ASTM E2951-13(2020)e1

• Abstract:

  SIGNIFICANCE AND USE; 4.1 This guide provides recommendations for the local or regional AHJ to use in dealing with persons with disabilities who reside within their area of responsibility or jurisdiction. It provides information that can support development of procedures and protocols in preparing for the impact of emergencies on persons with disabilities, and it includes recommendations addressing such actions as: ; 4.1.1 Notification—Alerts and warnings for the general public of a pending emergency, and any additional provisions that may be necessary to assure that persons with disabilities are able to receive the message(s). ; 4.1.2 Communications—Information dissemination to the community, including provisions for persons with disabilities so that they are able to receive and respond. ; 4.1.3 Preparation—Ensuring that the community knows about the risks and dangers inherent in emergencies and the necessity for personal planning. ; 4.1.4 Action and Mitigation—Steps that should be taken when an emergency becomes imminent, and planning in advance how to minimize its impact on the community. ; 4.1.5 Evacuation—The process of relocating to a safer area to avoid or lessen the risks associated with an emergency. Generally, evacuation actions are initiated or recommended by local emergency management officials. ; 4.1.6 Transportation—Transportation applies to all persons who need to evacuate or relocate in advance of or during an emergency. It may include transportation on his or her own, through a neighbor, a volunteer who can assist, or public conveyances that can be used in an emergency. ; 4.1.7 Accommodation—Designated centers or shelters that the local citizens can use in an emergency, and any additional provisions that are made for addressing the needs of those with disabilities. ; 4.1.8 Relocation—Facilities where residents can evacuate to before and during an emergency. It may also provide temporary lodging for residents following an event if their homes are in an unsafe area...; SCOPE; 1.1 This guide is intended to be used by an Authority Having Jurisdiction (AHJ) to initiate preparedness efforts that address issues that the disability community have faced in past emergencies and systematically coupling them with methodologies that will help communities enhance their chances for survival. ; 1.2 This guide does not purport to address all of the elements necessary to prepare for an emergency. It is the responsibility of the user (AHJ) of this guide to establish applicable protocols, procedures, systems, and other means to support the health, safety, and well being of persons with disabilities. ; 1.3 This guide is intended to provide templates for applicable protocols, procedures, systems, and other mechanisms to promote an integrated approach in local “preparedness” efforts for persons with disabilities. It is intended to complement the planning and preparedness efforts of local emergency responders—Emergency Management Agencies (EMAs) and Offices of Emergency Management (OEM)—for persons with disabilities. ; 1.4 This guide is not intended to supersede or replace extant Federal, Tribal, State, or local policies, regulations, laws, or criteria, or standards and guides produced by any other entity, such as the National Fire Protection Association (NFPA). ; 1.5 This guide is intended for an AHJ, whether a governmental agency, non-profit, private organization, or other entity involved in the preparedness planning for persons with disabilities. ; 1.6 This guide recognizes that the ADA addresses all services and facilities pertinent to the access and care of persons with disabilities, including those associated with emergencies. It also recognizes that the Stafford Act and Post Katrina Emergency Management Reform Act, along with Federal, State, and Local Civil Rights Laws, mandate integration, inclusion, coordination, and non-segregation for people with disabilities in emergency programs, services, and ac...

• Status: Published
• Publication Date: 31-Oct-2020
• ICS: 11.180.01 - Aids for disabled and handicapped persons in general
• Technical Committee: E54 - Homeland Security Applications
• Drafting Committee: E54.02 - Continuity of Operations

Overview

ASTM E2951-13(2020)e1: Standard Guide for Community Emergency Preparedness for Persons with Disabilities provides essential guidance for developing effective emergency preparedness strategies that address the unique needs of persons with disabilities. Published by ASTM International, this standard is intended for use by Authorities Having Jurisdiction (AHJs), including local governments, emergency management agencies, non-profits, and private organizations. It outlines recommendations for integrating the needs of the disability community into community-wide emergency planning, ensuring accessibility, communication, and inclusion throughout all phases of emergency management.

The guide supports the establishment of protocols and systems that promote equal opportunity and access for persons with disabilities, aligning with key legislation such as the Americans with Disabilities Act (ADA) and principles of federal, state, and local civil rights laws.

