovenia also has a Fire Protection and a
Fire Service Act (UL RS 71/93), a Protection against Drowning Act (UL RS 44/00.), as well as a regulation
on the Organisation, Equipment and Training of Protection, Rescue and Aid Forces (UL RS 22/99). The
above pieces of legislation do not make any mention of the protection, rescue or aid to people with
disabilities.
Slovenia is also prepared for emergencies through a number of national plans. For example, they possess
plans for the protection and rescue in case of major fires, the use of weapons of mass destruction, terrorist
attacks, accidents at sea, earthquakes, floods or nuclear accident, railroad or aviation disasters. Reference to
the rescue of the disabled is usually made in these national plans under the heading “Personal and mutual
protection”. Personal and mutual protection includes measures to be taken by the population to prevent and
mitigate the effects of natural and other disasters or military and terrorist activities so as to protect their
health, lives and property in both the home and working environment. The primary responsibility for
assistance in this field is assigned to competent social services and humanitarian organisations. Disabled
are sometimes explicitly mentioned – or are included as “most vulnerable groups of the population” (as is
the case in the National Plan for protection and rescue in the case of floods).
There is a Red Cross of Slovenia Act of 1993 (UL RS 7/93) which contains provisions for the Red Cross in
assisting with first aid and rescue in disasters. The task of its units is to “provide temporary admission or
(respectively) enable temporary housing to the most vulnerable groups of the population (children, elderly,
pregnant women, disabled, gravely ill) in the case of natural or other disaster”. The assistance to the
disabled is usually not elaborated according to the rescue phase and references are only given for some
actions in the case of disasters, such as housing arrangements or consultation services. The later is
mentioned in the Regional Plan for protection and rescue in the case of floods in the Vzhodno-Štajerska
region under the heading of personal and mutual protection: “The municipality can organise the adequate
consultation service, usually run by volunteers, especially psychologists, sociologists, social workers,
health workers, experts from the field of protection and rescue and others for the assistance to the
particularly vulnerable groups of the population (elderly, disabled, sick)”.
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The law and guidelines are quite sparse when it comes to the disabled therefore; some clarification was
sought from the operatives - such as regional offices of the Administration for Civil Protection and Disaster
Relief in Ljubljana and Maribor. It was established that the planning of the rescue of disabled should, in
practice, be elaborated by companies and organisations on the level of “plant plans” as it is the
responsibility of every institution to devise a plan of rescue according to the special needs of the people in
its care. A 2006 Slovenian Law states that “plans for protection and rescue have to be devised also by
organisations that perform activities in the fields of education, social, health, etc., that include the care or
protection of a greater number of people”. This is elaborated further in the National Programme (2002).
4.6.5 SPAIN
A plan for emergency planning for situations of flooding in Andalucia (Plan de Emergencia ante riesgo de
inundaciones en Andalucia - 2005) is worth mentioning. Article 7 of this plan deals with evacuation actions
and the identification of vulnerable groups. It also contains provisions that highlight the existence of
vulnerable groups within the population, but with differentiation (e.g. the elderly and disabled). There is
also a model and development plan dealing with assistance to people with disabilities and the promotion
and accessibility of services (II Plan de Acciòn Para Las Personas con discapacidad 2003-2007). Area 1 of
this plan makes reference to the promotion of accessible emergency services with adopted transport. The
other four laws and decrees for Spain, dealing with forest fires and emergencies in Cantabria, to name a
few, contain nothing regarding the rescue of people with disabilities in disasters.
4.6.6 IRELAND
Ireland's review provides details on the Framework for Major Emergency Management and its
accompanying Guidance Documents (2006). Framework's Section 5 provides for vulnerable people. The
article reads that the principle response agencies and their associated emergency services should be
particularly aware of the needs of those individuals who, because of dependency or disability, are
particularly vulnerable during emergencies.
According to the guidance documents, vulnerable persons can include children in schools, nurseries and
child care centres, as well as persons whose movement is inhibited either by reasons of age, illness
(including mental illness), disability or those who are deaf, blind, visually impaired or hearing impaired.
Particular attention is required when an emergency involves or threatens a community hospital, residential
home or day centre, where such individuals reside or stay for part of the day. Guidance Document 1 again
provides for vulnerable groups. It gives an example of an Impact Assessment table in which to record the
impact to humans. This table incorporates the elderly, infirm, ambulant, non-ambulant, diabetic, physically
and mentally disabled, vulnerabilities by asthmatics, mental health, failure to take protective action, failure
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to understand instructions, physical or mental limitations, additional vulnerability or enhanced impact,
numbers affected, self-sufficient individuals or those that must wait for assistance.
Guidance Document 2 is on a par with the Garda Policing Plans, which makes no reference to people with
disabilities. At the local level, major emergency plans for Clare or Limerick make no reference to disabled
people. However, section 26 of the Kerry Emergency Plan covers the disabled. In any major emergency
situation, disabled persons require special consideration. The disabled may not be able to see, hear or
respond to any emergency warning system and are particularly vulnerable in emergencies that require
evacuation or other protective action such as flooding and toxic clouds. The emergency services are
reminded to make provision for the disabled in the event of major emergencies and to contact the special
agencies which cater for the disabled.
Appendix L lists organisations dealing with people with disabilities. Also considered is the British
Standards Institute BS 5588: Part 8: 1999, Fire precautions in the design, construction and use of buildings
code. This is a Code of Practice for means of escape and is one of the predominant pieces of legislation in
Ireland. It provides that disabled people should always have available safe means of escape in the event of
fire. The Code of Practice for the Management of Fire Safety in Places of Assembly also maintains that
staff should receive training for the evacuation of occupants, paying special attention to the young, disabled
and infirm.
The Guide to Fire Safety in Existing Nursing Homes and Similar Type Premises is quite apt as it provides
for people who are vulnerable and perhaps infirm or disabled when it comes to rescue in emergencies. The
Guide to Managing Evacuation makes some provision for hospitals. The section on barriers to
communication considers disability and special needs, such as people who have a limited ability to hear,
see or comprehend information, the elderly and infirm, and ways of overcoming the barriers are portrayed.
While considering methods of transport during evacuation, we are made aware of the fact that many
modern buses and mini buses are especially adapted for people with disabilities with space for wheelchairs
and rams. Rest centres should have disabled access and facilities.
A review of the following pieces of legislation revealed that there is little or no provisions or mention of
the development of plans to rescue people with disabilities: Disability Act 2005, Fire Brigades Act, Civil
Defence Board Strategic Plan 2007, Civil Defence Act 2002, The National Emergency Plan for Nuclear
Accidents and the Safety and Health and Welfare at Work Act 2005. There does not appear to be a specific
level of government responsible for coordinating the rescue plan for people with disabilities. Plans and
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frameworks included in this legislative review only contain very brief references to rescuing people with
disabilities.
The current framework on Major Emergency Management is both worrying and encouraging. While it does
briefly mention the disabled person and some of its guidance documents make provision for their safe
evacuation, it is worrying that such a new and up-to-date law does not actively dedicate a specific section
to people with disabilities.
4.6

CONCLUSIONS
In all countries investigated, although legislation was made at the national level, it is usually the
lower levels of government (regional or local) who implement the laws on the ground.

In general terms, from what has been reviewed, there is a lack of specific provisions in existing
legislation for rescuing disabled people in case of emergency disasters.

In all countries investigated, those plans including provisions for rescuing people with disabilities
refer to the removal of barriers on accessibility to buildings and public transport.

In all countries investigated, references to rescue plans for persons with disabilities are concealed
within the laws and not clearly available in the objectives.

Out of all the countries researched, only Italy has one separate plan addressing people with
disability. The other countries studied either mention the rescue of disabled people in the context of
the main plan or do not provide for these people at all.

In all countries investigated, no special references to the need to provide persons with disabilities
with health and social services assistance considering their special needs was identified.

In terms of logistical support, materials, equipment and provisions supplied, none of the countries
investigated consider people with disabilities.

In all countries investigated, in terms of prevention, there was little reference to the need to provide
for special alert for persons with disability of potential disasters. Some plans did include particular
methods for alerting people with disabilities, taking account of people with sensory impairments.
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In all countries investigated, there were limited references to evacuating people with disabilities.
Italy, Ireland and perhaps Slovenia were among the countries that did include special evacuation
procedures for people with disabilities.

In all countries investigated, in terms of emergency shelter for people with disabilities, only one
plan in Ireland recognised that rest centres must include special conditions, adaptability and
accessibility for persons with disability.

In all countries investigated, reference is made mainly to vulnerable people and only a few
examples were identified where a distinction is not made between vulnerability and disability.
4.8

RECOMMENDATIONS
Need for new or modified relevant legislation at the European and Member State levels to deal with
all aspects of the rescue of persons with disability in case of disaster. This includes the special needs
of persons with disability during all phases of an emergency situation (planning, mitigation and
reconstruction) in order to guarantee equal access to disaster response and relief.

Importance of the participation of persons with disabilities in any review process of existing
legislation or in the drafting of new legislation.

Importance of relevant stakeholders in influencing public and legislative authorities to commit
themselves to include specific provisions for rescuing disabled people in case of emergency.

Need for relevant legislation to make a distinction between the general population, vulnerable persons
and persons with disability in their legislative provisions.

Need for raising awareness on the importance of including protocols and emergency rescue plans in
binding procedures through communication strategies and collaborative networks at the European
level.

