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- 1. Table of Contents SUMMARY The NFPA Emergency Evacuation Planning Guide for People with Disabilities has been developed with input from the disability community to provide general information on this important topic. In addition to providing information on the five general categories of disabilities (mobility impairments, visual impairments, hearing impairments, speech impairments, and cognitive impairments), the Guide outlines the four elements of evacuation information that occupants need: notification, way finding, use of the way, and assistance. Also included is a Personal Emergency Evacuation Planning Checklist that building services managers and people with disabilities can use to design a personalized evacuation plan. The annexes give government resources and text based on the relevant code requirements and ADA criteria. ñOVERVIEW The NFPA Emergency Evacuation Planning Guide for People with Disabilities was developed in response to the emphasis that has been placed on the need to properly address the emergency procedure needs of the disability community. This Guide addresses the needs, criteria, and minimum information necessary to integrate the proper planning components for the disabled community into a comprehensive evacuation planning strategy. This Guide is available to everyone in a free, downloadable format from the NFPA website, www.nfpa.org. Additionally a link is available for users of the Guide to provide comments or changes to the Guide that should be considered for future versions. It is anticipated that the content will be updated annually or more frequently, as necessary, to recognize new ideas, concepts, and technologies. While building codes in the United States have continuously improved, containing requirements that reduce damage and injury to people and property by addressing fire sprinklers, fire-resistive construction materials, and structural stability, equally important issues such as energy efficiency, protection of heritage buildings, and accessibility are relatively recent subjects that we’ve begun to address in codes. Many newer buildings are constructed as “accessible” or “barrier free” to allow people with disabilities ready access. Equally important is how building occupants with a variety of disabilities are notified of a building emergency, how they respond to a potentially catastrophic event, whether or not appropriate features or systems are provided to assist them during an emergency, and what planning and
- 2. operational strategies are in place to help ensure “equal egress” during an emergency. Visual as well as audible fire alarm system components, audible/directional-sounding alarm devices, areas of refuge, stair-descent devices, and other code-based technologies clearly move us in the right direction to address those issues. This Guide is a tool to provide assistance to people with disabilities, employers, building owners and managers, and others as they develop emergency evacuation plans that integrate the needs of people with disabilities and that can be used in all buildings, old and new. The Guide includes critical information on the operational, planning, and response elements necessary to develop a well-thought-out plan for evacuating a building or taking other appropriate action in the event of an emergency. All people, regardless of circumstances, have some obligation to be prepared to take action during an emergency and to assume responsibility for their own safety. About NFPA: NFPA has been a worldwide leader in providing fire, electrical, building, and life safety to the public since 1896. The mission of this international nonprofit organization is to reduce the worldwide burden of fire and other hazards on the quality of life by providing and advocating consensus codes and standards, research, training, and education. Contact: This Guide was prepared by NFPA staff. Contact Allan B. Fraser, Senior Building Code Specialist, with comments and suggestions at afraser@nfpa.org or 617-984 7411.