Key Topics

• Notification and Alerting: Ensures effective emergency alerts and warnings reach all community members, including those with disabilities. Recommends provisions like large print materials, accessible digital alerts, and communication aids.
• Inclusive Communication: Promotes equitable dissemination of emergency information, including the use of tools like sign language interpreters, Braille, CART (Communications Access Real time Translation), TTY/TTD devices, and accessible formats.
• Preparation and Education: Advocates for community education about emergency risks, personal planning, and training for both individuals with disabilities and support staff.
• Action and Mitigation: Addresses the advanced planning needed to minimize the impact of emergencies, including resource management and identification of vulnerabilities.
• Evacuation Procedures: Recommends organized, accessible evacuation strategies tailored for those with mobility impairments or other functional needs.
• Accessible Transportation: Stresses the importance of planning accessible transport routes and resources for evacuation and relocation, including agreements with local providers and specialized driver training.
• Shelter and Accommodation: Calls for emergency shelters and relocation centers to be accessible and adequately equipped for individuals with various disabilities.
• Post-Event Support: Provides guidance on temporary housing, restoration of services, and reintegration for displaced persons with disabilities.

Applications

ASTM E2951-13(2020)e1 is a practical tool for:

• Emergency Management Agencies and Offices (EMA/OEM): To design and implement comprehensive emergency preparedness plans inclusive of people with disabilities.
• Local and Regional Government: For integrating accessibility and functional needs into public safety policies and response procedures.
• Non-profits and Community Organizations: As a reference for supporting their clients and members in emergency events.
• Healthcare Facilities and Assisted-Living Centers: To ensure safe evacuation, transportation, and shelter for residents with disabilities.
• First Responders and Volunteers: For training and sensitization to assist persons with disabilities effectively during all phases of an emergency.

The standard provides templates and recommendations adaptable to community size, resources, and existing infrastructure, supporting the "whole community" approach advocated by FEMA.

Related Standards

Users of ASTM E2951-13(2020)e1 should be familiar with and may need to coordinate efforts with the following related guidelines:

• Americans with Disabilities Act (ADA)
• NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs
• FEMA: Guidance on Planning for the Integration of Functional Needs Support Services (FNSS) in General Population Shelters
• ANSI Standards on Emergency Preparedness for Persons with Disabilities and Special Needs
• Presidential Policy Directive (PPD-8) for National Preparedness

These documents collectively ensure a robust, compliant, and inclusive emergency preparedness strategy that upholds accessibility, integration, and non-discrimination.

Keywords: community emergency preparedness, persons with disabilities, accessibility, emergency management, inclusive planning, ASTM E2951, disaster response, ADA, accessible evacuation, emergency communication, shelter accessibility, transportation planning.