Importance of exchanging current "best practices" and experiences between countries.
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CHAPTER 5: SECTOR ANALYSIS
5.1
INTRODUCTION
This chapter summarizes the results of research carried out in selected European countries concerning how
different emergency systems/structures address the situation of persons with disability in case of disaster.
ULSS 20 Verona was responsible for summarizing the findings of the research activities conducted by the
different project partners.
The objective of the study was to compare differences and find similarities with a view to identifying best
practices on this subject. The methodology was a combination of theoretical (literature/documentation) and
practical research (interviews).
The research was carried out at either the local, regional or national level in the five countries representing
the partners participating in the EU-funded project. In all countries, it has been difficult to identify clear
and well-defined instructions as to how to respond to the needs of persons with disabilities.
There are many commendable initiatives in some of the countries where research was carried out, ranging
from training to the development of special equipment for the rescue of persons with disability. However,
these initiatives are being coordinated by individual institutions or organisations rather than at a nationwide
level.
It was clear that while most services/agencies responsible for civil protection who were contacted in
connection with this project welcomed the research subject and were extremely willing to co-operate in
providing information, it is apparent that the civil protection and disability issues have not been treated
under the same umbrella in a coordinated manner.
This is particularly evident from the point of view of statistics in that it has been difficult to establish the
number of casualties related to persons with disabilities in a disaster situation. Therefore, this chapter
makes a number of recommendations that, generally speaking, support the need for raising awareness
among all the different stakeholders on the subject of disability and disaster, as well as the need for
mainstreaming of disability issues into policy and planning of civil protection matters.
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OBJECTIVES OF THE WORK
The overall purpose of this study was to compare the differences and find similarities in selected European
countries with regard to how the different emergency systems/structures address the situation of persons
with disability in case of disaster, with a view ultimately to identifying best practices.
In order to reach this objective, the study was broken down into individual components, each of which has
a specific objective as follows:
Firstly, the purpose of this study was to describe the different approaches and systems of the different
relevant sectors of the argument in question, namely, psycho-social services, healthcare, emergency
services and civil protection in selected European countries.
Secondly, having established the system of operation, the study aims to provide an overview of the formal
mechanisms currently in place within the existing systems for the rescue of persons with disability in case
of emergency.
Thirdly, the study aims to describe any practical experiences identified such as start-up experiences,
experiences underway and completed experiences that have been or are being tested at local, regional or
national levels before becoming part of formal rescue mechanisms.
Finally, the study aims to identify any existing documents such as an expression of interest highlighting the
need for an emergency system that pays particular attention to the needs of persons with disabilities.
5.3
KEYWORDS
Civil protection; persons with disabilities; vulnerable persons; rescue procedures/protocol; disaster,
emergency; impairment; alert systems; simulation schemes; special equipment; evacuation.
5.4
METHODOLOGY APPLIED
The methodology for carrying out the research activities for the sectoral analysis involved the same steps as
the literature and legislative reviews, starting with initial discussions on the draft methodology during the
first technical meeting and the formal guidelines for information collection for approval by partners
elaborated between April – September 2006. Also similar to the guidelines for the literature and legislative
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reviews, the guidelines for the sectoral analysis were written in a manner to ensure consistency in
collection, facilitating the drawing up of the summary report.
Partners carried out the research activities for the sectoral review through a literature review (books,
journals, newspaper articles, laws, theses, conferences) as well as interviews with local stakeholders. The
information was also presented at the second meeting in April 2007 and modifications made.
The findings were analysed by comparison in order to draw some general conclusions about the situation in
Europe and compile them in a summary report. Similarly to the legislative report, this report does not
present a definitive overview of the European dimension but does provide a representative picture of how
the issue of disability in the context of an emergency/disaster situation is addressed.
5.5
SETTING
The information was collected in the countries of the partner organisations (Italy, Ireland, Slovenia and
Spain). As previously indicated in the legislative review chapter, each country has a different system in
operation but it can generally be said that the principle of gradualism applies in each country and the
situation is handled either at a local, regional or national level depending on the size/level of the
emergency.
Specific areas of interest were:
-
Italy. Regional level: Veneto. Local level: Verona and Turin. National level: Italy
-
Ireland. Regional level: Cork, Limerick, Clare and Kerry. National level: Ireland
-
Spain. Regional level: Cantabria. National level: Spain
-
Hungary. Regional level: Pecs. National level: Hungary
-
Slovenia. Local level: Ljubljana. National level: Slovenia
5.6
DISCUSSION
5.6.1 DESCRIPTIVE ANALYSIS OF THE SECTOR
The following section describes the different bodies/organisations involved in a disaster/emergency
situation, as well as their interaction with one another in the different partner countries. In each case, the
description begins with the highest level of coordination, which is at the national level and under the
responsibility of a government ministry or department, and then goes on to describe the regional or local
systems.
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Italy
There is a multitude of different organisations that have a role to play in a disaster or emergency situation
in Italy, either directly or indirectly. According to the Italian Law n.225/1992, “The national service of
Civil Protection has many operative structures: the national body of fire fighters as a fundamental member
of Civil Protection; armed forces; police forces; State Forestry Corps; national technical services; national
scientific research groups in compliance with section 17, the national institute of geophysics and other
research institutes; Italian Red Cross; the national health service structures; volunteer organisations; the
national alpine aid corps (CNSA) (CAI: Italian Alpine Club)”.138
First and foremost, the Department of Civil Protection, which falls under the direct responsibility of the
Presidency of the Council of Ministers (Prime Minister), is responsible for the management, coordination
and implementation of various activities including forecasting and prevention, emergency management and
overcoming the emergency. The Department works closely with the Regional Civil Protection Committee,
the Provincial Civil Protection Committee and the Municipal Administrations in line with the political
administration of Italy at local, provincial, regional and national levels.139
This operative system is characterized by the principle of subsidiary where every structure has its own
competences: “Every municipality may provide itself with a civil protection service in the context of the
regulation frame mentioned in law n. 142 of 8 June 1990 regarding local independence”.
The region, in respect to its competence in organising the carrying out of administrative functions at the
local level, supports the organisation of municipal structures of civil protection in the best ways and means.
The mayor is the municipal authority of civil protection. If an emergency occurs on municipal territory, the
mayor shall take on direction and coordination of the emergency aid services to the concerned populations
and shall arrange for the relevant interventions. He shall inform immediately the prefect and the president
of the regional council.
When the natural disaster or event cannot be tackled with by municipal means, the mayor shall ask the
prefect for the intervention of other forces and structures. The latter shall adopt the competence procedures,
coordinating his interventions with those of the municipal civil protection authority140.
The Italian Fire Brigade can also be present in an emergency situation and their mandate is not limited to
fires but extends to many other situations, such as flooding, collapse, road accidents involving persons or
138
Italian Law n.225 of 24 February 1992, Establishment of the national civil protection (Section 11).
Vade-mecum of civil protection in the European Union, October 1999, page 77
140
Italian Law n.225 of 24 February 1992, Establishment of the national civil protection (Section 15).
139
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dangerous substances and other risks posed by the use of nuclear energy. The main activities of fire
brigades include the following: fighting against fires; reducing the number of fires and deaths and injuries
caused by fire; the rescue of citizens in every emergency situations (earthquakes, eruptions, etc.);
responding to other types of incident such as vehicle accidents, trapped people and animals, storms and
floods; providing services that plan and prepare for large-scale emergencies such as large rail crashes,
coastal pollution and severe floods141.
The Emergency Medical Service (118) can also be involved in an emergency or disaster situation in that
they provide pre-hospital or out of hospital acute care to patients with illnesses and injuries. The toll-free
118 number gives 24-hour access to emergency medical assistance throughout Italy. If the patient requires
transport to a hospital, an ambulance or helicopter ambulance is sent. If the patient does not require
transport to a hospital, the First Aid Service (Guardia Medica) is sent.
The emergency number is also in contact with mobile units, hospitals and other services which intervene in
emergencies (Police, Fire Brigade, Emergency Services, etc.)142. The aim of the 118 Service is to provide
treatment to those in need of urgent medical care, with the goal of either satisfactorily treating the problem
or arranging for the timely removal of the patient to the next point of definitive care. The activities of the
118 Service are under the responsibility of the ULSS (Public Health Authority), which is the subject of the
next paragraph.
The Italian Health System is coordinated centrally at the national government level for national planning
and co-ordination of all matters regarding public health. Management is decentralised to the 20 regions of
Italy, which in turn assign administrative and account management to Local Health Agencies and Hospital
Corporations (Aziende Sanitarie Locali (ASL)143. There are 195 ASLs in Italy, of which 22 are located in
the Veneto region. The system in the Veneto region has a further distinction as social services are linked
directly to local health agencies instead of municipalities. ASLs and hospital corporations, as providers of
health and social services, can be involved in a post-emergency situation.
Maintaining public order in an emergency situation is essential. The Public Security National Authority
responsible for public order and security maintenance is the Minister of the Interior. The function of the
Public Security Administration is exercised at a central level by the Public Security Department and by
provincial and local authorities, public security officials and officers at the local level144.
141
http://www.vigilfuoco.it/default.asp?menu=0
http://www.unibg.it/struttura/en_struttura.asp?cerca=en_ects_info_06
143
http://www.ministerosalute.it/ministero/sezMinistero.jsp?label=ssn
144
http://www.poliziadistato.it/pds/index.html
142
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Finally, the Italian Red Cross, comprising of Military corps, voluntary nurses, first aid, women’s
committee, pioneers and blood donors, can also provide valuable resources in an emergency situation.
Ireland
For matters pertaining to civil protection, the body in charge is the Department of the Environment,
Heritage and the local government.
The principal response agencies for major emergencies occurring in Ireland are An Garda Siochana, the
Health Service Executive and the principal local authorities. These are the bodies that are designed by the
government to interact and respond in accordance with the Framework on Major Emergency Management.
An Garda Siochana is the Republic of Ireland national police force and should undertake the following
functions in response to a major emergency: declaration of a major emergency and notifying the other two
relevant principal response agencies; maintaining law and order; traffic management; crowd control;
implementing agreed aspects of evacuation procedures; assisting and directing survivors/uninjured people
away from the site to places of safety; collecting information on casualties and survivors; arrangements in
respect of the dead; recovery of bodies; preservation of the site; collection of evidence and forensic work.
The Health Service Executive (HSE) was officially established in 2005 to manage and deliver health and
personal social services in Ireland. The HSE should undertake the following functions in response to a
major emergency: declaration of the emergency; provision of medical advice and assistance; provision of
medical aid to casualties at the site; triage of casualties and assigning them to hospitals for evacuation;
casualty evacuation and ambulance transport; provision of hospital treatment; certification of the dead;
provision of community welfare services; clinical decontamination of contaminated persons upon arrival at
hospital; exercising control of any voluntary or other service which it mobilises to the site.
Finally, local authorities provide local government functions, which are divided up into a number of
structures. There are 29 county councils, 5 city councils and 75 town councils. The functions of the local
authority at a major emergency are: activation of the Major Emergency Plan; extinction of fires; protection
and rescue of persons and property; containment, neutralisation and clearance of chemical spills and
emission; decontamination of persons at the scene if necessary; maintenance of Local Authority Services;
provision of access to the site; forensic support for Garda; advice on evacuation; accommodation and
welfare of persons displaced by the emergency; site clearance, demolition, clean up operations, removal
and disposal of debris; provision of food and rest facilities for personnel responding to the emergency;
control and direction of all activities within the danger area; participation of the co-ordinating group.
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If required by the magnitude of the disaster, the support of civil defence reservists and other volunteer
organisations (e.g. Red Cross, the Order of Malta, St. Johns Ambulance, etc.) can be called upon.
Slovenia
The system in Slovenia is based on the obligation of: the State (Ministry of Defence) and municipalities
(the mayor); commercial companies, institutions and other organisations (services of emergency medical
assistance; unit for the identification of the dead, institute for forensic medicine, unit for hygienicepidemiological work, mobile unit for meteorology and hydrology, ecological laboratory with a mobile
unit, unit for protection and rescue in the accidents involving chlorine and other corrosive substances, unit
for mining accidents, mobile information unit, service for protection and rescue in the case of ecological
and other accidents at sea); and citizens (at an individual level and grouped in voluntary organisations).
The Ministry of Defence is responsible for the organisation, preparation and implementation of the system
for civil protection and disaster relief, and the rights and duties of citizens with respect to defence, civil
protection and disaster relief.
Within the Ministry, the Administration for Civil Protection and Disaster Relief performs the following
tasks: administrative and professional tasks related to the organisation; preparation and operation of the
system of protection against natural and other disasters; provision of assistance to local communities
affected; monitoring, notification and warning; the communications and information system; assessment of
damage caused by natural and other disasters; protection against fire and the provision of general rescue
services; organisation and operation of civil protection, and preparations for and the functioning of the
Civil Protection Headquarters of the Republic of Slovenia; preparation and implementation of national
programmes for protection against natural and other disasters; disaster relief and post-disaster remediation
and reconstruction.
For the use of forces and means in carrying out of civil protection measures, the principle of graduation
applies:

Local community first uses its own resources and means for protection, rescue and aid in the
case of natural or other disaster.

In cases of disasters with a greater scope or risk in which the forces and means of local
community are not adequate or are not provided between the neighbouring local communities,
the state provides the use of forces and means from the wider area.

Army and defence means can be used for protection, rescue and aid, if the available forces and
means are not adequate for the emergency rescue and aid (provided the army is not needed in
carrying out the defence duties).
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Hungary
The central organ for disaster management is the National Directorate General for Disaster Management
operating under the control of the Ministry of Local Government and Regional Development. Instead of
two co-operating organisations, an integrated organisation avoiding duplications was established by the
integration of the National Headquarters of the Fire Service and the National Headquarters for Civil
Protection. The 19 county directorates, the Civil Protection Directorate of the Capital, the Disaster
Management Directorate of the Airport and the Fire Service Headquarters of the Parliament are under the
control of the Directorate General. County directorates control the local organs for disaster management
and the local civil protection offices and practice professional supervision over the municipal and voluntary
fire brigades and fire brigades of establishments.
Spain
The system in Spain stands out because of its particular political system. Spain is divided into 17
autonomous communities (communidades autónomas); each with its own elected regional parliament,
government and president. The autonomous communities are divided into 50 provinces, headed by a
provincial government and an elected provincial council.
The role of the different administrative organisations in disaster management activities is defined in the
national civil protection plans. There are two types of civil plans which are formulated by the National
Commission of Civil Protection:

Territorial plans are constructed to address the general emergencies that can happen at each
territorial level: national/state, regional/autonomous communities or local.

Special plans are constructed to address specific risks (floods, earthquake, forest fires and
volcanoes).
The National Commission of Civil Protection is made up of representatives of the various ministries
involved in the management of emergencies, of the autonomous communities and of the local
administration.
The declaration of national interest for natural disaster is done by the Minister of Interior. The initiative
comes from its own responsibility or from an autonomous community requirement.
This declaration implies that the corresponding authorities use their territorial plans (autonomous
community, provincial, supra-municipal, insular and municipal plans) or special plans. The management
and coordination of the actions are realised on the national level.
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The "Direccion General de Proteccion Civil" (DGPC) of the Home Ministry is in charge of the state level
activities in the civil protection domain (state plans). The main areas of responsibility include:

Analysis - study and forecast of the situations of risk involving the analysis of possible disaster,
its causes and the possible damages

Prevention - study of natural disasters and decisions to reduce the potential risk, its occurrence
and damages

Planning - develop emergency planning and an operational structure

Intervention - population and intervention services alert and rescue services

Rehabilitation - reestablishment of essential public services and essential environmental and
socio-economic conditions

Information - increase public awareness of civil emergency plans and situation operations
5.6.2 CURRENT SITUATION
The following section provides an overview of emergency mechanisms for persons with disabilities
currently in place in the different partner countries. The research was generally carried out in a specific
geographical area selected by the partner country.
Italy
Weather risks (e.g. storms, snowfalls, etc.), floods and earthquakes are frequent calamities in Italy. In
particular, in the Province of Verona, the local area where the analysis has been conducted, a number of
earthquakes have occurred, although none of particular relevance in this century.
It appears that the Civil Protection of Verona has no specific formal protocols for rescuing persons with
disabilities and particular trainings are not currently planned for the volunteers. Similarly, simulation
schemes for rescuing persons with disabilities are apparently not performed by the Civil Protection of
Verona. Based on the information currently available, these conclusions can be extended to all the Civil
Protection in Italy.
A few examples of simulation schemes have taken place at a local level where the issue of disability has
been considered. In 2007, the procedure for rescuing a disabled student in a situation of emergency was
tested in the town of San Giovanni Lupatoto.
According to the analysis performed, it can be concluded that the Department of Civil Protection of
Verona, as the other departments in Italy, do not have special equipment necessary for the rescue of
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persons with disabilities. However, the 118 Department of Verona Emergency has a specific fax number
dedicated to persons without speech and hearing to communicate the danger to which they are exposed.
Ireland
Main disasters in Ireland are predominantly fires and floods. It must be stated that Limerick, the special
study area where the research has been conducted, has not suffered any major disaster or emergency in the
past. In the future, river flooding is the most tangible threat.
Although extensive research was carried out electronically via interviews with various stakeholders, it was
concluded that there was no clear reference to the specific and all-important needs of disabled people in
alert systems and rescue protocols in Ireland. In fact, it appears that no concrete protocols or systems
relating to rescue seem to exist or are made public knowledge in Ireland.
Relative to the existence of simulation schemes in order to test the effectiveness of alert systems/rescue
protocols, information from the Fire Service in Limerick divulged that certain fire and rescue staff are
specifically trained in the rescue of people with disabilities. Apparently, there are simulation schemes
which test how the Fire Service would rescue disabled people in emergency situations. However, they
appear to be of limited value and not carried out with people who have real disabilities.
On the other side, from information made available by the FireOx International organisation, it was
revealed that an evacuation exercise/simulation scheme was carried out in a Dublin shopping centre in
January 2002. It is thought that it was testing how to evacuate people with disabilities but not with people
who actually had an impairment. Unfortunately no more details are available.
Regardless of these reported instances, knowledge of simulation schemes or tests appears not be made
public and that only people immediately involved are aware that they even take place.
Relatively to the equipment for rescuing disabled people, in discussing this project with a senior fire officer
in Limerick, it was pointed out that the Fire Service does not carry any special equipment or special
stretchers for the rescue of disabled people. Firemen would carry any individuals who could not walk out
of the building. In larger organisations, perhaps such as a care centre or a special needs school or a nursing
home, it is possible that there might be an evacuation chair to assist in the egress of disabled persons.
In consultation with different disability organisations, the researcher was informed that Vimpex, a UK fire
alarm technology company, provided specifications for audible/visual alert systems.
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FireOx International explored the methods of assisted evacuation in a presentation in March 2006. Assisted
evacuation is where disabled people are helped to evacuate buildings in times of emergencies. Assisted
Evacuation Technique 1 is for people with mobility impairment. It illustrates how to correctly carry a
person in a wheelchair down stairs in emergencies and features also, where available, a special lifting and
carrying chair. However, it often transpires that disabled people will usually be carried out of the building
by another person or by a specially trained rescue officer. For people with visual impairments, assisted
techniques for evacuation are grasping techniques where the visually impaired person is aided or guided by
another person's arm. Any assisted evacuation should be used in conjunction with consultation of the
disabled person involved.
A similar presentation by FireOx outlined other special evacuation equipments available for people with
disabilities. These types of equipments are installed in the building and are fire protected and structurally
hardened elevators/lifts, exterior evacuation devices and stairwell decent devices, all designed for use by
people with disabilities.
In conclusion, these are types of special equipment that should be available to rescue people with
disabilities, but it is unclear as to exactly which types are actually used in practice in Ireland apart from the
traditional method of carrying the person.
Slovenia
The most frequent disasters in Slovenia are:

Earthquakes: Ljubljana (and wider area of Ljubljana region) is among the most endangered by
earthquakes in Slovenia and where the possibility of a major (destructive) earthquake exists.

