Emergency Planners

All disabled people have the right to protection and safety in situations of risk, including armed conflict, humanitarian emergencies, and natural disasters. This page centers disabled people’s expertise to help emergency planners create genuinely inclusive emergency management that goes beyond check-box compliance.

Why This Matters

Disabled people die disproportionately in disasters. Hurricane Katrina killed those over 60 at rates vastly disproportionate to their share of the population. COVID-19 devastated disabled communities while excluding them from decision-making. The 2025 LA wildfires killed people with mobility-affecting conditions at alarming rates.

These deaths are not inevitable. They result from emergency systems designed without disabled input, inaccessible communications, shelters that can’t accommodate disabled people, and plans that treat disability as an afterthought.

Disabled people are not helpless in emergencies—they are experts on their own needs. Emergency planning that centers their expertise saves lives.

Whole Community Approach

The Framework

FEMA’s “Whole Community” approach fundamentally shifted emergency management from segregating disabled people as “special needs populations” to including them as integral community members and planners.

Key principles:

Include the whole community in planning, not just able-bodied responders
Disabled people and disability organizations must be at the planning table
Plan for functional needs, not diagnostic categories
Build community capacity rather than creating parallel systems

Who Should Be at the Table

Emergency planning teams should include:

Disabled people and disability-led organizations
Centers for Independent Living
Area Agencies on Aging
Home healthcare providers
Durable medical equipment suppliers
Sign language interpreters and Deaf organizations
Organizations serving blind/low vision communities
Developmental disability service providers
Mental health organizations
Homeless services (high rates of disability in homeless populations)

Rejecting “Special Needs” Framing

“Special needs” othering is both inaccurate and harmful:

Access needs are functional, not “special”
Anyone can have access needs (temporary injuries, pregnancy, aging)
“Special needs” framing leads to segregated, inferior services
Planning for functional needs benefits everyone

Use “access and functional needs” or “disability and access needs” instead.

The CMIST Framework

The CMIST framework provides a functional approach to access needs planning:

C - Communication

Speech disabilities and limited English proficiency
Hearing and vision disabilities
Cognitive and developmental disabilities
Need for alternative formats, plain language, interpreters

M - Maintaining Health

Medications (including refrigerated medications, controlled substances)
Medical equipment (oxygen, dialysis, ventilators, feeding pumps)
Medical supplies (ostomy supplies, catheters, wound care)
Ongoing treatments (dialysis, chemotherapy)
Skilled nursing and personal care services

I - Independence

Assistive technology and durable medical equipment
Mobility devices (wheelchairs, walkers, canes)
Service animals
Personal assistance services
Prosthetics and orthotics

S - Safety, Support Services, and Self-Determination

Safety needs (supervision, de-escalation support, secure environment)
Support networks that may be disrupted
Self-determination in decision-making (don’t assume incapacity)
Communication supports for people with psychiatric or cognitive disabilities

T - Transportation

Accessible transportation for evacuation
Transport of mobility devices and medical equipment
Accessible vehicles for temporary transportation needs
Alternative transportation when personal vehicles aren’t available

Accessible Emergency Communications

Legal Requirements

ADA Title II requires state and local governments to ensure equally effective communications during emergencies. This isn’t optional—it’s the law.

All emergency information must be accessible through multiple channels:

Visual: Text-based alerts (SMS, email, apps), accessible websites, social media with image descriptions, printed materials in accessible formats.

Auditory: Radio, TV, public address systems, emergency alert system.

Accessible combinations: Captioned video, sign language interpretation at briefings, screen reader-compatible digital content.

Sign Language Interpretation

All public briefings must include qualified ASL interpreters:

Interpreter visible on screen at all times (not cropped out)
Professional interpreters, not staff who “know some sign”
Plan interpreter logistics in advance—don’t scramble during emergencies
Video Remote Interpreting (VRI) only when in-person isn’t possible

Plain Language

Emergency communications should be at 3rd-4th grade reading level:

Short sentences
Common words
Active voice
Concrete instructions
Avoid jargon and acronyms

People under stress process information less effectively. Plain language helps everyone.

Real-Time Captioning

TV broadcasts of emergency information should include accurate captions:

Live captioning (CART) for press conferences
Captions for all emergency-related video content
Quality control for auto-captioning accuracy

Multi-Language Access

Translate key materials into languages spoken in your community
Work with community organizations for cultural appropriateness
Don’t rely on children or untrained family members to interpret

Accessible Alert Systems

Wireless Emergency Alerts (WEA) reach cell phones
SMS/text alerts for those registered
TTY and relay service compatibility for phone-based systems
Visual alerting devices (lights, vibration) for deaf/hard of hearing people

Shelter Accessibility

ADA Requirements

Emergency shelters must comply with ADA Title II. They must be physically accessible and provide program access to people with disabilities.