This international standard was developed in accordance with internationally recognized principles on standardization established in the Decision on Principles for the
Development of International Standards, Guides and Recommendations issued by the World Trade Organization Technical Barriers to Trade (TBT) Committee.
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Designation: E2951 − 13 (Reapproved 2020)
Standard Guide for
Community Emergency Preparedness for Persons with
Disabilities
This standard is issued under the fixed designation E2951; the number immediately following the designation indicates the year of
original adoption or, in the case of revision, the year of last revision. A number in parentheses indicates the year of last reapproval. A
superscript epsilon (´) indicates an editorial change since the last revision or reapproval.
ε NOTE—Editorial changes were made to the Introduction and Section 3 in November 2020.
INTRODUCTION
Workshops were convened by the American National Standards Institute (ANSI) Homeland
Defense and Security Standardization Collaborative (HDSSC) to explore the need for standards-based
solutions for more effective community emergency preparedness for persons with disabilities. The
workshop reports contained several recommendations that workshop participants believed would have
a positive impact on emergency preparedness for persons with disabilities. Among them were (1)A
recommendation that standards development organizations, such asASTM International, review gaps
identified through the deliberations of the workshops and initiate standards where none exist; (2)
Recommendations that other organizations continue their involvement with the ANSI HDSSC and
other standards agencies, such as ASTM, to address the needs of the community of persons with
disabilities; and (3) Encouraging greater involvement by the emergency planning and preparedness
community, first responder organizations and organizations involved with persons with disabilities in
developing strategies and standards for addressing the additional needs of those with disabilities
during emergencies.
TheAmericans with DisabilitiesAct (ADA) shifted the definition of disability from an “underlying
physical or mental condition” to a complex interaction between a person and his or her environment.
This in turn has lead to identification and removal of any barriers in the environment that prevented
full social participation by those with disabilities and has lead to greater support for independence
measures that promote their environment in all aspects of society.
This guide for Community Emergency Preparedness for Persons with Disabilities, which was
developedthroughASTM,addressestheimpactofdisastersandemergenciesonthosewithdisabilities
and recommends actions consistent with the ADA that can be taken by local communities that will
help to mitigate or ease that impact. While it is focused primarily on those with disabilities, the guide
subscribes to the FEMA concept of “whole community” emergency preparedness and presents
solutions and recommendations that can apply to all persons adversely affected by an emergency.
1. Scope 1.2 This guide does not purport to address all of the
elements necessary to prepare for an emergency. It is the
1.1 This guide is intended to be used by an Authority
responsibility of the user (AHJ) of this guide to establish
Having Jurisdiction (AHJ) to initiate preparedness efforts that
applicable protocols, procedures, systems, and other means to
address issues that the disability community have faced in past
support the health, safety, and well being of persons with
emergencies and systematically coupling them with method-
disabilities.
ologies that will help communities enhance their chances for
survival.
1.3 This guide is intended to provide templates for appli-
cable protocols, procedures, systems, and other mechanisms to
promote an integrated approach in local “preparedness” efforts
for persons with disabilities. It is intended to complement the
This guide is under the jurisdiction of ASTM Committee E54 on Homeland
Security Applications and is the direct responsibility of Subcommittee E54.02 on
planning and preparedness efforts of local emergency
Emergency Preparedness, Training, and Procedures.
responders—Emergency Management Agencies (EMAs) and
Current edition approved Nov. 1, 2020. Published November 2020. Originally
Offices of Emergency Management (OEM)—for persons with
approved in 2013. Last previous edition approved in 2013 as E2951 – 13. DOI:
10.1520/E2951-13R20E01. disabilities.
Copyright © ASTM International, 100 Barr Harbor Drive, PO Box C700, West Conshohocken, PA 19428-2959. United States
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E2951 − 13 (2020)
1.4 This guide is not intended to supersede or replace extant 2.4 Other Documents:
Federal, Tribal, State, or local policies, regulations, laws, or Presidential Policy Directive/PPD-8 National Preparedness
Americans with Disabilities Act (ADA)
criteria, or standards and guides produced by any other entity,
such as the National Fire Protection Association (NFPA).
3. Terminology
1.5 This guide is intended for an AHJ, whether a govern-
3.1 Definitions of Terms Specific to This Standard:
mental agency, non-profit, private organization, or other entity
3.1.1 Authority Having Jurisdiction (AHJ)—an
involved in the preparedness planning for persons with dis-
organization, office, or individual responsible for enforcing the
abilities.
requirements of a code or standard, or approving equipment,
materials, an installation, or a procedure. NFPA 1600
1.6 This guide recognizes that the ADA addresses all
3.1.2 caregiver—a person or entity charged with or one who
services and facilities pertinent to the access and care of
assumes the responsibility for rendering support to persons
persons with disabilities, including those associated with emer-
with disabilities.
gencies. It also recognizes that the Stafford Act and Post
Katrina Emergency Management Reform Act, along with