Floods: almost a third of Ljubljana’s municipalities including Ljubljana itself, are classified as
under “high flood risk.”
For the region of Ljubljana, there are two main protocols in place: a plan of protection and rescue in the
case of an earthquake and a plan of protection and rescue in the case of a flood. They have both been
prepared by the Administration for Civil Protection and Disaster Relief - regional branch Ljubljana and
adopted by the Civil Protection Headquarters for the Ljubljana region. Specific institutions, such as
kindergartens, schools, companies, retirement homes and hospitals have to adopt their own specific plans.
Within the plans, it is specified that listed protection and rescue units, including the Housing unit of
Slovene Red Cross, are meant to provide supply and care to particularly vulnerable categories of
population (e.g. pregnant women, disabled, elderly and mothers with children).
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Furthermore, there is a range of regional rescue plans for the Ljubljana region for nuclear incident, railway,
road tunnel and smaller incidents.
Relative to the existence of simulation schemes to test the effectiveness of alert systems and protocols;
there are a number of examples. The Exercise Earthquake 2004 was a national simulation that took place in
the wider Ljubljana region under the premise of a major earthquake in Ljubljana and involved over 700
participants. It was organised by the Ministry of Defence, Administration for Civil Protection and Disaster
Relief and the Administration's regional branch – Ljubljana, Municipality of Ljubljana and operators
implementing tasks involved in plans of protection and rescue (Civil Protection units, rescue units, the
Slovene Red Cross, police, army, etc.).
In 2007, two exercise withdrawals from a kindergarten in case of a major earthquake for children and staff
were executed and a protection and rescue exercise “Earthquake in the elementary school of Koseze” was
tested. A regional verification of the preparedness of the first aid Civil Protection units gathered 11 teams
from the municipalities of the wider region of Ljubljana. The event tested the preparedness for the
assistance in the case of mass accidents.
There is also a Training Centre of the Republic of Slovenia for Civil Protection and Disaster Relief. The
Training Centre, the main national educational institution in the area of protection against natural and other
disasters, is run by the Administration for Civil Protection and Disaster Relief, and located in the Ljubljana
region. It provides training and simulations for the forces of protection and rescue.
So far, no reference of special equipment was found in the documents under review.
Hungary
The research for Hungary was conducted is Baranya County, located on the southern border of Hungary.
Typical disasters are predominantly local flood damages caused by snow melting; there are few and
restricted forest fires during the long time dry season and isolation of small villages due to heavy snow.
According to the information retrieved, the rescue of elderly and persons with disability from their home is
very time consuming because of the lack of rescuers, special tools and care givers.
No specific reference has been found in the literature reviewed and the analysis conducted relative to the
existence of simulation schemes to test the effectiveness of alert systems and equipment dedicated to the
rescue of disabled persons in case of disasters.
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The local fire departments and civil protection organisations have acknowledged that the question of the
rescue of persons with disability has not yet been resolved in the Baranya County. In addition, it was
confirmed that the Department of Civil Protection of Baranya County does not have special equipment,
methods and communication techniques for the rescue of disabled persons.
With that said, regulation of evacuation and rescues are under development. Based on future challenges,
disaster management has determined the tasks on which it will have to focus. These include tasks of major
importance such as prevention, technical upgrade required for efficient response, systems ensuring faster
flow of information and the development of monitoring systems. Further development of the current
location and an increasing number of fire brigades will reduce deployment time. The strategy's most
important concept is the close co-operation with local governments, NGOs and special rescue organisations
and preparing citizens in advance for managing emergencies, including the training of young people and
disabled persons in these areas.
Spain
The most common past threats in the area of Cantabria, where the study has been conducted, were related
particularly to river-floods. In July 2007, there was a river-flood which affected 1,406. This information
did not appear to provide any indication regarding the number of people with disabilities out of the total
number of people injured.
There does not seem to be any specific reference on the needs of disabled people in rescue protocols in
Cantabria, however we can find interesting and useful information concerning alert systems.
So far, simulation schemes in Cantabria for testing alert systems have been practiced mainly in
mountainous areas. Cantabria is highly featured by valleys and mountains where tourism is encouraged.
Recently, a simulation scheme for rescuing in case of emergency took place in Picos de Europa. Civil
Protection units contributed to rescuing tasks with the Rapid Intervention Group which comprised adapted
vehicles with telecommunications mechanisms; Red Cross volunteers; firemen experts in mountain areas
and agents of rescuing intervention groups of the police.
The exercise was divided into three phases:

Simulation of rescuing uninjured people in an area of difficult access and unable to descend by
their own means

Rescuing injured person trapped in mountain walls, unable to move

Evacuation of another injured person on a bed
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In parallel, simulation schemes for rescuing people at the beach regularly take place in Sardinero Beach
(Santander). Volunteers of Civil Protection and the Red Cross along with the Regional Government Rescue
Team take part in these schemes and a sea bike, boat and helicopter are normally used.
The Regional Government of Cantabria provides 500.000 € per year to 17 municipalities for beach rescue.
678.000 € are allocated for training the 29 teams of Civil Protection, including 540 volunteers. The
Regional Civil Protection School organises 16 courses for 700 to 800 volunteers.
From the information collected, it can be concluded that no specific adapted equipment for rescuing
disabled people appears to be used by the Civil Protection service emergency units or the fire brigades.
5.6.3 SECTORAL EXPERIENCES
The following section provides an overview of any practical experiences in the field of the rescue of
persons with disabilities in the different partner countries. One or more real examples have been selected
by each partner country in order to outline how the system addresses persons with disabilities in a real life
situation.
Italy
The region of Irpinia, along the southern Apennine chain, is one of the highest seismic hazard areas of the
Italian peninsula. On November 23rd, 1980 an earthquake took place in this region and centered on the
village of Conza. It measured 7.0 on the Richter Scale, killing 2,914 people, injuring more than 10,000 and
leaving 300,000 homeless. Towns in the Avellino province were hardest hit. Damage spread over more
than 10,000 square miles, including Naples and Salerno.
It appears that there is no specific reference to the number of injuries and fatalities of persons with
disabilities out of the total number of casualties in this data.
The sectors involved in the emergency situation in Irpinia were:

The armed forces: 19.545 units with 2500 vehicles

Navy forces: 2000 units

Air forces: 5400 units

Polices forces: 8929 units with 1529 vehicles and 12 helicopters

Public security forces: 4311 units

Fire Brigade: 4792 units

Customs officer forces: 1217 units

State Forestry Corps: 633 units
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Foreign forces from Belgium, France, United States, Austria, Switzerland and Germany: 983 units
At midnight on 23 November, 2000 army soldiers were in 26 municipalities destroyed by the earthquake.
The planning of emergency included dividing every province into many COS (operative areas), involving
different municipalities and 350-400 units; every mayor having an official person responsible for managing
the emergency; the Fire Brigade bringing aid urgently to citizens through technical teams and 4792 units as
their main intervention145.
As it was not possible to establish data regarding to the number of casualties related to persons with
disability, by the same token, it was not possible to establish how such cases were addressed during the
disaster.
Ireland
Flooding is one of the few natural disasters that affect Ireland on a regular basis. Severe flooding hits much
of Ireland, but specifically Clonmel. The most recent case of severe flooding took place in October 2004,
where Clonmel was turned into a rapid stream. Roads were blocked and the fire service had to force its way
through the large volumes of water.
Despite research carried out, there was no way of identifying how many people were injured by the floods
in Clonmel, or indeed in Ireland in 2004. Thankfully, there were no fatalities at that time. It appears that no
disabled individuals were injured or even involved in the incident. Other vulnerable groups that were
involved were the elderly and children. A lot of damage to property was reported and many homes were
evacuated. .
The principal agencies and many of the sectors typically involved in disasters provided prompt response
and assistance in the floods of 2004.

Civil Defence: Civil defence personnel and emergency services were on standby for rescue at all
times. They helped other emergency services evacuate families and rescued any people trapped in
high waters.

The Health Service Executive: Health authorities advised people in need of accident and
emergency services of which hospitals to attend and tended any injured people.

Local Authorities: Teams were put in place to clean up the flooded areas and the damage was
assessed. Warnings were issued to communities to take precautions in preparation for the severe
flooding.
145
http://www.ispro.it/core.aspx?cat=248
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The Fire Service: The Fire Service was inundated with reports of flooding and had units at
different locations in the cities and towns. They rescued any people who needed rescuing and
evacuated homes.

Gardai: Gardai noted a lot of surface water and advised motorists to avoid any areas affected by
flooding. They assisted evacuation procedures and stood authority over affected areas.

The Irish Red Cross: The Irish Red Cross gave details of a phone helpline for people in the
southeast looking to apply for humanitarian aid following the recent severe floods. People in areas
such as Clonmel and Waterford were still cleaning up after their flooding in November 2004 with
the help of the Red Cross. The Irish Red Cross also distributed government humanitarian aid to
victims of the floods. This followed a government decision to appoint the organisation to distribute
aid to those who had suffered severe hardship.

The Health and Safety Authority: Issued a warning to farmers and those working in the building
industry to take extra precautions.

The National Safety Council: Advised motorists to travel only if necessary and to watch out for
falling debris on the roads.

The Coastguard: On call to back up regular emergency services and rescued a number of trapped
people in Cork.