- 3. PREFACE The first version of the Americans with Disabilities Act (ADA) that went before Congress was crafted by President Ronald Reagan’s appointees to the National Council on Disability. Even at that time (late 1980s), the disability movement included conservatives as well as liberals and was unified in the view that what was needed was not a new and better brand of social welfare system but a fundamental examination and redefinition of the democratic tradition of equal opportunity and equal rights. In just two years, Congress passed the ambitious legislation, and in 1990 President George Bush held the largest signing ceremony in history on the south lawn of the White House, a historic moment for all people with disabilities. To some degree, passage of the ADA was brought about by members of Congress realizing their obligation to ensure civil rights for all Americans. The benefits of the ADA extend to a broad range of people by cutting across all sectors of society; virtually everyone has already experienced positive benefits from the law or knows someone who has. According to some studies, as many as two-thirds of people with disabilities are unemployed. This is largely due to attitudinal and physical barriers that prevent their access to available jobs. With a labor-deficit economy, the national sentiment opposed to long-term welfare reliance, and the desire of people with disabilities to be economically independent and self-supporting, employment of people with disabilities is essential. The ADA is historic not only nationally but globally as well. No other mandate in the world has its scope. Other nations may provide greater levels of support services and assistive technology, but the United States ensures equal rights within a constitutional tradition. The ADA has unique appeal for all Americans because, unlike other civil rights categories such as race and gender, any one of us could become a member of the protected class at any moment in our lives. The National Fire Protection Association (NFPA) is a codes and standards development organization, not an enforcement agency. The purpose of this Guide is simply to help people with disabilities, employers, building owners and managers, and others look at some of the issues that are relevant to a person’s ability to evacuate a building in the event of an emergency. This document is not intended to be a method or tool for compliance, nor is it a substitute for compliance with any federal, state, or local laws, rules, or regulations. All proposed alternative methods or physical changes should be checked against appropriate codes and enforcing authorities should be consulted to ensure that all proper steps are taken and required approvals are obtained. It is important to note that employers and building/facility owners and operators have certain legal responsibilities to prevent discrimination against people with disabilities in areas within their control, including but not limited to employment, transportation, housing, training, and access to goods, programs, and activities. Equal facilitation is required for any service provided. Employers and building/facility owners and operators are strongly encouraged to seek guidance from qualified professionals with respect to compliance with the applicable laws for individual programs and facilities. See Annex C for areas covered by the ADA. NFPA may not be able to resolve all the accessibility issues that we face in our lives, but it certainly can provide for accessibility in the built environment where it is regulated through codes and standards. This Guide has been written to help define, coordinate, and document the information building owners and managers, employers, and building occupants need to formulate and maintain evacuation plans for people with disabilities, whether those disabilities are temporary or permanent, moderate or severe.
- 4. ñUSING THIS GUIDE TO DESIGN AN EVACUATION PLAN This Guide is arranged by disability category. Use the Personal Emergency Evacuation Planning Checklist to check off each step and add the appropriate information specific to the person for whom the plan is being built. Once the plan is complete, it should be practiced to be sure that it can be implemented appropriately and to identify any gaps or problems that require refinement so that it works as expected. Then copies should be filed in appropriate locations for easy access and given to the assistants, supervisors, co- workers, and friends of the person with the disability; building managers and staff; and municipal departments that may be first responders. The plan should also be reviewed and practiced regularly by everyone involved. People who have a service animal should practice the evacuation drills with their service animals. The importance of practicing the plan cannot be overemphasized. Practice solidifies everyone’s grasp of the plan, assists others in recognizing the person who may need assistance in an emergency, and brings to light any weaknesses in the plan. While standard drills are essential, everyone should also be prepared for the unexpected. Building management should conduct unannounced as well as announced drills and vary the drills to pose a variety of challenges along designated evacuation routes, such as closed-off corridors/stairs, blocked doors, or unconscious people. Practice and planning do make a difference. During the 1993 bombing of the World Trade Center, a man with a mobility impairment was working on the 69th floor. With no plan or devices in place, it took over six hours to evacuate him. In the 2001 attack on the World Trade Center, the same man had prepared himself to leave the building using assistance from others and an evacuation chair he had acquired and had under his desk. It only took 1 hour and 30 minutes to get him out of the building this second time. Emergency evacuation plans should be viewed as living documents. With building management staff, everyone should regularly practice, review, revise, and update their plans to reflect changes in technology, personnel, and procedures Chapter 1 ñGENERAL INFORMATION Most people will, at some time during their lives, have a disability, either temporary or permanent, that will limit their ability to move around inside or outside a building and to easily use the built environment. In fact, more than one in five Americans ages 15 and over have some type of disability; problems with walking and lifting are the most common. The original statistics in the following list are from “Statistical Report: The Status of People with Disabilities,” published in 1994 by the President’s Committee on Employment of People with Disabilities, now the Office of Disability Employment Policy (ODEP). The updated numbers (in parentheses) for 2000 are from the U.S. Census Bureau, and those for 2003 are from the National Center for Health Statistics.