3.1.3 Communications Access Real time Translation
Federal, State, and Local Civil Rights Laws, mandate (CART)—a stenographic device that captures input and trans-
integration, inclusion, coordination, and non-segregation for
fers it to computer assisted captioned communications on a
people with disabilities in emergency programs, services, and screen for use by persons who are hard of hearing or deaf.
activities.
3.1.4 disaster emergency management—an ongoing process
to prevent, prepare for, mitigate the effects of, respond to, or
1.7 This guide is intended to assist those involved in
recover from an incident that threatens life, property,
emergency preparedness for persons with disabilities in order
operations, or the environment. NFPA 1600
tohelpthembetterunderstandtheconceptsofaccessibilityand
3.1.5 emergency management program—a program that
equal opportunity in such important areas as alert and
implements the mission, vision, and strategic goals and objec-
notification, evacuation, shelter management, etc., before,
tivesaswellasthemanagementframeworkoftheprogramand
during, and after an event.
organization. NFPA 1600
1.8 This standard does not purport to address all of the
3.1.6 emergency response—immediate and ongoing activi-
safety concerns, if any, associated with its use. It is the
ties and tasks, programs, and systems to manage the effects of
responsibility of the user of this standard to establish appro-
an incident that threatens life, property, operations, or the
priate safety, health, and environmental practices and deter-
environment. NFPA 1600
mine the applicability of regulatory limitations prior to use.
3.1.7 entity—a governmental agency or jurisdiction, private
1.9 This international standard was developed in accor-
or public company, partnership, nonprofit organization, or
dance with internationally recognized principles on standard-
other organization that has emergency management and conti-
ization established in the Decision on Principles for the
nuity of operations responsibilities. NFPA 1600
Development of International Standards, Guides and Recom-
3.1.8 evacuation—supervised phased withdrawal, dispersal,
mendations issued by the World Trade Organization Technical
or removal of all civilians from dangerous or potentially
Barriers to Trade (TBT) Committee.
dangerous areas, and their reception and care in safe areas.
3.1.9 facility—a hospital, recreation center, school, sports
2. Referenced Documents
complex, etc. designated to provide shelter during emergen-
cies.
2.1 FEMA Standard:
Guidance on Planning for the Integration of Functional
3.1.10 incident action plan—a verbal or written plan, or
Needs Support Services (FNSS) in General Population combination of both, developed by the incident commander,
Shelters November 2010 that is updated throughout the incident and reflects the overall
incident strategy, tactics, risks, and strategy tactics, risk
2.2 NFPA Standard:
management, and member safety. NFPA 1600
NFPA 1600 Standard on Disaster/Emergency Management
3.1.11 manmade emergency—an emergency that results
and Business Continuity Programs
from technological or other human causes not associated with
2.3 ANSI Standard:
weather or natural events. Examples include HAZMAT
Emergency Preparedness for Persons with Disabilities and
incidents, fires, train derailments, acts of terror, etc.
Special Needs
3.1.12 mutual aid agreements—a prearranged agreement
between two or more entities to share resources in response to
an incident. NFPA 1600
Available from Federal Emergency Management Agency (FEMA), P.O. Box
10055, Hyattsville, MD 20782-8055, http://www.fema.gov.
3 5
Available from National Fire Protection Association (NFPA), 1 Batterymarch Available from U.S. Department of Homeland Security, 301 7th St SW, #3621,
Park, Quincy, MA 02169-7471, http://www.nfpa.org. Washington, DC 20024, www.dhs.gov/presidential/policy.
4 6
Available from American National Standards Institute (ANSI), 25 W. 43rd St., Available from U.S. Department of Labor, 200 Constitution Ave NW,
4th Floor, New York, NY 10036, http://www.ansi.org. Washington, DC 20210, www.dol.gov/ADA.
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E2951 − 13 (2020)
3.1.13 OEM disabilities coordinator—a person designated that may be necessary to assure that persons with disabilities
by the local Office of Emergency Management to oversee are able to receive the message(s).
preparedness and response for those with disabilities.
4.1.2 Communications—Information dissemination to the
community, including provisions for persons with disabilities
3.1.14 preparedness—activities, tasks, programs, and sys-
so that they are able to receive and respond.
tems developed and implemented prior to an emergency that
4.1.3 Preparation—Ensuring that the community knows
areusedtosupportthepreventionof,mitigationorresponseto,
about the risks and dangers inherent in emergencies and the
and recovery from emergencies. Activities, tasks, and pro-
necessity for personal planning.
grams specific to persons with disabilities include, but are not
4.1.4 Action and Mitigation—Steps that should be taken
limited to: assessment of hazards and risks that may have an
when an emergency becomes imminent, and planning in
impact due to a person’s disability; specific response needs and
advance how to minimize its impact on the community.
vulnerabilities unique to persons with disabilities; advance
4.1.5 Evacuation—The process of relocating to a safer area
planning; interagency collaboration among organizations fo-
to avoid or lessen the risks associated with an emergency.
cused on persons with disabilities; education and training for
Generally, evacuation actions are initiated or recommended by
persons with disabilities and those who administer care;
local emergency management officials.
practicing through exercising; attaining adequate capacities
4.1.6 Transportation—Transportation applies to all persons
and necessary engineering controls/structural changes to facili-
who need to evacuate or relocate in advance of or during an