The Office of Public Works: Assisted as best it could, offering advice to those affected by
flooding and helping with cleanup operations.
During this particular flood emergency, many operational decisions had to be reached quickly by a wide
variety of organisations, many of which would have been based on the use of geographical information.
Collecting the data required for decision-making is frequently time-consuming and laborious. Under
emergency conditions, the lack of ready access to such data may result in poor decisions and conceivably
greater risk to lives and property. There is now in place a GIS-based emergency response decision support
system developed by the Coastal Marine Resources Centre for the Shannon Estuary.
There is now a plan to establish a flood relief programme for Clonmel, which is estimated to cost about €35
million. It should be able to provide protection against a 100-year flood, which means that an area has a
one percent chance of being inundated each year. Additionally, pressure has been placed on the Irish
Government to assign all responsibilities for flood management and emergency initiatives to a National
Flood Defence Agency, which could then provide more integrated support to areas hit by a flood.
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Slovenia
In Zgornje Posočje in 1998, an earthquake took place with a local magnitude of 5.8 on the Richter scale,
making it one of the biggest natural disasters in Slovenia. The earthquake was followed by several rockfalls and landslides and within the first 10 days after the earthquake there were around 430 aftershocks.
The regional and municipal organs in the field of protection and rescue management were activated
immediately, as were the essential forces for protection, rescue and assistance. The activities of the Civil
Protection, firemen and other rescue forces were mainly concentrated to covering roofs, providing shelters
to the affected population, implementing urgent measures of protection, rescue and assistance, direct help
to affected persons and clearing of roads and streets. The Slovene army was also involved in the rescue
operations. After less than two weeks, basic living and housing conditions were assured for all, so the
forces for protection, rescue and assistance ceased the operations and the post-earthquake reorganization
could begin.
In 2004, an earthquake with a local magnitude of 4.9 caused considerable material damage. More than
1700 buildings were damaged. It originated only a couple hundred meters to the northeast of the
earthquake of 1998. This earthquake was also followed by rock falls and landslides. The competent
authorities of the involved municipalities assured the transportability of the roads and the functioning of the
telecommunications and electrical power supply. During the first week after the earthquake, local firemen
and firemen from the Goriška region removed all dangerous ruins (chimneys, roofing, etc.) and secured
dangerous areas and provided temporary housing for 140 people.
Only in 2004 were there any casualties and it appears, from the data collected, that no casualties were
related to disabled people.
Hungary
In the last few decades, it appears that only one case of fire happened in Baranya County, during which 5
people died and 18 were injured in a two-story building for elderly and disabled-people in Mohács (March
14, 1981). The fire was caused by an electric problem on the second floor and spread quickly due to lack of
an alarm or extinguishing systems.
From the research conducted, a second case is reported: a fire that took place in a home for psychiatric
patients (February, 1 2007) in Borsod-Abaúj-Zemplén County. The fire was caused due to the breaking of
the smoking rules. Casualties reported were four men, chronic serious mental patients. The National
Ambulance Service, Fire Brigade and police arrived in 5 minutes and each sector reported there were no
complications during this situation.
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In terms of flooding, Hungary declared an emergency situation on 3 April 2006. The level of the River
Danube rose to 861cm in the early hours of 5 April. This was the third highest level ever recorded (867cm
in 1876 and 848cm in 2002). The two isles of the River Danube were closed and a shipping embargo was
enforced all over the Hungarian section of the Danube. Waters began to subside by 23 April and reports do
not mention injuries.
In addition, Hungary reported that its second largest river, the Tisza, reached a record level of 9.8 metres
on 18 April, threatening some 160,000 people and over 50,000 homes. The Hungarian government
extended a flood emergency to Hungary's three Koros Rivers to the southeast of the country.
Disaster management, civil protection, water management, police agencies, fire brigades and local
governments were taking part in the emergency operations involving almost 23,000 people. There is no
data on the number of persons with disabilities included in this number.
Spain
During the terrorist bombings of March 11, 2004 in Madrid – commonly referred to as 11-M – all four
trains containing explosive devices had departed the station at Alcalá de Henares between 07:01 and 07:14.
At 08:00 emergency relief workers began arriving at the scenes of the bombings. By 08:30 SAMUR
(Servicio de Asistencia Municipal de Urgencia y Rescate), the emergency ambulance service, had set up a
"field hospital" at a sports facility at Daoiz y Velarde. Hospitals were told to expect the arrival of many
casualties. Bystanders and local residents helped relief workers. Firemen and policemen were constantly
reporting the updated number of casualties and fatalities.
The group of rescuers consisted of 165 people who participated in different rescue and support operations,
of whom 30.1% were men and 69.9% were women, with an average age of 34.9 years. Psychologists,
police, doctors, social workers, educators and teachers were among the professionals in this group. Of
these, 20.6% were involved in rescue work inside the bombed trains; the rest, as well as part of this 20.6%,
provided direct help to survivors, families and friends in locations such as the IFEMA (Feria de Madrid)
crisis centre, hospitals, funeral homes, etc.
Officially 191 people died and 2051 were injured, of whom 82 were in critical condition. The bombings
also had consequences on a larger number of people in terms of psychological effects of different types and
severity, with the result that a substantial proportion of Madrid’s citizens reacted in a clinically significant
manner. It appears that a clear number of disabled casualties had not been collected.
Wounded people were carried by different means to various hospitals in the Madrid Autonomous
Community, principally to the two largest public hospitals in Madrid: Hospital Gregorio Marañon (312
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casualties) and Hospital Doce de Octubre (242 casualties). Other hospitals involved were the Clínico San
Carlos, Hospital de la Princesa, Hospital de la Paz, Hospital Fundación de Alcorcón, the El Niño Jesús
Hospital and the Hospital Central de la Defensa.
The amount of resources mobilized to the care of the wounded was unprecedented in Spain, with more than
70,000 health personnel involved, 291 ambulances for transport, and 200 firemen and police vehicles. The
health authority activated the emergency plan for disasters, which consists of fitting out all the operating
theatres in the hospitals, postponement of all non-urgent scheduled operations and the call of duty of all
available health staff.
5.6.4 APPROVED DOCUMENTS OR EXPRESSIONS OF INTEREST
The following section provides an overview of the existence of any documents (even in a preparatory
phase) that highlight the needs for an emergency system that takes into consideration the particular needs
of persons with disability in case of disaster.
Italy
“Il metodo Augustus”146, written by the Italian Department of Civil Protection and Ministry of Interior, is
an executive document including guidelines to create a flexible plan for emergencies and a system of coordination between the involved actors. It is a manual for planning of emergency situations at the national,
provincial and local level. It determines 14 executive functions for the Prefects and 9 for the municipalities
and there is a specific chapter about the safeguard of population and in particular, persons with disabilities.
Ireland
In Ireland, it appears that there are currently no formal commissioned documents that demonstrate an
interest expressed by organisations/institutions towards the issue of rescuing persons with disability in case
of disasters. One document has been prepared by Mary Keogh, a non-governmental author who works for
the Centre for International Rehabilitation in Dublin and is also the European Regional Coordinator for the
International Disability Rights Monitoring Project. Her document was a proposal for entry into a
competition, Make a Difference, run by Vodafone. The project proposal was published in 2006. The
contents of this 2 page document focus on the inclusion of people with disabilities in emergency responses
to natural disasters. The document mentions specific research that was carried out by the Centre for
International Rehabilitation into the inclusion of disability in emergency relief plans after the Tsunami,
which could and probably should be applied in a European context. The proposal notes that people with
disabilities are among the most neglected populations worldwide and risk neglect in the wake of any
natural disaster. In many emergency responses, people with disabilities find themselves marginalized from
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access to clean water, warm shelter and are generally excluded from emergency response plans. This
exclusion is not intentional, but rather reflects the lack of awareness about the inclusion of people with
disabilities in emergency planning.
Slovenia
In the documentation and literature for Slovenia that has been reviewed so far, it can be concluded that no
clear interest or intent has been expressed that go beyond references contained in legislation. On the other
hand, the issue raised a lot of interest among many stakeholders that were contacted in the process of
making literature, law and sectoral review.
Hungary
The Emergency Department of Faculty of Health Sciences of University of Pécs created a new subject with
the aim of developing their own student’s skills in caring and rescuing disabled persons. The course of
equal opportunity provides special practical training to influence students’ behaviour and their attitudes
towards disabled people. Major topics on the subject are:

Basic definitions (ability, disability, needs and prejudice)

Equality and inequality

Communication difficulties with disabled people

Elderly people and abilities

Trans-cultural factor
5.7
CONCLUSIONS
The national agencies responsible for civil protection vary from country to country, as does their position
in the overall political structure. In Ireland, matters concerning civil protection are under the responsibility
of the Department of the Environment, Heritage and the local government. In Italy, the system stands out in
that the national department for civil protection responds directly to the Prime Minister. In Spain, the
National Commission for Civil Protection is made up of representatives of the various ministries involved
in the management of emergencies, as well as the autonomous communities and local administration. In the
new Member States, the situation is evolving and new structures are being created to manage matters of
civil protection, which were previously managed directly by the Ministry of Defence. In Hungary, there is
National Directorate General for Disaster Management. In some countries, civil protection is under the
responsibility of the defence departments. In Slovenia, the Administration for Civil Protection and Disaster
Relief is under the responsibility of the Ministry of Defence.
In all countries investigated, it appears that open dialogue does not exist between the relevant ministries
responsible for civil protection on the one hand, and that responsible for social affairs on the other
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regarding the question of how to address the situation of rescuing persons with disability could be
addressed.
In all countries investigated, it is clear that NGOs and volunteer associations have a key role to play in an
emergency or disaster situation and governments rely on their contribution and involve them formally,
where necessary in operative plans and relief operations.
In all countries investigated, it appears that little research has been dedicated to the question of rescuing
persons with disability in case of disaster. Where some initiatives have been identified, they have not been
co-ordinated or commissioned by the state.
In all case studies carried out, it has been difficult to identify precise data on the number of casualties
relating specifically to persons with disabilities in case of disaster.
In all countries investigated, the lack of attention to the issue of persons with disability in case of disaster is
relevant to all levels of intervention. However, it appears also that this lack of attention is due not to a lack
of interest, but rather to a lack of awareness of the issue.
5.8

RECOMMENDATIONS
Need to carry out detailed research into the needs of persons with disability in case of disaster
according to the specific characteristics of the typology of the disaster, as well as the specific needs
of persons with disability according to the typology of the disability.

Need to gather statistics on the number of casualties relating specifically to persons with disabilities
in case of disaster.

Need to include specific provisions related to the particular needs of persons with disabilities in
emergency systems (including specific tools, extricate tools, etc.).

Need to plan and regularly schedule dedicated training courses to care givers on how to rescue
people with disabilities.

Need to include the rescue of real persons with disabilities in simulation schemes.
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
Need to involve persons with disabilities in planning and preparation phase of emergency systems.

Promote dialogue at the state level between ministries responsible for civil protection and those
responsible for social services.

Emphasize the importance of efficient coordination and organization among emergency services,
including public and private institutions, official and volunteer services.

Importance of European initiatives (such as the Civil Protection Action Programme and the
Financial Instrument for Prevention Measures) that support projects, such as RDD, that look at the
situation of vulnerable persons in case of disaster and raise awareness on the subject.
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CHAPTER 6: RECOMMENDATIONS FOR GOOD PRACTICE
6.1
INTRODUCTION
This chapter represents one of the final products of the project “Rescuing Injured Disabled Persons in Case
of Disaster”, co-financed by the European Commission, and has as its objective the presentation of
recommendations for good practice on the rescue of persons with disability in case of disaster.
The findings presented in this chapter are based on the research findings presented in the previous chapters
and have been elaborated by the partner ULSS 20 Verona.
6.2
KEY CONCEPTS
6.2.1 ROLE OF PERSONS WITH DISABILITY
Persons with disabilities should have the opportunity to be actively involved in the decision-making
process concerning situations of risk, humanitarian emergencies and natural or man-made disaster. This
involvement should be fostered by the development of inclusive policies at all levels starting from
organisations of persons with disabilities and families, communities and up to national and international
organisations/bodies.
6.2.2 NEEDS OF PERSONS WITH DISABILITY
The basic needs of persons with disability should be seen as equal to those of the general population in
situations of risk, humanitarian emergencies and natural or man-made disaster. However, policy and
practice should take into account that there may be different requirements in fulfilling their needs.
6.2.3 DIVERSITY AND DISABILITY
Diversity among persons with disability should be acknowledged and accommodated in planning,
mitigation and recovery strategies to ensure multiple discriminations do not take place.
6.2.4 STAKEHOLDERS AND ACTORS INVOLVED
The safety of persons with disabilities in situations of risk, humanitarian emergencies and natural or manmade disaster is the responsibility of individuals, public institutions at all levels, business and civil society,
social partners, non governmental organisations, educational institutions, health authorities, civil
protections and associations of persons with disabilities.
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6.2.5 COMMUNITY-BASED APPROACH
Community involvement and participation in planning and acting emergency planning measures is a
fundamental element in disaster response and mitigation. The establishment of local communities’
networks has to be encouraged and empowered also when it comes to address the needs of persons with
disabilities in situations of risk, humanitarian emergencies and natural or man-made disaster. (e.g. social
networks and neighbourhood network)
6.2.6 INTER-SERVICE/INTEGRATED/TRANSVERSAL APPROACH
Great efforts should be made towards developing a coherent, transversal and integrated approach among
different services involved in the rescue of persons with disabilities in situations of risk, humanitarian
emergencies and natural or man-made disaster.
Coherent in order to obtain the same objectives through an orderly, logical and consistent relation of parts;
Transversal due to the involvement of different sectors, competencies and experiences; Integrated
because the different systems, procedures and protocols of different entities should converge into one
complete framework.
This inter-service approach will give new impulse to the sharing of resources, organisations, equipment and
materials, infrastructures, technologies, finances, means of communications, transports, mobility and
emergency mechanisms.
The creation of tables at all levels (local, regional, national, European and international) should be
commonly pursued for the co-ordination of the invention with permanent members coming from different
organisations/institutions/associations.
6.2.7 THE DIFFERENT STAGES OF DISASTER
The rescue of persons with disability in case of disaster should not focus exclusively on issues of
evacuation, as has been the tendency to date, but should consider the question in all stages of disaster
management (preparedness, mitigation and relief).
6.3
POLICY AND PRACTICE
6.3.1 NORMS AND LEGISLATION
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Relevant legislation and norms should deal with all aspects of the rescue of persons with disability in case
of disaster, including the special needs of persons with disability during all phases of an emergency
situation (planning, mitigation and reconstruction) in order to guarantee equal access to disaster response
and relief. Therefore, it is important to keep policy makers up-to-date and informed.
6.3.2 SIMULATION SCHEMES
Simulation exercises represent a fundamental tool in order to promote more effective co-ordination of
response from relevant authorities and the population. They also represent a good opportunity to actively
involve all the stakeholders and should include real participation of persons with disabilities. Simulations
or role-play exercises where persons without disabilities take the role of persons with disabilities should be
avoided.
6.3.3 TECHNOLOGY
The potential of new technologies should be fully implemented and used to empower persons with
disabilities and to ensure equal opportunity and treatment also in situations of risk, humanitarian
emergencies and natural or man-made disaster. Information and communication technologies, mobility
aids, devices and assistive technologies, rescue techniques and equipment and early warning systems
should all meet the specific needs of persons with disabilities after the occurrence of humanitarian
emergencies and natural disasters when, besides a physical harm, an altered psychological state also has to
be met.
The diffusion of new technologies and techniques should respect the concept of appropriate techniques and
therefore not be threatened by problems of costs, availability and difficulties in their use.
6.3.4 ACCESSIBILITY
Appropriate measures should be taken to ensure access to persons with disabilities on an equal level with
others to the physical environment, transportation, information and communications. This includes
information and communications technologies and systems and other facilities and services open or
provided in case of humanitarian emergencies and natural or man-made disaster.
6.4
TRAINING AND INFORMATION
6.4.1 TRAINING AND CAPACITY BUILDING
All actors involved in situation of risk management and rescue processes should be informed, trained and
motivated in order to fulfil their responsibilities also when it comes to addressing the needs of persons with
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disabilities in risk situations. Courses should be given on emergency planning and special needs
populations, as well as on-site training on inclusion provided. Actors involved in situations of risk
management and rescue processes extends beyond civil protection units, fire brigades, health authorities,
etc. and includes parents’ organisations and teachers, all of which should be included in teaching-learning
processes. Training teachers on inclusive education is also recommended.
Persons with disabilities should be put at the forefront in the setting up of these processes in a frame that
looks at empowering and fostering people’s own capacities. In addition, they should be involved in the
planning, monitoring and evaluation of any processes and also be considered both as trainers and trainees.
6.4.2 INFORMATION
Information should be correct and easily understandable, accessible by all and appropriate to meet the
different needs of persons with disabilities, taking into consideration the different kind of disabilities.
Video programming distributors (e.g. broadcasters, cable operators and satellite television services) need to
be informed of their obligation to make emergency information accessible to all. Information should also
be positive, encouraging, helpful and financially affordable to everybody. In addition, the effectiveness of
information should be monitored.
6.4.3 STATISTICS AND DATA
Reliable, comprehensive and regular surveillance according to international standards is crucial for
quantifying the problems, identifying risk factors and monitoring the effectiveness of interventions. Precise
and constant mapping activities (implemented in full respect of the right of privacy of person’s with
disability) to clearly and easily localize persons with disabilities should be part of the surveillance systems.
6.4.4 AWARENESS RAISING
Priority should be given to raising awareness of the protection of persons with disability in situations of
risk, humanitarian emergencies and natural or man-made disaster amongst all the relevant stakeholders as
defined in paragraph 1.4. Raising awareness activities could include: promoting dialogue and discussion on
the subject; disseminating existing good practice, manuals and guidelines on the subject; special
consideration should be assigned to the role of arts and culture which, thanks to their universal language,
can reach the wider community.
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6.4.5 INTERNATIONAL ALLIANCES AND NETWORKING
It is important to promote constant, permanent and regular collaboration and partnership among
stakeholders. Identification of protocols, technologies, techniques, public awareness campaigns, mitigation
activities, disaster preparedness and management activities and any other action to be undertaken to
improve the safety of persons with disabilities in case of disasters will be eased by a continuous exchange
of experiences. In order to ensure an effective exchange of experiences and knowledge of good practices, a
stable international network should be promoted. This international network will be more effective if based
on consolidated regional and national networks in each state.
Dedicated institutions should ensure the need for research, expert advice, advocacy and information
dissemination, which are of paramount importance in increasing a correct understanding of the matter at all
levels.
6.4.6 FUNDING
Many of the recommended changes or recommendations for good practice require a certain investment of
funds on the part of stakeholders such as health authorities, civil protections, organisations, etc., that
may/may not be available (or readily available). In order to ensure that adequate funding is available to
support the needs of persons with disability in situations of risk on all levels (local, national, etc.) disability
issues should be included in funding agency guidelines and a Disability Founders Network could be
created to be sure that funds are appropriately allocated. Governments and/or funding agencies could also
make funding requests contingent on changes being made from a policy and practice standpoint taking into
consideration the needs of persons with disabilities.
6.4.7 EXCHANGE OF GOOD PRACTICE
In the last decade, a wealth of information has been produced worldwide on the subject of persons with
disabilities in situations of risk, humanitarian emergencies and natural or man-made disaster. Much of this
literature has been produced outside the European Union and in particular in the United States and in
developing countries. In the case of the latter, this reflects the unfortunate frequency of catastrophe and the
high number of persons with disabilities living in these countries. European stakeholders have much to
learn from these countries that have been documenting their experiences and approaches for a number of
years.
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6.5 KEY ELEMENTS OF A COMMUNICATION RESCUING AND
TRASPORTATION SYSTEM FOR DISABLED PERSONS IN CASE OF
DISASTER
6.5.1 INTRODUCTION
In an emergency situation, persons with disability often continue to be treated as passively dependent on
the expertise and capacities of others in order to survive. This is true to the extent that emergency
mechanisms from planning and mitigation to the rehabilitation phase have largely been designed to
accommodate the general population without taking into consideration persons with disabilities.
However, it is important to note that persons with disabilities are not the only vulnerable individuals during
an emergency situation. The general public is at increased risk and more vulnerable as well, and individuals
who are normally not classified as “disabled” under normal environmental conditions could become
disabled during a disaster or emergency situation. In addition, the concept of “universal independence” can
come into play.147 “Universal independence” refers to the state of being independent in all the probable
environmental varieties of regular life, while “limited independence” refers to the state of being
independent only in a limited environment such as the home. Research has indicated that limited
independence can lead to a decline in functioning after a disaster, suggesting that limited independence
should be considered a risk factor in emergency situations.
With that said, the basic needs of persons with disabilities should be seen as equivalent to the general
populations. However, there may be different requirements in fulfilling their needs.
In order to fully comprehend these requirements, it is essential that all stages of disaster and emergency
management are conceptualized and implemented with the active participation of persons with disability.
Clark (2002) and others emphasize the diversity of communication styles and formats. There are diverse
needs even within specific groups of people with impairments, which again puts the emphasis on listening
to persons with disability. People with visual impairments, for example, are frequently presented with large
print even though the depth, font and color contrast may be more important. There is also the danger of
assuming a disabled person prefers the use of technical adaptations rather than human assistance.
This section presents a number of recommendations for key technical elements for a communication and
rescue system that is inclusive of persons with disability. This said, although this section deals primarily
with technology considerations, it goes without saying that the attitude and endorsement of all those who
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come into contact with this technology (the service provider, end user and emergency services) is key to its
success.
Finally, as with all technology, it is of paramount importance that such equipment be tested (e.g. simulation
schemes) with the involvement of persons with disability.
6.5.2 PLANNING AND PREPAREDNESS
Registration
Registration of data concerning persons with disability in a computerized database accessible to the
relevant emergency services could prove vital in case of disaster. Such data could include location
(permanent residence), details relating to the residence (floor, any access problems, etc.), the nature of
disability (physical impairment, visual impairment), details concerning the type of equipment or skills
required for evacuation and any other relevant information (critical medicine or medical treatments). While
there are obvious benefits of registration as a way to reach persons with disability quickly and efficiently,
the procedure also raises issues relating to the rights of privacy of the individuals involved. Therefore, this
practice needs to be carefully considered with all the key stakeholders before being implemented.
Building Design
When considering evacuation, buildings should be designed on the basis of the safe egress of all means and
the evacuation time of the person that will take the longest to escape. Furthermore, accurate information
regarding obstacles and proper anchoring and bolting for the visually impaired should be ensured. Simple
diagrammatic pictures for the cognitive impaired and alerting devices (see below) for the hearing impaired
should be in place.
Special Equipment