- 5. u48.9 million Americans have one or more disabilities (49.7 million in 2000). u32 million Americans are age 65 or over (33.3 million in 2000). u3.3 million Americans are age 85 and older, a number that is projected to grow by 100 percent, to over 6 million, by 2010. u70 percent of all Americans will, at some time in their lives, have a temporary or permanent disability that makes stair climbing impossible. u8,000 people survive traumatic spinal cord injuries each year, returning to homes that are inaccessible. u17 million Americans have serious hearing disabilities (32.5 million in 2003). u8.1 million Americans have visual disabilities (18.6 million in 2003). u27 million Americans have heart disease and subsequent reduced or limited mobility (31.3 million in 2003). Disabilities manifest themselves in varying degrees, and the functional implications of the variations are important for emergency evacuation. One person may have multiple disabilities, while another may have a disability whose symptoms fluctuate. Everyone needs to have a plan to be able to evacuate a building, regardless of his or her physical condition. While planning for every situation that may occur in every type of an emergency is impossible, being as prepared as possible is important. One way to accomplish this is to consider the input of various people and entities, from executive management, human resources, and employees with disabilities to first responders and other businesses, occupants, and others nearby. Involving such people early on will help everyone understand the evacuation plans and the challenges that businesses, building owners and managers, and people with disabilities face. The issues raised in this Guide will help organizations prepare to address the needs of people with disabilities, as well as others, during an emergency. This Guide was developed using the five general categories of disabilities recognized in the Fair Housing Act Design Manual. It addresses the four elements of “standard” building evacuation information that apply to everyone but that may require modification or augmentation to be of use to people with disabilities. Most accessibility standards and design criteria are based on the needs of people defined by one of the following five general categories: lThe Five General Categories of Disabilities lMobility impairments lVisual impairments lHearing impairments lSpeech impairments lCognitive impairments lThe Four Elements of Evacuation Information That People Need lNotification (What is the emergency?) lWay finding (Where is the way out?) lUse of the way (Can I get out by myself, or do I need help?)
- 6. lSelf lSelf with device lSelf with assistance lAssistance (What kind of assistance might I need?) lWho lWhat lWhere lWhen lHow lGENERAL CATEGORIES OF DISABILITIES lMobility Impairments lWheelchair Users People with mobility disabilities may use one or more devices, such as canes, crutches, a power-driven or manually operated wheelchair, or a three-wheeled cart or scooter, to maneuver through the environment. People who use such devices have some of the most obvious access/egress problems. Typical problems include maneuvering through narrow spaces, going up or down steep paths, moving over rough or uneven surfaces, using toilet and bathing facilities, reaching and seeing items placed at conventional heights, and negotiating steps or changes in level at the entrance/exit point of a building. lAmbulatory Mobility Disabilities This subcategory includes people who can walk but with difficulty or who have a disability that affects gait. It also includes people who do not have full use of their arms or hands or who lack coordination. People who use crutches, canes, walkers, braces, artificial limbs, or orthopedic shoes are included in this category. Activities that may be difficult for people with mobility disabilities include walking, climbing steps or slopes, standing for extended periods of time, reaching, and fine finger manipulation. Generally speaking, if a person cannot physically negotiate, use, or operate some part or element of a standard building egress system, like stairs or the door locks or latches, then that person has a mobility impairment that affects his or her ability to evacuate in an emergency unless alternatives are provided. Respiratory Impairments People with a respiratory impairments can generally use the components of the egress system but may have difficulty safely evacuating due to dizziness, nausea, breathing difficulties, tightening of the throat, or difficulty concentrating. Such people may require rest breaks while evacuating. Visual Impairments This category includes people with partial or total vision loss. Some people with a visual disability can distinguish light and dark, sharply contrasting colors, or large print but cannot read small print, negotiate dimly lit spaces, or tolerate high glare. Many people who are blind depend on their sense of