Physical Requirements

Entrances and routes: Accessible pathways from parking/drop-off through the shelter.

Sleeping areas: Accessible cots (17-19” height for wheelchair transfer, 350+ lb capacity), 36” clear space alongside, firm sleeping surfaces.

Restrooms: At least one wheelchair-accessible toilet with adequate clearance. Accessible sinks. Grab bars.

Showers: Roll-in showers required if any showers are provided, at least for shelters with 50+ beds.

Clear pathways: 36” minimum clear width, 60” turning radius at key points.

Functional Needs Support Services (FNSS)

Beyond physical accessibility, shelters need:

Trained personnel who can assess and meet individual needs.

Personal assistance services for people who need help with eating, toileting, transferring, medication management.

Power for medical equipment: Backup generators, charging stations, outlets available to those who need them.

Communication access: Interpreters, accessible information in multiple formats.

Refrigeration for medications: Insulin, some biologics, and other medications require refrigeration.

Quiet areas: For people with sensory sensitivities, PTSD, autism, or other conditions where shelter environment is overwhelming.

Pet-friendly or adjacent pet shelters: Many people won’t evacuate without pets.

What Shelters Should NOT Do

Don’t automatically route people with disabilities to medical shelters. Most disabled people don’t need medical shelters—they need accessible general population shelters.

Don’t separate disabled people from families, service animals, or equipment.

Don’t require medical documentation to access accessible sleeping areas or services.

Don’t treat disability as a reason to deny shelter access.

Medical Equipment and Power

The Scope

Over 4.5 million Medicare recipients use electricity-dependent medical equipment:

Ventilators
Oxygen concentrators
CPAP/BiPAP machines
Dialysis equipment
Feeding pumps
Power wheelchairs
Refrigerated medications

Power outages can be immediately life-threatening. Climate change is increasing power outage frequency and duration.

Planning Requirements

Shelter power:

Backup generators with capacity for medical equipment
Priority outlet access for life support equipment
Extension cords and power strips available
Fuel plans for extended outages

Community power:

Identify community locations with backup power (community centers, hospitals)
Partner with utilities for priority reconnection lists
Establish cooling/heating centers with accessible power

Individual preparedness support:

Help individuals develop personal power plans
Provide information about portable power options
Connect people with resources for backup equipment

emPOWER Data

Medicare’s emPOWER database provides de-identified data on electricity-dependent Medicare beneficiaries by geography. Emergency planners can use this to:

Estimate numbers of affected individuals in their jurisdiction
Identify which equipment types are most common
Plan resource needs

Available at: empowerprogram.hhs.gov

Dialysis Planning

Dialysis patients must receive treatment approximately every other day or they die. Planning needs include:

Backup dialysis facility agreements
Transportation to functioning facilities
Communication systems to notify patients of changes
Water supply for dialysis (large quantities needed)

Evacuation

Accessible Evacuation Transportation

Buses must be accessible (lifts, securement)
Enough accessible vehicles for demand
Transport of mobility devices and equipment (including heavy power wheelchairs)
Trained drivers who know how to operate lifts and securement systems
Route planning considering accessible drop-off points

Evacuation of People with Mobility Disabilities

Never leave anyone behind because evacuation is difficult
Have evacuation equipment available (stair chairs, evacuation sleds)
Train personnel on proper evacuation techniques
Ask individuals how they prefer to be evacuated
Practice evacuation procedures including with disabled participants

Service Animals

Service animals must be evacuated with their handlers:

Never separate handler from service animal
Transportation must accommodate service animals
Shelters must allow service animals
Don’t require documentation—asking about the animal’s trained tasks is permitted

Personal Equipment

People should be able to bring essential equipment:

Wheelchairs and mobility devices
Communication devices
Medical equipment
Medications
Assistive technology

If equipment must be left behind, have plans for replacement or retrieval.

Why Disability Registries Often Fail

The Problems

Many jurisdictions create “special needs registries” for people who need evacuation assistance. California’s Governor’s Office of Emergency Services “strongly discourages” them because:

False sense of security: Registrants expect help that may not come during large-scale emergencies when needs exceed capacity.

Resource mismatch: Registries work for small, local emergencies but fail during disasters affecting entire regions.

Maintenance failures: Lists become outdated quickly. People move, conditions change, contact information changes.

Privacy concerns: Sensitive health information in databases creates security risks.

Resource diversion: Energy spent maintaining registries could build actual response capacity.

Better Alternatives

Build universally accessible infrastructure: Accessible transportation, communications, and shelters help everyone and don’t require lists.

Partner with disability organizations: Disability organizations know their members and can help with outreach during emergencies.

Use existing databases: emPOWER data, utility medical baseline programs, and home health agency records (with appropriate privacy protections).

Strengthen community organizations: Fund disability organizations and Centers for Independent Living to build emergency capacity.