Adapted Fire extinguishers: fire extinguishers should be designed to be operated by people with
limited strength and mobility and instructions on their use should be accessible to the visually
impaired. (e.g. tactile feature).

Tool kits: emergency tool kits can also be considered. Such tool kits should be designed by persons
with disabilities and depending on the context (type of risk situation) and the nature of the
impairment, could include:
- Information on specialized transportation, evacuation devices and evacuation strategies
- Details of emergency sign language
- Heavy gloves to protect individual’s hands from debris when pushing a manual wheelchair
- A patch kit to repair flat tires
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- Extra batteries (e.g. for motorized wheelchairs or medical equipment requiring electricity that may
be in need of an alternative energy source)
- Medicine, first aid and durable medical equipment (DME)
6.5.3 RESCUE AND RECOVERY
Early Emergency Communication Systems
Mobile phones, text phones, vibrating/tactile paging devices and wireless communicators can all prove
useful to persons with disability in communicating their status to relevant authorities, groups, neighbours,
friends and relatives. In addition to being accessible, these devices need to be capable of being operated
independently by persons with disability, meaning without the help of a third party. The ability of a
disabled person to independently communicate one’s need/s is extremely important. The majority of these
types of devices on the market are not waterproof and it is unlikely that they would survive a flood.
Therefore, if such devices are to be relied upon in a flood risk area, the user should ensure that they are a
safe distance away from the water, but still within reach.
Evacuation

Alerting Device: alerting devices can be used to notify the hearing impaired to sounds in the
environment, such as an emergency alarm that vibrates or has a light signal (a transmitter detects
certain sounds and then sends a signal to a receiver that vibrates or blinks a light).

Evacuation Devices: emergency evacuation devices (evacuation chairs, cables and chutes) should
be available to help evacuate individuals with mobility limitations from buildings. These devices
can help individuals quickly move people with mobility limitations down the stairs or across rough
terrain.

Evacuation Assistant: an “evacuation assistant” or “buddy system” operates on the basis that in the
workplace, a person is designated to assist a person with disability in case of an emergency. This
person should be familiar with the type of disability, aware of the operating system of specific
technological devices in place to assist with the evacuation process and be informed of the best way
to assist the person with disability in case of evacuation.
Transportation
Accessible vehicles, appropriate lift and secure equipment, liability coverage, availability of fuel and
regulations addressing the involvement of private transport companies should be addressed before an
emergency takes place so that transportation providers can reduce ad-hoc decision making and ensure more
reliable, safe and timely service for persons with disability.
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6.5.4 RELIEF
Shelters
Traditionally, great attention has been paid to ensuring that shelters are well stocked with basic necessities
such as food, water and blankets. However, in many cases, shelters are not accessible to people with
disabilities. Potential shelters should be identified bearing in mind parking facilities and entrance access. In
addition, shelters must allow access to service animals.
Medicine and Medical Treatment
As mentioned above (Registration), it could be useful to have a record of essential medicine or medical
treatment. Such records should include a copy of prescriptions, as well as dosage or treatment information.
If medical equipment requires electricity to operate, alternative sources of energy should be identified in
case of a power outage.
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World Health Organisation. “International Classification of Impairments, Disabilities, and
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June Isaacson Kaile. “Disaster Resources for People with Disabilities and Emergency
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Polizia di Stato (National Health Service) Homepage. <http://www.poliziadistato.it/pds/index.html>.
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Wisner B. “Disability and Disaster: Victimhood and Agency in Earthquake Risk Reduction.” Chapter for
Rodrigue C. and Rovai E. (eds.) Earthquakes, London: Routledge, 2002. <www.radixonline.org/resources/
disability_and_disaster_wisner.doc>.
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2005. <http://siteresources.worldbank.org/DISABILITY/Resources/280658-1130273084709/18218301157998399432/DECwbMinDec5.doc>.
The World Bank. “Report of the Online Forum on Disabled and Other Vulnerable People in Natural
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AUTHORS AND PROJECT PARTNERS
ULSS 20 Verona (IT)
Azienda ULLS 20 Verona is a local public health agency responsible for providing health care and social
services to inhabitants of the Verona province. The institution is committed to the general objective of
seeking and providing citizens with the maximum level of health and social protection by ensuring district
health and hospital care, as well as community health care at home and at work. Azienda ULSS 20 Verona
provides its services through:
- Their own facilities (directly managed hospitals and territorial services)
- Service providers accredited by the Region (independent public structures, such as hospital agencies and
university-managed hospitals) and private structures (hospitals, nursing homes, and laboratories)
The international activities of ULSS 20 Verona are carried out through its International Relations Office
(URI). URI represents a window of ULSS 20 Verona on Europe. Its activities include European project
design and development, support in the management of European projects and advanced training in project
design and evaluation in the health and social sector.
Choròs (IT)
Choròs is an Italian non-profit organisation active since 1997 in the field of promoting social bonds in
communities. The main activities of the organisation focus on empowering excluded populations through
training, social activities and research.
Choròs empowering and research projects involve youngsters, women, immigrants, the unemployed,
disabled and mentally ill. During the last three years Choròs has run projects focused on training in the
field of Civil Protection such as providing support to residents and helpers in emergency situations. Choròs
is formally recognised by the University of Torino (Psychology Faculty) as a post-lauream training site for
psychologists.
Códice Europa (ES)
Cόdice Europa is an entity dedicated to European projects, especially projects related to social and
environmental issues. Cόdice Europa’s aim is to improve the situation of those groups within the
population who suffer any kind of disadvantage. The Cόdice Europa team is composed of experts in its
areas of interest: women, youth, the disabled, long-term unemployed and immigrants. It works in favour of
social and labour integration actively participating in local, regional, national and international projects.
Slovenian Institute of Public Health (SI)
The Slovenian Institute of Public Health is an institution that belongs to the Ministry of Health and as such,
is committed to issues mainly related to public health and research (collection, organisation and analysis of
health related statistical data in the fields of diagnoses, attendance, staff and visiting hours in out-patient
facilities, out-patient specialist services and in hospitals), health care organisation, economics and
informatics (preparation of the contents for legislation in the field of health activities and participation in
the planning and research of health care services), environmental health (checking the suitability of
foodstuffs, drinking water, bathing water, objects of general consumption such as toys and cosmetics),
transmittable diseases, health promotion (developing and implementing preventive programmes and
projects with the aim to exercise a positive influence in life styles and other health related factors), outpatient facility and laboratories.
The Hope Project (IE)
The Hope Project aims to bring hope to people struggling with a disability and their families. The Hope
Project was designed to reach, inform, assist and motivate parents to ensure that their disabled children get
the appropriate help and get it as early as possible, thereby giving them a much greater chance of taking
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their rightful place and playing their part in society. Hope Project also aims to inform government and
society about the needs of the disabled and their families whom they serve. The Hope Project offers
assistance to persons of all special needs, ages and locations.
Since the Hope Project started, its most important work has been to talk to and keep in touch with parents
and persons with a special need, many in deep distress, through the Hope Project Help line. Hope Project
offers a wide range of supports (advice, mediation, advocacy, networking, professional placement, etc.)
and the fruits of its research into issues of health, education, benefit and care. Hope Project is a national
organisation contacted from all over Ireland and internationally.
University of Pécs (HU)
Established in 1367, the University of Pécs is one of the oldest universities in Hungary/Europe. The
Faculty of Health Sciences was established as a part of the Medical University of Pécs by the Minister of
Health and Social Welfare in 1989 in order to offer courses for health care specialists leading up to the BSc
degree.
Today, after the integration process leading to the University of Pécs, the faculty of Health Sciences is an
independent organisational unit among the ten faculties of the University. Degree courses are offered in 9
disciplines (Hungarian language) such as nursing (BSc.), nursing laboratory analysis for medical
diagnostics, physiotherapy, teacher of health promotion and ambulance officers.
The Institute of Nursing and Clinical Practice at the Faculty of Health Sciences consists of three
departments: Nursing, Nursing Science and Emergency Care and the Department of Midwives, where
nurses, physicians, ambulance, officers, midwives, teachers work together in order to achieve a high level
of education and research.
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ACKNOWLEDGEMENTS
The partners of the Rescuing Disabled Persons in Case of Disasters - Civil Protection's Challenge in the
Challenge project would like to thank a number of people and organisations who assisted in the research
and finalising of the literature framework in their respective countries. Various individuals, services and
organisations from the partner countries gave up their time to assist our research for this project, gave us
interviews and provided what information and help that they could. Partners would like to thank the
following people for all their efforts and contributions which have added value and substance to the
legislative framework reviews and the overall summary report.
ULSS 20, Italy would like to thank:

Verona Civil Protection

Verona Fire Brigades

Ministry of the Interior

National Fire Department

Council of Disabled People and their families

Work Group "Security of Disabled People"
Hope Project, Ireland would like to thank:

The Limerick Fire Service

Limerick County Council

The Department of Environment, Heritage and Local Government

Disability Action Ireland

The Health Service Executive South - Emergency Planning

The National Disability Authority

The Centre for International Rehabilitation

Cork Fire Services/Cork County Council

The Health and Safety Authority

The Munster Regional Communications Centre

Irish Autism Action

Release

People with Disabilities Ireland

The Irish Society for Autism

Dublin Fire Brigade

Parkinson's Association of Ireland

L'Arche Ireland
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
Amputee Ireland

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RDD – Recommendations for Good Practice
Codice Europa, Spain would like to thank:

Civil Protection Unit of Andalucía

Directorate General of Civil Protection of the Gobierno de Cantabria

Fire Brigades in Torrelavega and Santander. Cantabria

Obra Social de Caja Cantabria. Cantabria
University of Pecs, Hungary would like to thank:

Hungarian Parliament

Hungarian Government
High Institute of Health, Slovenia would like to thank:

The Slovenian Red Cross

Administrative agencies of the Republic of Slovenia

Vzhodno Stajerska Region

Regional offices for the Administration for Civil Protection and Disaster Relief in Ljubljana and
Maribor

Administration of the Republic of Slovenia for Civil Protection and Disaster Relief

Ministry of Defence

Inspectorate of the Republic of Slovenia for Protection Against Natural and Other Disasters
Finally, for anybody that we have not already mentioned here, we pay tribute to you for all your work. And
to all partners too as well, who have worked assiduously to produce this document, thank you.
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SPECIAL THANKS
Partners would like to give special thanks to the following individuals for their
dedication and coordination of this significant initiative:
Claudio Detogni
Ruth Davis
Marta Bellini
Matteo Adamoli
Mary Shea
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ANNEXES
ANNEX 1: OFFICIAL DEFINITIONS OF DISABILITY BY INTERNATIONAL ORGANISATIONS
1. WHO/ ICF
As a new member of the WHO Family of International Classifications, ICF describes how people live with their health condition. ICF
is a classification of health and health-related domains that describe body functions and structures, activities and participation.
ICF definition of disability and impairment:
Disability is defined as, "the outcome or result of a complex relationship between an individual's health condition and personal factors,
and of the external factors that represent the circumstances in which the individual lives".
Impairments are defined as, "problems in body function or structure such as significant deviation or loss".
2. U.N.
2.1. World Programme of Action Concerning Disabled Persons
Definition
The following distinction is made by the World Health Organization, in the context of health experience, between impairment,
disability and handicap:
"Impairment: Any loss or abnormality of psychological, physiological, or anatomical structure or function”.
"Disability: Any restriction or lack (resulting from an impairment) of ability to perform an activity in the manner or within the range
considered normal for a human being”.
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"Handicap: A disadvantage for a given individual, resulting from an impairment or disability, that limits or prevents the fulfilment of
a role that is normal, depending on age, sex, social and cultural factors, for that individual.”
2.2. International Convention on the Rights of People with Disabilities
Article 2 - Definitions
“Communication” includes spoken and signed languages, display of text, and Braille, and tactile communication, large print, written,
audio, accessible multimedia, plain language, human reader and augmentative and alternative modes, means and formats of
communication, including accessible information and communication technology.
“Discrimination on the basis of disability” means any distinction, exclusion or restriction on the basis of disability which has the
purpose or effect of impairing or nullifying the recognition, enjoyment or exercise, on an equal basis with others, of all human rights
and fundamental freedoms in the political, economic, social, cultural, civil or any other field. It includes all forms of discrimination,
including denial of reasonable accommodation [and direct and indirect discrimination].
Article 6 - Women with disabilities
1. States Parties recognise that women and girls with disabilities are subject to multiple discrimination and that focused, empowerment
and gender sensitive measures are necessary to ensure the full and equal enjoyment by women and girls with disabilities of all human
rights and fundamental freedoms.
2. States Parties shall take all appropriate measures to ensure the full development and advancement of women for the purpose of
guaranteeing them the exercise and enjoyment of the human rights and fundamental freedoms set out in this Convention.
3 DEFINITIONS FROM OTHER ORGANISMS
3.1 Disabled Peoples’ International
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This organisation uses for its purpose, the definition offered by the International Classification of Functioning (ICF) which defines
disability as the outcome of the interaction between a person with an impairment and the environmental and attitudinal
barriers he/she may face.
3.2 The Center for an Accessible Society.
Disability Policy Scholars describe 4 different historical and social models of disability:
A moral model of disability which regards disability as the result of sin;
A medical model of disability which regards disability as a defect or sickness which must be cured through medical intervention;
A rehabilitation model, an offshoot of the medical model, which regards the disability as a deficiency that must be fixed by a
rehabilitation professional or other helping professional; and
The disability model, under which "the problem is defined as a dominating attitude by professionals and others, inadequate support
services when compared with society generally, as well as attitudinal, architectural, sensory, cognitive, and economic barriers, and the
strong tendency for people to generalize about all persons with disabilities overlooking the large variations within the disability
community.”
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ANNEX 2: MATRIX AND GUIDELINES FOR COLLECTION OF LITERATURE INFORMATION
In order to carry out this first task, please complete the attached matrix.
Guidelines for each column are specified below
Rescuing Disabled Persons in Case of
Disasters
Civil Protection’s Challenge in the Challenge
MATRIX FOR LITERATURE REVIEW COLLECTION
1. Title
2. Source
3. Type of
document
4. Kind of
information it is
offering
5. Author,
origin and
contact
person
6. Year
published
7. Main themes of
the document
8. Brief
Summary
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1. Title of the document
2. Sources of information:
1. Documents released by the European Commission
2. Documents released by the national, regional and local authorities
3. Documents released by departments of civil protection and social services
4. Documents released by NGOs, associations and federations dealing with disability and environmental issues.
5. Documents released by academics and experts in your country
6. Other
3. Type of documents:
The term “literature” refers to identification of:
1.
2.
3.
4.
5.
6.
7.
Official documents
Articles (reviews, magazines, journals, websites)
Academics (studies, essays, analysis)
Dissemination material (posters, pamphlets, brochures)
Guides
Books
Conferences and workshops
4. Classifying information:
In order to keep an organised record of the information obtained, it’s important to classify it using the provided grid and answering to the following
question:
What kind of information is it offering?
 Opinion
 Recommendations
 Instructions
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 Manifesto
 Results of study
 Statistics and general data
 Real life stories and cases
 Complaints
5. Author, origin and contact person
Please indicate author, origin and details of a resource person familiar with the subject treated
6. Year published
7. Selection of main themes for headings:
1. National, regional and local guidelines, rapid response procedures and contingency planning for rescuing disabled in disasters
2. Case histories and testimonies:
- Literature concerning case histories, with an emphasis on problem met, resilience, good practices, suggestions
- Collection of direct testimonies (victims, rescuers, helpers, etc.)
3. Points of view on the existing procedures
4. Recommendations, training courses programmes and know-how from experts – improvements on procedures addressing :
- People with disabilities on how to be prepared in case of emergencies
- Volunteers
- Rescue teams
8. Brief summary of the document
Indicate the information relevant to the project
Please note:
1. Documents identified as part of this activity might be valid also for other activities foreseen in the work plan.
2. The summary of findings has to be presented in English according to the attached matrix.
104
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ANNEX 3: SUMMARY MATRIX OF LITERATURE PER PARTNER COUNTRY
Title
Type of
document
Source :
(see task
3)
Kind of
information it
is offering
(see task 5)
Author and
origin
Year
publishe
d
Main
theme of
the
document
(see task 2)
Brief
Summary
ITALY
Piano
Comunale di
protezione
civile del
comune di
Torino
Official
document
Municipality
of Torino
Instructions
Municipality of
Torino
2006
Role of Mayor
and
Municipality in
the civil
protection
system
There is a reference
to vulnerable
persons, in
particular to
persons with
disabilities.
Linee guida
Official
per la
document
pianificazione
comunale di
emergenza
Region of
Liguria
Instructions
Liguria Region
09/02/2006
Guidelines for
planning
municipalities
emergency
system
There is a reference
to vulnerable
persons, in
particular to
persons with
disabilities.
Il soccorso
alle persone
disabili:
indicazioni
per le
gestione
dell’emergen
Ministry of
the Interior;
National Fire
Department;
National
Council of
disabled
National
Guidebook.
National Fire
Department.
2004.
National
guidelines for
rescuing
disabled
people in the
disasters.
Technical
guidelines on how
to rescue persons
with disabilities
including persons
with reduced
mobility, sensory
Guide
provide in
Communicati
on n. 4 of
Ministry of
Interior of 1
March 2002
105
RDD – Recommendations for Good Practice
ULSS 20 Verona
za.
people and
their families.
and intellectual
impairments.
http://www.vi
gilfuoco.it/spe
ciali/sicurezz
a/sicurezza_i
nsieme/disabi
li/pdf/soccors
o_disabili.pdf
Il
monitoraggio
dei sistemi di
soccorso e
allertamento
per disabili in
emergenza
Progetto per
l’impiego di
volontari in
servizio civile
Piano di
emergenza
per le scuole.
Guidelines in
accordance
with Decree
Ministerial
10/03/1998)
Dipartimento
di protezione
civile
Research
http://www.pr
otezionecivile
.it/minisite/ind
ex.php?dir_p
k=746&cms_
pk=3830
http://www.ed Emergency plan for
scuola.it/archi the schools
vio/norme/de
creti/dlvo626
_94emergenz
e.pdf
National
Department of
Civil Protection
2007
The project
aim at
identifying best
practices in the
field of the
rescue of
persons with
disabilities in
emergency
situation
through a
research of the
existence in
the Italian
territory
Check- list for
the
identification of
emergency
measures to
be applied in
schools.
Procedures to be
applied in schools
in case of
emergencies such
as fire,
earthquakes,
flooding. In the
106
RDD – Recommendations for Good Practice
ULSS 20 Verona
Documento
della
valutazione
dei rischi
nelle scuole
Guidelines in
accordance
with Italian
Decree
n.626/1994
and
n.242/1996
http://www.ed Check-list for
scuola.it/archi evaluation of risks
vio/norme/de in the schools
creti/dlvo626
_94rischi.pdf
Protezione
civile in
famiglia
Book with
instructions
for the
families in
case of
disaster.
National
Department
of Civil
Protection
Guidebook for the
families in case of
disasters.
National
Department of
Civil Protection;
Council of
Ministers.
Procedure di
emergenza in
presenza di
persone
disabili
Guide of
University of
Piemonte
Orientale “A.
Avogadro”
Procedures
written by
University of
Vercelli
linked to
Communicati
on of
Ministry of
Interior n.4
1/03/2202
Book written
by academics
and experts
of University
of Trieste-
Guidelines to define
the steps to help
the disabled people
in case of
emergency inside
the university.
Unit of Protection
and Prevention of
University of
Piemonte
Orientale “A.
Avogadro”.
E-book of
University of
Trieste, Master in
Assistive
Technology.
Fiorenza Scotti.
Condizioni di
emergenza e
assistive
technology .
Check-list for
risk
assessment in
schools.
Reference to
pupils with
disabilities
December
2005
2005
check-list there is a
reference to
students with
disabilities.
schools should fill
the check-list and
organize its
emergency plan.
Recommendati
ons for the
families on
how to be
prepared in
case of
emergencies
Procedures of
emergency
planning for
the safety of
disabled
people.
In chapter 5 some
bullet points to
explain how to help
disabled people in
case of
emergencies.
Procedures for
the rescue of
disabled
people who
are not able to
In the chapter 4
there is a specific
list of actions to
undertake before,
during and after a
It’s a list of actions
to undertake before
and during the
emergency.
107
RDD – Recommendations for Good Practice
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Faculty of
Engineering
http://www.in
g.units.it/bca/j
script/
Project “Ti
Aiuto Io”
:Albo
comunale dei
differenteme
nte abili per
fini di
protezione
civile.
Project
Municipality
of Pescara
with
partnership of
Associations
of disabled
people and
the civil
protection.
Plan of emergency
to rescue disabled
people in case of
disaster.
Municipality of
Pescara.
November
2005Giugno
2006.
Family disaster
Plan
Federal
Emergency
Management
Agency
2005
Guidelines to define National Fire
the steps to help
Department
1995
www.forumpa
.it
Piano
famigliare in
caso di
calamità
Recommend
ations
Federal
Emergency
Management
Agency;
American
Red Cross
Guida alla
organizzazio
Guidelines
http://www.m
ass.gov/sam
h
Federalbergh
i
use their
assistive
technology
tools during
the
emergencies
disaster in order to
rescue disabled
people.
aim of the
project is to
check the
number of
disabled
people who
live in the
province of
Pescara, their
life conditions
and to define
their rescue
plan in case of
disasters.
Recommendati
ons for the
families on
how to be
prepared in
case of
emergencies
With a census of
disabled people the
Municipality can
organise a plan to
rescue disabled
people in case of
disasters.
Guidelines for
the security of
In the chapter 10
there is a reference
There is a reference
to vulnerable
persons, in
particular to
persons with
disabilities.
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RDD – Recommendations for Good Practice
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ne e gestione
della
sicurezza
antincendio
nelle strutture
ricettive
turisticoalberghiere
people in case of