- 7. touch and hearing to perceive their environment. For assistance while in transit, walking, or riding, many people with visual impairments use a white cane or have a service animal. There is a risk that a person with a visual impairment would miss a visual cue, such as a new obstruction that occurred during the emergency event, that could affect egress. Generally speaking, if a person cannot use or operate some part or element of a standard building egress system or access displayed information, like signage, because that element or information requires vision in order to be used or understood, then that person has a visual impairment that could affect his or her ability to evacuate in an emergency unless alternatives are provided. Hearing Impairments People with partial hearing often use a combination of speech reading and hearing aids, which amplify and clarify available sounds. Echo, reverberation, and extraneous background noise can distort hearing aid transmission. People who are deaf or hard of hearing and who rely on lip reading for information must be able to clearly see the face of the person who is speaking. Those who use sign language to communicate may be adversely affected by poor lighting. People who are hard of hearing or deaf may have difficulty understanding oral communication and receiving notification by equipment that is exclusively auditory, such as telephones, fire alarms, and public address systems. There is a risk that a person with a hearing loss or deafness would miss an auditory cue to the location of a dangerous situation, affecting his or her ability to find safe egress. Generally speaking, if a person cannot receive some or all of the information emitted by a standard building egress system, like a fire alarm horn or voice instructions, then that person has a hearing impairment that could affect his or her ability to evacuate in an emergency unless alternatives are provided. Speech Impairments Speech impairments prevent a person from using or accessing information or building features that require the ability to speak. Speech impairments can be caused by a wide range of conditions, but all result in some level of loss of the ability to speak or to verbally communicate clearly. The only “standard” building egress systems that may require a person to have the ability to speak in order to evacuate a building are the emergency phone systems in areas of refuge, elevators, or similar locations. These systems need to be assessed in the planning process. Cognitive Impairments Cognitive impairments prevent a person from using or accessing building features due to an inability to process or understand the information necessary to use those features. Cognitive impairments can be caused by a wide range of conditions, including but not limited to developmental disabilities, multiple sclerosis, depression, alcoholism, Alzheimer’s disease, Parkinson disease, traumatic brain injury, chronic fatigue syndrome, stroke, and some psychiatric conditions, but all result in some decreased or impaired level in the ability to process or understand the information received by the senses. All standard building egress systems require a person to be able to process and understand information in order to safely evacuate a building.
- 8. Other Impairments and Multiple Impairments In addition to people with permanent or long-term disabilities, there are others who have temporary conditions that affect their usual abilities. Broken bones, illness, trauma, or surgery can affect a person’s use of the built environment for a short time. Diseases of the heart or lungs, neurological diseases with a resulting lack of coordination, arthritis, and rheumatism can reduce a person’s physical stamina or cause pain. Other disabilities include multiple chemical sensitivities and seizure disorders. Reduction in overall ability is also experienced by many people as they age. People of extreme size or weight often need accommodation as well. It is not uncommon for people to have multiple disabilities. For example, someone could have a combination of visual, speech, and hearing disabilities. Evacuation planning for people with multiple disabilities is essentially the same process as for those with individual disabilities, although it will require more steps to develop and complete more options or alternatives. SERVICE ANIMALS Service animals assist people with disabilities in their day-to-day activities. While most people are familiar with guide dogs trained to assist people with visual impairments, service animals can be trained for a variety of tasks, including alerting a person to sounds in the home and workplace, pulling a wheelchair, picking up items, or assisting with balance. The ADA defines a service animal “as any guide dog, signal dog, or other animal individually trained to provide assistance to a person with a disability.” Service animals do not have to be licensed or certified by state or local government. Under the ADA, they are permitted in private facilities that serve the public, including shelters, hospitals, and emergency vehicles; in state and local government facilities; and in the workplace. Only under the following rare and unusual circumstances can a service animal be excluded from a facility: uThe animal’s behavior poses a direct threat to the health or safety of others. uThe animal’s presence would result in a fundamental alteration to the nature of a business or a state or local government’s program or activity. uThe animal would pose an “undue hardship” for an employer. Such instances would include a service animal that displays vicious behavior toward visitors or co-workers or a service animal that is out of control. Even in those situations, the public facility, state or local government, or employer must give the person with a disability the opportunity to enjoy its goods, services, programs, activities, and/or equal employment opportunities without the service animal (but perhaps with some other accommodation).