Registries for specific purposes only: If registries exist, use them for specific purposes (power outage notification, for example) with clear communication about limitations.

Post-Disaster Recovery

Ongoing Access Needs

Disability-related needs don’t end when immediate emergency passes:

Ongoing medical care and supplies
Replacement of lost equipment and medications
Accessible temporary housing
Accessible transportation as systems rebuild
Mental health support (trauma affects everyone; disabled people may have additional vulnerabilities)
Economic recovery (disabled people often have fewer resources to begin with)

FEMA Individual Assistance

Disabled individuals can access FEMA individual assistance for:

Housing assistance
Personal property replacement (including medical equipment)
Medical and dental expenses
Other needs assistance

Ensure application processes are accessible:

Online applications work with screen readers
Phone assistance includes relay services
In-person assistance locations are accessible
Materials available in alternative formats

Accessible Temporary Housing

FEMA’s Direct Housing Assistance must be accessible:

Percentage of accessible units
Accessible placement within communities (not isolated)
Modifications available for units that need them

Long-Term Recovery

Include disability organizations in long-term recovery planning:

Accessible rebuilding of infrastructure
Replacement of disability services disrupted by disaster
Addressing pre-disaster gaps exposed by emergency
Building back more accessible than before

Lessons from Past Disasters

Hurricane Katrina (2005)

71% of Louisiana deaths were people over 60 (15% of population)
Inaccessible evacuation: buses without lifts, separated from wheelchairs
Disabled people turned away from shelters
Medical needs ignored in shelters
Disabled people died in nursing homes and hospitals that didn’t evacuate

COVID-19 (2020-ongoing)

Disabled people faced three increased risks: infection, severe disease, and worsening of other conditions
Excluded from decision-making throughout
Inaccessible communications about changing guidance
Isolation especially harmful to those depending on services
Long COVID created new disability community

California Wildfires (2025)

At least one-third of Eaton Fire deaths involved people with mobility-affecting conditions
Evacuation plans failed people who couldn’t self-evacuate
Communication failures reached people too late
Power outages affected equipment-dependent individuals

Common Failures Across Disasters

Disabled people not included in planning
Inaccessible communications
Evacuation plans that don’t work for people with disabilities
Shelters that can’t accommodate disabled people
Medical equipment and supplies not available
Post-disaster recovery that leaves disabled people behind

International Frameworks

UN CRPD Article 11

“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 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.”

Sendai Framework for Disaster Risk Reduction

The Sendai Framework explicitly includes disability:

Disability-disaggregated data collection
Inclusive early warning systems
Accessible emergency information
Participation of disabled people in planning and implementation

Charter on Inclusion of Persons with Disabilities in Humanitarian Action

Developed by disability organizations and humanitarian actors, the Charter commits to:

Non-discrimination
Participation
Inclusive policy
Inclusive response
Cooperation and coordination

Resources

Disability-Led Organizations

Partnership for Inclusive Disaster Strategies: The only US disability-led organization focused on disaster equity. 24/7 Disability & Disaster Hotline: 800-626-4959. Website: disasterstrategies.org

Government Resources

FEMA Office of Disability Integration and Coordination (ODIC): fema.gov/about/offices/disability

CDC Access and Functional Needs Toolkit: Guidance for public health emergency planning.

Administration for Community Living (ACL): Resources on emergency planning for older adults and people with disabilities.

Technical Guidance

ADA Best Practices Tool Kit for State and Local Governments: Includes emergency management chapter.

emPOWER: empowerprogram.hhs.gov - Medicare data on electricity-dependent individuals.

International

UN Enable Emergency and Disaster Resources: un.org/development/desa/disabilities

IASC Guidelines on Inclusion of Persons with Disabilities in Humanitarian Action: Comprehensive guidance for humanitarian response.

Quick Reference: Do This, Not That

Instead of…	Try…
”Special needs populations"	"People with access and functional needs”
Planning for disabled people	Planning with disabled people
One communication channel	Multiple accessible channels
Medical shelters for all disabilities	Accessible general population shelters
Disability registries as primary solution	Building accessible systems for everyone
Separating people from equipment/animals	Keeping people with their supports
Treating disability as afterthought	Centering disability in planning
Assuming what people need	Asking individuals about their needs

Key Principles Summary

Include disabled people as planners, not just recipients of services.
Plan for functional needs, not diagnostic categories.
Make all communications accessible through multiple modalities.
Shelters must be physically accessible and provide support services.
Power planning is life-or-death for equipment-dependent individuals.
Evacuation must be accessible, including transportation and destination.
Registries are not solutions—build accessible systems that work for everyone.
Recovery must be accessible too, not just immediate response.

This page centers disabled people’s expertise and is informed by disabled-led organizing globally. For questions or to suggest additions, see How to Contribute.

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