http://www.fe fire inside the
deralberghi.it/ hotels.
guideAlberghi
.asp
Piano di
emergenza
per
evacuazione
della “scuola
media statle
Gino Rocca”
di Feltre
(Belluno)
Emergency
plan for the
school
Piano
particolare di
gestione
dell’emergen
za e primo
soccorso nei
musei
Emergency
plan for
museum
Intermediate
School “Gino
Rocca”
Instructions
Intermediate
School “Gino
Rocca”
Instructions
Municipality of
Rome;
2002/2003
http://www.m
ediarocca.it/s
cuola%20e%
20sicurezza/s
icurezza.htm
Sovrintenden
za ai Beni
culturali of
Municipality
of Roma
Sovrintendenza ai
beni culturali
people in case
of fire and
management
of emergency
situations in
hotel buildings
to persons with
disabilities (
including persons
with reduced
mobility, people
with sensory and
intellectual
impairments,
wheelchair users,
people with limb
impairments)
Security
Instructions to
be applied in
school in case
of earthquakes
and fires.
In this plan two
specific students
have the task to
help students with
disability in case of
emergency.
Security
Instructions to
be applied in
museum in
case of
disasters
There is a reference
to persons with
persons with
reduced mobility.
Security
In the Livre 2,
http://www.be
niculturali.it/
FRANCE
Arrêté du 25
French
Official
Guidelines
French Ministry
25 June
109
RDD – Recommendations for Good Practice
ULSS 20 Verona
juin 1980
portant
approbation
des
dispositions
générales du
règlement de
sécurité contre
les risques
d'incendie et
de panique
dans les
établissements
recevant du
public
Ministry of
Interior
Décret n°92333 Dispositions
concernant la
sécurité et la
santé
applicables
aux lieux de
travail, que
doivent
observer les
chefs
d'établissemen
ts utilisateurs
Work,
Employment
and Training
Ministry
Facts –
Garantir la
sécurité et la
European
Agency for
Security and
document Decree
about
evacuation of
disabled people
Official
Document –
Labour Code
updates
Article
of Interior
1980
measures for
disabled
people in case
of
emergencies.
section 2,
guidelines for
disabled people
evacuation in case
of emergency (i.e
elevators in case of
fire).
Guidelines
Work,
about prevention Employment and
in case of fire
Training Ministry
31 March
1992
Security
measures for
disabled
people at work
in case of fire.
Art about prevention
in case of fire: Art
R 212.12.20,
specific measures
towards disabled
workers in case of
evacuation.
Art R 232.18,
disabled workers
should be safe and
secure at work in
case of fire.
Instructions in
order to
guarantee
2004
European
measures
about
In the emergency
procedures part,
several measures to
http://hygienesecurite.ac-aixmarseille.fr/PD
F/Incendie/Arr
%EAt%E9%20
du%2025%20j
uin%201980%
2010%20oct%
2005.pdf
http://web.aclille.fr/hygienes
ecurite/sitehs/p
rincipal/texteso
fficiels/docume
nts/decrets/dec
ret92333du310
31992.pdf
European
Agency for
Security and
110
RDD – Recommendations for Good Practice
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santé des
travailleurs
handicapés
Health at work
(OSHA)
disabled
Health at work
workers’ security (OSHA)
and health
workplace
safety for
disabled
people.
http://osha.eur
opa.eu/publicat
ions/factsheets
/53/fact53_fr.p
df
L’accueil des
élèves
handicapés
dans les
établissements
d’enseigneme
nt du second
degré
Les exercices
d’évacuation
incendie
National
Guide
Observatory
on schools and
universities
security
http://www.acrouen.fr/rector
at/etablisseme
nts_ihs/pdf/inc
endie_handica
p.pdf
National
Official
Observatory
document
for schools and
university
security
http://www.dire
cteurs74.edres
74.acgrenoble.fr/IM
G/exercice_ev
Statistics and
general data
about
evacuation and
security of
disabled people
inside schools
or universities.
National
Observatory on
schools and
university
security.
October
2006
Recommendatio
ns about
evacuation in
case of
emergency/fire
National
Observatory on
schools and
universities
security
According
to the article
of Jan. 13
2004
assist disabled
people in case of
evacuation,
fire…(i.e.
emergency
wheelchair in case
of fire, visual and
vibrating fire alarm
signals, sign
language training
for fire men….)
Recommendati Possible strategies
ons for schools for the development
and
of an evacuation
universities
protocol for
directors about physically and
disabled
mentally disabled
people’s
people.
security.
Several
exercises to be
followed inside
schools and
universities in
case of
emergency.
In the Organisation
part of the
document, rapid
response
procedures in case
of emergency.
111
RDD – Recommendations for Good Practice
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How to include
disability
issues in
disaster
management
Evacuation
des locaux et
cas particulier
des
personnes a
mobilité
réduite
dans les
Ecoles
acuation_ons.p
df
Handicap
E-book of
International
Handicap
International
Aix en
Provence
Board of
Education –
Academic
Delegation for
Security
Hygiene and
Working
conditions
(DASH-CT)
Article from
the Aix en
Provence
Academy
Guidelines
about disability
issues in
disaster
management
Handicap
International
September
2005
Instructions on
injuries
prevention and
evacuation
procedures for
disabled people
inside schools
Marc NIGITA –
Academic
Coordinator for
major risks
30 May
2002
Following the
floods in
Bangladesh in
2004,
Handicap
International in
partnership
with the
European
Commission
published this
book about
rescuing
vulnerable
people in case
of disaster.
Plan of
emergency in
case of
disaster.
List of different
actions to follow
when rescuing
vulnerable people in
case of disaster like
awareness and
training,
preparedness,
immediate response
and reconstruction
and mitigation.
Part V, several
information about
special care to be
provided to disabled
children (medicines,
fist aid kit )
http://hygienesecurite.ac-aixmarseille.fr/PD
F/Incendie/MO
112
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BILITE%20RE
DUITE%20en
%20Ecoles.pdf
113
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ANNEX 4: MATRIX AND GUIDELINES FOR COLLECTION OF LEGISLATIVE INFORMATION
Please complete this matrix when collecting the relevant information.
Guidelines for each column are attached
Rescuing Injured Disabled Persons in Case of
Disasters
Civil Protection’s Challenge in the Challenge
MATRIX FOR LEGISLATION REVIEW
COLLECTION
1. Type
of
document
2. Title of the
document
3. Year
published
4. Source of
information
5. Main Theme of the
document
6. Issues treated
7. Contact person
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ULSS 20 Verona
RDD – Recommendations for Good Practice
1. Type of documents:
National and European level:
1. Laws
2. Acts
3. Statutes
4. Opinions
5. Recommendations
6. Directives
7. Regulations
8. Plans and Protocols
9. Reports
10. Communications
11. Convention
2. Title of the document
e.g. Decreto Ministeriale 10/03/1998 (Ministerial Decree 10/03/1998)
3. Year published
e.g. 1998
4. Source
e.g. Ministry of The Interior
http://www.ambiente.it/sicurezza/legislazione/leggi/1998/dm10-3-98/Default.htm
5. Main theme of the document
ULSS 20 Verona
RDD – Recommendations for Good Practice
e.g. National guidelines for the security of people in the place of work
6. Issues treated in the document. Please specify according to the questions listed below:
a. Objectives of the plan
Do these objectives mention the development of a plan to rescue people with disabilities?
b. Levels of government responsible
If there is a distinction between the levels of government responsible for the coordination of the action plan, and if there is a specific level of
government responsible for coordinating the rescue plan for people with disabilities, which level is this?
c. Design of the structure and organisation
Does the structure and organisation of the plan make any reference to rescuing people with disabilities?
d. Action plan for rescuing people
Are people with disabilities considered in the action plan?
Is there a different plan addressing people with disability or are they included in the general plan?
e. Health and social services assistance
Is there a special reference to the need to provide people with disabilities with this type of assistance considering their special needs?
f. Logistic support group
Will the materials, equipment and provisions supplied, consider people with disabilities?
g. Systems for forecasting and alert – informing the population on emergency planning
For prevention purposes, the population must be aware and alerted of possible disasters upcoming. Does this plan include any particular methods for
alerting people with disabilities?
h. Intervention group
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ULSS 20 Verona
RDD – Recommendations for Good Practice
The procedures for intervention are often designed to address the population. Does it make it explicit that the intervention group will have the ability
to rescue vulnerable groups / people with disabilities?
i. Measures for protecting the population
Are there any measures addressing groups of persons with disabilities?
j. Protocol for evacuation process
Any reference to evacuating people with disabilities?
k. Emergency shelter for the population
The emergency shelter for people with disabilities, must consider special conditions, adaptability, accessibility….
Does this plan include this provision?
7. Contact Person
Please indicate the contact details of a resource person familiar with the subject treated
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ANNEX 5: SUMMARY MATRIX OF LEGISLATION PER PARTNER COUNTRY
Title of the
document
Source of
information
Contact
Person
Type of
document
Year
published
Main theme of
the document
Issues treated
ITALY
Costituzione della
Rebubblica Italiana
Conversione in legge del
D.L. 30.01.1971 n.5 a
nuove norme in favore
dei mutilati e invalidi civili
Provvidenze a favore
degli invalidi
Contrassegno da
rilasciare agli invalidi in
base all'art. 6 del D.P.R.
384/78
http://www.quiri
nale.it/costituzi
one/costituzion
e.htm
Official Gazette
http://www.han
dylex.org/stato/
l300371.shtml
Official Gazette
Official Gazette
The Italian
Constitution
GU. Del
27.12.1947
n.298
Constitution of
Italian state
Legge n. 118
del 30.03.1971
(Law)
G.U. del
02.04.1971,
n.82
Guidelines for
Art 27: guidelines on how to
assisting people with remove barriers in public
disability
buildings and accessibility to
public transport for people
with disability
Social security,
financial support for
persons with
disabilities.
How it is organised.
Circolare del
18.11.1977
Ministero della
Marina
Mercantile
18.11.1977
n.170
(Italian
Communication
n.170)
D.M. del
08.06.1979
Ministro dei
Lavori Pubblici
di concerto col
Ministro dei
Trasporti del
8.6.1979 n.
1176
(Italian
Articles 2-3: Principles of
no-discrimination.
Car parking for
persons with
disabilities
118
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Circolazione e sosta dei
veicoli degli invalidi
Official Gazette
Facilitazioni per la
circolazione e la sosta
dei veicoli degli invalidi
Official Gazette
Provvedimenti a favore
delle persone con
capacità di
deambulazione
sensibilmente ridotta.
Contrassegno speciale di
circolazione ed aree di
sosta riservata e gratuita
Official Gazette
Disposizione per la
formazione del bilancio
annuale e pluriennale
dello Stato
Misure urgenti per la
costruzione o
l'ammodernamento di
impianti sportivi, per la
realizzazione o
completamento di
Official Gazette
http://www.han
dylex.org/stato/
c070380.shtml
http://www.han
dylex.org/stato/
c130683.shtml
Official Gazette
Ministerial
Decree n.1176
of 08/06/1979)
Circolare del
28.06.1979
Ministro dei
Lavori Pubblici
del 28.6.1979
n. 1270 (Italian
Communication
n. 1270)
Circolare del
07.03.1980
Ministero dei
Lavori Pubblici
del 7.3.1980 n.
310 (Italian
Communication
n. 310)
Appendice alla
Circolare del
Ministero dei
Lavori Pubblici
del 13.6.1983
n. 1030
(italian
Communication
n. 1030)
Legge del .
28.2.1986 n. 41
(Italian law
28.02.1986)
Legge del
6.3.1987 n. 65
"Conversione
in legge, con
modificazioni,
del D.L.
Provisions about
free accessibility of
parking for persons
with disabilities
Rules for facilitating
road traffic vehicles
for persons with
disabilities
13.06.1983
Provisions about
special free parking
places for persons
with disabilities in
particular places (in
accordance with
Italian
Communication 310)
S.O. n. 1
alla G.U.
28.2.1986,
n. 49
G.U.
7.3.1987, n.
55
Financial rules for
National annual
budget
There is mention to
persons with disabilities
Urgent measures in
order to modernize
the sports structures
and tourist
structures with
particular
119
RDD – Recommendations for Good Practice
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strutture sportive di base
e per l'utilizzazione dei
finanziamenti aggiuntivi a
favore delle attività di
interesse turistico
Disposizioni per favorire Official Gazette
il superamento e
l'eliminazione delle
barriere architettoniche
negli edifici privati
Modifiche ed integrazioni Official Gazette
alla L. 9.1.1989 n. 13,
recante disposizioni per
favorire il superamento e
l'eliminazione delle
barriere architettoniche
negli edifici privati
Disposizioni per favorire Official Gazette
il superamento e
l'eliminazione delle
barriere architettoniche
negli edifici privati
Prescrizioni tecniche
necessarie a garantire
l'accessibilità e la
visitabilità degli edifici
privati e di edilizia
residenziale pubblica
sovvenzionata e
agevolata, ai fini del
superamento e
dell'eliminazione delle
barriere architettoniche
Circolare esplicativa
della L. 9.1.1989 n° 13
Official Gazette
http://www.han
dylex.org/stato/
d140689.shtml
Official Gazette
3.1.1987 n. 2
(Italian law
06.03.1987)
equipments for
persons with
disabilities
Legge del
9.1.1989 n. 13
(Law
09.01.1989)
G.U.
26.1.1989,
n. 21
Guidelines on how
to eliminate barriers
in favour of persons
with disabilities in
private buildings
Provisions on how to
remove barriers in
private buildings
L. 27.2.1989 n.
62 (Law
27.02.1989)
G.U.
27.2.1989,
n. 48
Circolare del
Ministero dei
Lavori Pubblici
del 10.6.1989
n. 517 (Italian
Communication
n.517)
D.M. del
Ministro dei
Lavori Pubblici
del 14.6.1989
n. 236 (italian
Decree
14.06.1989)
S.O. alla
G.U.
23.6.1989,
n. 145
Provisions on how to
remove barriers in
private buildings
S.O. alla
G.U.
23.6.1989,
n. 145
Technical rules for
In the 2nd article there is the
the accessibility of
definition of barriers and
private buildings,
accessibility of buildings.
public structures and
building external
spaces.
Circolare del
Ministro dei
S.O. alla
G.U.
In this
Communication
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RDD – Recommendations for Good Practice