- 9. A person with a service animal should relay to emergency management personnel his or her specific preferences regarding the evacuation and handling of the animal. Those preferences then need to be put in the person’s evacuation plan and shared with the appropriate building and management personnel. People with service animals should also discuss how they can best be assisted if the service animal becomes hesitant or disoriented during the emergency situation. The procedure should be practiced so that everyone, including the service animal, is comfortable with it. First responders should be notified of the presence of a service animal and be provided with specific information in the evacuation plan. Extra food and supplies should be kept on hand for the service animal. STANDARD BUILDING EVACUATION SYSTEMS A standard building evacuation system has three components: 1.The circulation path 2.The occupant notification system(s) 3.Directions to and through the circulation paths Circulation Path A circulation path is a continuous and unobstructed way of travel from any point in a building or structure to a public way. The components of a circulation path include but are not limited to rooms, corridors, doors, stairs, smokeproof enclosures, horizontal exits, ramps, exit passageways, escalators, moving walkways, fire escape stairs, fire escape ladders, slide escapes, alternating tread devices, areas of refuge, and elevators. A circulation path is considered a usable circulation path if it meets one of the following criteria: uA person with disabilities is able to travel unassisted through the circulation path to a public way. uA person with disabilities is able to travel unassisted through that portion of the circulation path necessary to reach an area of refuge. (See 7.2.12 of NFPA 101®, Life Safety Code®, for more information.) An area of refuge serves as a temporary haven from the effects of a fire or other emergency. The person with disabilities must have the ability to travel from the area of refuge to the public way, although such travel might depend on the assistance of others. If elevation differences are involved, an elevator or other evacuation device might be used, or the person might be moved by other people using a cradle carry, a swing (seat) carry, or an in-chair carry or by a stair descent device. (See 7.2.12 of NFPA 101®, Life Safety Code®, for more information.) A usable circulation path would also be one that complies with the applicable requirements of ICC/ANSI A117.1, American National Standard for Accessible and Usable Buildings and Facilities, for the particular disabilities involved.
- 10. Occupant Notification System The occupant notification systems include but are not limited to alarms and public address systems. NFPA 72®, National Fire Alarm Code, defines a notification appliance as “a fire alarm system component such as a bell, horn, speaker, light, or text display that provides audible, tactile, or visible outputs, or any combination thereof.” Directions to and through the Usable Circulation Path Directions to and through the usable circulation path include signage, oral instructions passed from person to person, and instructions, which may be live or automated, broadcast over a public address system. Personal notification devices, which have recently come onto the market, can be activated in a number of ways, including but not limited to having a building’s alarm system relay information to the device. The information can be displayed in a number of forms and outputs. Because this technology is new to the market, such devices and systems are not discussed here; however, emergency evacuation personnel and people with disabilities may want to investigate them further.