ties to entry and use by persons with disabilities.
emergency. It may include transportation on his or her own,
3.1.15 resource management—a system for identifying
through a neighbor, a volunteer who can assist, or public
available resources to enable timely and unimpeded access to
conveyances that can be used in an emergency.
resources needed to prevent, mitigate, respond to, or recover
4.1.7 Accommodation—Designated centers or shelters that
from an incident. NFPA 1600
the local citizens can use in an emergency, and any additional
3.1.16 resources—personal service animals or equipment,
provisions that are made for addressing the needs of those with
supplies, services, and facilities available or potentially avail-
disabilities.
able for assignment or allocation to incident operations or
4.1.8 Relocation—Facilities where residents can evacuate to
coordination.
beforeandduringanemergency.Itmayalsoprovidetemporary
3.1.17 volunteer—anindividualacceptedbytheleadagency
lodgingforresidentsfollowinganeventiftheirhomesareinan
in an emergency that has the authority to perform volunteer
unsafe area or no longer habitable.
services.Normally,volunteersprovideassistancewithoutcom-
4.1.9 Restoration—The resumption of normalcy following
pensation. When referred to in this guide, the term volunteer
an emergency.
includes affiliated and unaffiliated volunteers and groups.
4.2 The AHJ should assign a person to the OEM with
3.2 Acronyms:
responsibility for coordinating and otherwise implementing
3.2.1 ADA—Americans with Disabilities Act
protocols and procedures for persons with disabilities. This
3.2.2 AHJ—Authority Having Jurisdiction
individual should be identified as the OEM Disabilities Coor-
dinator. The functions assigned to the Coordinator should
3.2.3 ANSI—American National Standards Institute
include:
3.2.4 CART—Communications Access Real time Transla-
4.2.1 Establishing and leading a team of volunteers who are
tion
trained in assisting persons with disabilities, and who can
3.2.5 EMA—Emergency Management Agency
support their integration into the planning and preparedness
3.2.6 FEMA—Federal Emergency Management Agency process.
4.2.2 Establishing a small team of volunteers with disabili-
3.2.7 HDSSC—Homeland Defense and Security Standard-
ties to serve as a panel or group of subject matter experts to
ization Collaborative
provide advice and guidance on issues surrounding persons
3.2.8 NFPA—National Fire Protection Association
with disabilities in emergency situations.
3.2.9 OEM—Office of Emergency Management
4.2.3 Establishing an agreement, pact, contract, or other
3.2.10 TTY/TTD—TeleType/Telecommunications Device
binding document with other jurisdictions to provide mutual
for the Deaf aid or assistance in dealing with persons with disabilities
should it become necessary before, during, or following an
4. Significance and Use
emergency.
4.1 This guide provides recommendations for the local or 4.2.4 The following key concerns should be addressed by
regional AHJ to use in dealing with persons with disabilities individual teams dedicated to the specific areas indicated.
who reside within their area of responsibility or jurisdiction. It However, due to staffing limitations, OEMs may not have the
provides information that can support development of proce- necessary resources needed to establish the number of indi-
dures and protocols in preparing for the impact of emergencies vidual teams listed. In those instances, the OEM should
on persons with disabilities, and it includes recommendations combine efforts, creating fewer teams, but at the same time
addressing such actions as: making sure that the different areas are covered as fully as
4.1.1 Notification—Alerts and warnings for the general possible. The OEM should also consider calling upon social
public of a pending emergency, and any additional provisions service agencies to provide some of the support in those
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E2951 − 13 (2020)
instances when staffing limitations prevent OEM from doing Those individuals who are blind, deaf-blind, have low vision,
so. The recommended teams are listed below: or have cognitive or intellectual disabilities may need large
print information or people to assist them.
4.2.4.1 Alert and Notification Team—Working in close co-
4.2.4.3 Advance Preparations Team—The central focus of
ordination with officials involved in local incident command,
this team would be to organize support for persons with
public information dissemination and other appropriate staff in
disabilities. This would include providing plans and prepara-
the emergency response chain of command, the Alert and
tions for those who are mobile as well as those who are
Notification Team would assist in:
confinedtotheirhomeoraninstitution,suchasanindependent
(1) Alert and notification for persons with disabilities of a
living center. This volunteer support effort may include an
pending emergency. Communications should include such
individualtoprovideinitialassistanceandacaregivertorender
information as (a) Assessment of hazards and dangers to
more comprehensive aid as appropriate.
persons with disabilities; (b) Mobility risks; (c) Anticipated
(1) The Advance Preparations Team must recognize that
emergencyresponseactivitiesandtimeline;(d)Evacuationand
personswithdisabilitieshaveavarietyofaccessandfunctional
sheltering accommodations for the general public and infor-
requirements, including the need for mobility aids, require-
mation on how well they are equipped for the needs of those
mentsformedication,theneedforportablemedicalequipment,
withdisabilities;and(e)Anticipatedvulnerabilitiesforthetype
dependence on service animals or various personal assistance
of pending emergency for persons with disabilities.
services.
(2) Assisting local emergency management officials in
(2) TheAdvance Preparations Team should make sure that
providing a “call down” procedure that can be immediately
its members know how to take the necessary mitigating actions
activated to notify the community of a pend
...