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http://www.han
dylex.org/stato/
c220689.shtml
Lavori Pubblici 23.6.1989,
22.6.1989 n.
n. 145
166/U.L.(
Italian
Communication
22.06.1989)
Disposizioni per favorire
il superamento e
l'eliminazione delle
barriere architettoniche
negli edifici privati
(Legge 9 gennaio 1989,
n. 13
Official Gazette
Norme intese a favorire
la votazione degli elettori
non deambulanti
Official Gazette
Legge-quadro per
l'assistenza,
l'integrazione sociale e i
diritti delle persone
Official Gazette
Circolare
Ministeriale Ministero della
Marina
Mercantile - 23
gennaio 1990,
n. 259
Demanio
Marittimo e dei
Porti (Italian
Communicatio
23.01.1990)
Legge del
15.1.1991 n. 15
(Italian law
15.01.1991)
Legge del
5.2.1992 n. 104
(Italian law
05.02.1992)
http://www.han
dylex.org/stato/
c230190.shtml
http://www.han
dylex.org/stato/
23.01.1990
G.U.
19.1.1991,
n. 16
S.O. alla
G.U.
17.2.1992,
n. 39
there are 3
provisions on
barriers removal
1)Building should be
accessible to all
persons
2) Building renew
should comply with
new rules on
accessibility for all
persons
3)The Government
provides financial
support for the
renew of building
that comply with the
accessibilities rules
Accessibilities to
maritime localities
Accessibilities to
building and poll
booth in case of
voting
Guidelines for
assistance, social
integration of
persons with
It’s a general law that
covers many issues about
disabilities:
General principles for the
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handicappate
l050292.shtml
Principi sull'erogazione
dei servizi pubblici
Official Gazette
http://www.han
dylex.org/stato/
d270194.shtml
Regolamento recante
norme per l'eliminazione
delle barriere
architettoniche negli
edifici, spazi e servizi
pubblici
Riavvicinamento delle
legislazioni degli Stati
membri relative alle
macchine (S.O. alla G.U.
6.9.1996, n. 209) e
relativa Circ. Ministero
dell'Industria del
14.4.1997 n. 157.296
(G.U. 23.4.1997, n. 94)
Official Gazette
http://www.han
dylex.org/stato/
d240796.shtml
#a32
Official Gazette
disabilities
Direttiva del
Presidente del
Consiglio dei
Ministri del 27
gennaio 1994 (
Decision of
President of
council of
ministers
27/01/1994)
D.P.R.
24.7.1996 n.
503 ( Italian
decree of
president of
Republic)
D.P.R.
24.7.1996 n.
459
Regolamento
per l'attuazione
delle direttive
89/392/CEE,
91/368/CEE,
93/44/CEE e
G.U., 22
febbraio
1994, n. 43
General framework
for the provision of
public services
through principles of
equality, impartiality,
continuity;
participation.
S.O alla
G.U.
27.9.1996,
n. 227
Guidelines on how
to remove barriers in
public buildings
G.U.
23.4.1997,
n. 94
Harmonization of
legislations of
member states
about
vehicles/minibus
rights of persons with
disabilities; tools for social
integration and employment
inclusion; right to education
and accessibility to public
educations; training for
employment; removal of
barriers; access to
information and
communication; public
transport and mobility; right
to vote: tax concessions.
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Conversione in legge,
con modificazioni, del
decreto-legge 21 ottobre
1996, n. 535 recante
disposizioni urgenti per i
settori portuale,
marittimo, nonché
interventi per assicurare
taluni collegamenti aerei
Norme per il diritto al
lavoro dei disabili
Official Gazette
Official Gazette
Linee guida per
l'accessibilità ai siti web
e delle applicazioni
informatiche a persone
disabili
Official Gazette
Criteri e strumenti per
migliorare l'accessibilità
dei siti web e delle
applicazioni informatiche
a persone disabili
Tipologia di autobus
urbani accessibili
http://urp.regio
ne.abruzzo.it/s
ervizi/normativ
e/circolaredel1
3-32001n3.htm
Official Gazette
Official Gazette
93/68/CEE
(Italian decree
of president of
Republic
24.07.1996)
Legge 23
dicembre 1996,
n. 647 (Italian
law
23.12.1996)
G.U. del 28
dicembre
1996, n.
303
Accessibility to ports
and airports.
Legge n.68 del
12 Marzo 1999
(Italian law
12/03/1999)
G.U. del
23/03/1999,
n.68
Right to work for
persons with
disabilities.
Circolare del
Dipartimento
della funzione
pubblica, n.
3/2001 del 13
marzo 2001
(Communicatio
n 13/03/2001)
Circolare 6
Settembre
2001, n.
AIPA/CR/32
(Communicatio
n 6/09/2001)
G.U. del 19
marzo
2001, Serie
generale, n.
65
D.M. 20 giugno
2003 ( Italian
G.U. dell'8
agosto
Guidelines to
promote the access
to technologies and
to web sites of
persons with
disabilities in the
public
administrations.
Principles and tools
to facilitate the
accessibility of web
sites and informatics
technology for
persons with
disabilities.
Rules for accessible
buses for persons
G.U. del 14
Settembre
2001, n.
214)
In the article 8 there is a
reference to barriers in the
seaside structures.
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Tipologia di autobus
urbani accessibili
Official Gazette
Disposizioni per favorire
l'accesso dei soggetti
disabili agli strumenti
informatici
Official Gazette
SECURITY
Miglioramento della
sicurezza e della salute
dei lavoratori sul luogo di
lavoro
Criteri generali di
sicurezza antincendio e
per la gestione
dell’emergenza nei luoghi
di lavoro
http://www.han
dylex.org/stato/
l090104.shtml
Official
Gazette
http://www.sic
urezzaonline.it
/leggi/leggen/l
eggen626/dlg
626_2006_09
_11.pdf
Ministry of the
Interior.
http://www.am
Ministerial
Decree
20/06/2003)
Circolari Prot.
47_MOT2/C
del 12/01/2004,
Prot.
48_MOT2/C
del 12/01/2004,
Prot.
MOT3/1377/M3
60 del
05/04/2004
(italian
Communication
)
Legge 9
Gennaio 2004 ,
n. 4 (Italian law
09/01/2004,
n.4)
2003, n.
183, S.O
with disabilities.
G.U. del 171-2004, n.
13
Provisions to
facilitate the
accessibility to
informatics tools for
persons with
disabilities.
Decreto
Legislativo del
governo n.626
del 19.09.1994
(Legislative
Decree
19/09/1994)
G.U. del
12.11.1994
Suppl.
Ordin. N.
265
National guidelines
for the security and
health of people in
workplaces
No reference to people with
disabilities.
Art 4 (12): reference to
public buildings.
Decreto
Ministeriale
10/03/1998,em
esso
ai sensi del
7/04/1998 in
the
Gazzetta
Ufficiale
National guidelines
for the security of
people in
workplaces in case
of fire and
In the chapter 8.3 there are
guidelines for rescuing
disabled in fire emergency:
the workplaces should have
measures of fire prevention
Rules for accessible
buses for persons
with disabilities.
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biente.it/sicure
zza/legislazio
ne/leggi/1998/
dm10-398/Default.ht
m
D.lgs 626/94
(Ministerial
Decree
10.03.1998)
Criteri di massima per
l’organizzazione dei
soccorsi sanitari nelle
catastrofi
Ministry of the
Interior.
Decreto
ministeriale
del13/02/2001
(Ministerial
Decree
13/02/2001)
Linee guida per la
valutazione della
sicurezza antincendio nei
luoghi di lavoro ove siano
(o possano essere)
presenti persone disabili
Ministry of the
Interior;
National Fire
Department;
National
Council of
disabled
people and
their families.
http://www.pro
vincia.fi.it/prot
ezciv///////nor
mativa/normn
azionale/nazio
nale/dm13020
1.pdf
06/04/2001,
n.81 in
Gazzetta
Ufficiale
Circolare
G.U.
Ministero dell’
06.06.2002
Interno n. 4 del n. 131
1/03/2002
(Italian
Communication
01/03/20029
management of
emergency
situations
and measures of evacuation
for persons with disabilities.;
Emergency plan should
have some workers able to
help persons with disability
in case of emergency.
General principles
of management of
health rescue during
the emergencies.
Four levels of intervention:
national, regional, provincial
and municipal plans. The
only reference to persons
with disabilities is in chapter
1.9 regarding the territory
check phase.
National guidelines
for the security of
disabled people in
fire emergency.
Analyse of fire risk in
workplaces where there are
disabled people and
guidelines on how to create
a rescue system for the
disabled in case of fire.
http://www.vigi
lfuoco.it/speci
ali/sicurezza/s
icurezza_insie
me/disabili/pdf
/circolare_4_0
2.pdf
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La sicurezza antincendio
nei luoghi di lavoro ove
siano presenti persone
disabili: strumenti di
verifica e controllo
(Check-list)
Il soccorso alle persone
disabili: indicazioni per le
gestione dell’emergenza.
Ministry of the
Interior;
National Fire
Department;
National
Council of
disabled
people and
their families.
http://www.vigi
lfuoco.it/speci
ali/sicurezza/s
icurezza_insie
me/disabili/pdf
/allegato_lettci
rc_disabili.pdf
Ministry of the
Interior;
National Fire
Department;
Work Group “
Security of
disable
people”.
Circolare
18/08/2006
Ministero dell’
Interno n. P880
del 18/08/2006
con allegata la
check-list.
(Italian
Communication
of Ministry of
Interior
18/08/2006)
List of actions in
order to check the
security of work
places where there
are disabled people.
In the check-list there are
three groups of questions
regarding: phase of alert;
escape strategies; mobility
inside the work places.
National Fire
Department.
Procedures for
rescuing disabled
people in the
disasters.
How to rescue persons with
disabilities in emergency.
2004.
http://www.vigi
lfuoco.it/speci
ali/sicurezza/s
icurezza_insie
me/disabili/pdf
/soccorso_dis
abili.pdf
http://www.vigi
lfuoco.it/speci
ali/sicurezza/s
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icurezza_insie
me/disabili/pdf
/allegato_lettci
rc_disabili.pdf
Criteri di massima sugli
interventi psico-sociali da
attuare nelle catastrofi
Directive of
President of
Council of
ministers
http://www.pro
tezionecivile.it
/cms/attach/e
ditor/rischio_s
anitario/Criteri
_di_massima.
pdf
Attuazione della direttiva
2003/24/CE relativa ai
requisiti di sicurezza per
le navi da passeggeri
Official
Gazette
http://www.am
biente.it/sicure
zza/legislazio
ne/leggi/2005/
dlgs522005.htm
Direttiva del
presidente del
Consiglio dei
ministri del 13
giugno 2006
(Italian
directive
13/06/2006)
13/06/2006
Procedures to follow
in order to promote
the psycho and
physical safeguard
of persons during
and after a disaster
Decreto
legislativo
08/03/2005
(Legislative
Decree
08/03/2005)
G.U. del
18/04/2005
n.89
Rules for the
security of persons
with disabilities on
board of ships
Article 2: Reference to
vulnerable persons and in
particular to persons with
disabilities.
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RDD – Recommendations for Good Practice
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Direttive per l’applicazione Official
degli orientamenti sui
Gazette
requisiti di sicurezza delle
navi da passeggeri e unità
veloci da passeggeri per
le persone a mobilità
ridotta (PMR)
Circolare n.
04.01.2007
10/SM Prot.
151 del
04.01.2007
(Italian
Communication
04.01.2007)
Guidelines on how
to ensure the
safeguard of
persons with
disabilities in ships.
Direttiva n. 85
del 20.11.2001
(directive
2001/85 EC of
the European
Parliament and
of the council
of 20
November
2001)
GU L 42 del
13.2.2002,
Special provisions
to be applied to
vehicles/minibus
(with more of 8
seats) for the
transport of persons
with disabilities.
Article 2.21: there is a
reference to passengers
with disabilities ( including
persons with reduced
mobility, people with sensory
and intellectual impairments,
wheelchair users, people
with limb impairments)
Regolam
ento del
Consiglio
dell’11/07
/2006
(Council
Regulatio
n (EC) No
1083/200
6 of 11
July
2006)
G.U.
dell’Unione
Europea ,
L210/2006
del
31.07.2006
General provisions
on the European
Regional
Development Fund,
the European Social
Fund and the
Cohesion Fund and
repealing
Regulation
Art 30:In the context of the
Communitarian effort in
favor of economic and social
cohesion, the Community, at
all stages of the
implementation of the
Funds, has as its goals to
eliminate inequalities and to
promote equality between
men and women as
enshrined in Articles 2 and 3
of the RomeTreaty , as well
as combating discrimination
European Legislation
Disposizioni speciali da
applicare ai veicoli adibiti
al trasporto passeggeri
aventi più di otto posti a
sedere oltre al sedile del
conducente e recante
modifica delle direttive
70/156/CEE e 97/27/CE
Regolamento (CE)
n.1083/2006 del consiglio
recante disposizioni
generali sul Fondo
europeo di sviluppo
regionale, sul Fondo
sociale europeo e sul
Fondo di coesione e che
abroga il regolamento
(CE) n. 1260/1999
European
Parliament
http://eurlex.europa.eu
/LexUriServ/si
te/it/oj/2002/l_
042/l_042200
20213it00010
102.pdf
Council
Regulation
(EC)
http://eurlex.europa.eu
/LexUriServ/L
exUriServ.do
?uri=OJ:L:20
06:210:0025:
01:EN:HTML
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Risoluzione del consiglio
del 28/01/2002 intesa a
rafforzare la cooperazione
in materia di formazione
nel settore della
protezione civile (2002/C
43/01)
Trattato di
Amsterdam
Council
resolution
(EC)
http://eurlex.europa.eu
/LexUriServ/si
te/en/oj/2002/
c_043/c_043
20020216en0
0010002.pdf
The
.
Amsterdam
Treaty
http://www.eu
rotreaties.co
m/amsterdam
treaty.pdf
Risoluzione del
parlamento europeo del 4
Settembre 2007 sulle
http://www.eu
roparl.europa.
eu/sides/getD
Risoluzione
del consiglio
n. 2002/C
43/01 del
28/01/2002 (
Council
Resolution
n. 2002/C
43/01)
Gazzetta
ufficiale
C43/1 del
16.02.2002
The
Amsterdam
Treaty
amending the
treaty on
European
Union
02.10.1997
European
Parliament
resolution
4/09/2007
based on sex, racial or
ethnic origin, religion or
belief, disability, age or
sexual orientation.
Art 2: to establish a
Community mechanism to
facilitate reinforced
cooperation in civil
protection assistance
interventions
Article 13: This
Article complements
Article 12, which
prohibits
discrimination on
grounds of
nationality. The new
Article enables the
Council to take
appropriate action
to combat
discrimination
based on sex, racial
or ethnic origin,
religion or belief,
disability, age or
sexual orientation..
Resolution about
the 2007 summer’s
natural disasters
The new Article 13 provides
measures to combat
discrimination based on
disability. The
Intergovernmental
Conference that drew up the
Treaty of Amsterdam sought
to offer an even stronger
guarantee by including a
declaration in the Final Act,
stating that the Community
institutions must take
account of the needs of
persons with a disability
when adopting measures to
approximate Member States'
legislation..
Art 19: Stresses the need to
take special care in cases of
natural disasters of the
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catastrofi naturali
oc.do?pubRef
=//EP//TEXT+T
A+P6-TA20070362+0+DOC
+XML+V0//E
N&language=
EN
specific needs of people with
disabilities in all actions
undertaken using the Civil
Protection Mechanisms
130