- 11. Chapter 2 BUILDING AN EVACUATION PLAN FOR A PERSON WITH A MOBILITY IMPAIRMENT OCCUPANT NOTIFICATION SYSTEMS No Special Requirements. People with mobility impairments can hear standard alarms and voice announcements and can see activated visual notification appliances (strobe lights) that warn of danger and the need to evacuate. No additional planning or special accommodations for this function are required. WAY FINDING Is There a Usable Circulation Path? A circulation path is considered a usable circulation path if it meets one of the following criteria: uA person with disabilities is able to travel unassisted through it to a public way. uA person with disabilities is able to travel unassisted through that portion of the circulation path necessary to reach an area of refuge. An area of refuge serves as a temporary haven from the effects of a fire or other emergency. A person with a severe mobility impairment must have the ability to travel from the area of refuge to the public way, although such travel might depend on the assistance of others. If elevation differences are involved, an elevator or other evacuation device might be used, or others might move the person by using a wheelchair carry on the stairs. Special Note 1 People with mobility impairments need to know if there is a usable circulation path from the building they are in. If there is not a usable circulation path, then their plans will require alternative routes and methods of evacuation to be put in place. Which Circulation Paths Are Usable Circulation Paths? Exits, other than main exterior exit doors that obviously and clearly are identifiable as exits, should be marked by approved signs that are readily visible from any direction of approach in the exit access.
- 12. Where not all circulation paths are usable by people with disabilities, the usable circulation path(s) should be clearly identified by the international symbol of accessibility: Locations of exit signs and directional exit signs are specified by model codes. Usually the signs are placed above exit doors and near the ceiling. Supplemental directional exit signs may be necessary to clearly delineate the route to the exit. Exit signs and directional exit signs should be located so they are readily visible and should contrast against their surroundings. Special Note 2 People with mobility impairments should be provided with some form of written directions, a brochure, or a map showing all directional signs to all usable circulation paths. For new employees and other regular users of the facility it may be practical to physically show them the usable circulation paths as well as provide them with written information. In addition, simple floor plans of the building that show the locations of and routes to usable circulation paths should be available and given to visitors with mobility impairments when they enter the building. A large sign could be posted at each building entrance stating the availability of written directions or other materials and where to pick them up. Building security personnel, including those staffing entrance locations, should be trained in all the building evacuation systems for people with disabilities and be able to direct anyone to the nearest usable circulation path. Which Paths Lead to Usable Circulation Paths? Any circulation paths that are not usable should include signs directing people to other, usable paths. People with mobility impairments should be provided with written directions, a brochure, or a map showing what those signs look like and where they are. Special Note 3 Where such directional signs are not in place, people with mobility impairments should be provided with written directions, a brochure, or a map showing the locations of all usable circulation paths.
- 13. USE OF THE WAY Can People with Mobility Impairments Use the Usable Circulation Path by Themselves? Is There a Direct Exit to Grade (or a Ramp)? A circulation path is considered a usable circulation path if it meets one of the following criteria: uA person using a wheelchair is able to travel unassisted through it to a public way (if elevation differences are involved, there are usable ramps rather than stairs). uA person using a wheelchair is able to travel unassisted through that portion of the usable circulation path necessary to reach an area of refuge. An area of refuge serves as a temporary haven from the effects of a fire or other emergency. People with mobility impairments must be able to travel from the area of refuge to the public way, although such travel might depend on the assistance of others. If elevation differences are involved, an elevator or other evacuation device might be used, or the person might be moved by another person or persons using a cradle carry, a swing (seat) carry, or an in-chair carry. Training, practice, and an understanding of the benefits and risks of each technique for a given person are important aspects of the planning process. Special Note 4 Not all people using wheelchairs or other assistive devices are capable of navigating a usable circulation path by themselves. It is important to verify that each person using any assistive device can travel unassisted through the usable circulation path to a public way. Those who cannot must have the provision of appropriate assistance detailed in their emergency evacuation plans. Additionally, the plans should provide for evacuation of the device or the availability of an appropriate alternative once the person is outside the building. Otherwise, the person with the mobility impairment will no longer have independent mobility once he or she is out of the emergency situation. Can the Person with a Mobility Impairment Use Stairs? Not all people with mobility impairments use wheelchairs. Some mobility impairments prevent a person from using building features that require the use of one’s arms, hands, fingers, legs, or feet. People with mobility impairments may be able to go up and down stairs easily but have trouble operating door locks, latches, and other devices due to impairments of their hands or arms. The evacuation plans for these people should address alternative routes, alternative devices, or specific provisions for assistance.