ACRL News Issue (B) of College & Research Libraries Ju n e 1 9 9 6/351 Being on the safe sid e By Kate W. Ragsdale an d Ja n ic e Sim pson Emergency procedures fo r disabled users and staff C ollege and university librarians, responsible for the safety and security of their custom­ ers as well as their staff, have developed elabo­ rate plans for averting tragedy and disaster dur­ ing emergency situations within their buildings. Once an emergency management plan is de­ veloped and implemented, carefully trained li­ brary staff members are able to spring into ac­ tion during emergency situations where sound judgment and time can separate safety from tragedy. By sharing written disaster plans and discussing potential threats, librarians have be­ come adept at developing emergency evacua­ tion plans that fit the peculiarities of their indi­ vidual buildings— plans that can save lives in the face of emergency. Library emergency management plans gen­ erally include sections on protecting and evacu­ ating people. However, librarians are perplexed about what procedures to use in emergency situations that involve their users and staff with disabilities. There are many kinds of emergen­ cies, many kinds of disabilities, and many li­ brary architectural idiosyncrasies to consider. Even some campus security experts are be­ wildered by the variables involved in develop­ ing procedures for ensuring the safety of indi­ viduals with disabilities in public buildings. More attention is paid to getting people with disabilities into the buildings than in planning for their safe evacuation.1 While providing ac­ cess to library patrons with disabilities is man­ dated by law, emergency situations ranging from a temporary power outage to a cata­ strophic fire necessitate plans for the timely and safe evacuation of all patrons and employees. The library literature has little to offer con­ cerning this complex topic. Some library disas­ ter plans include a section on evacuating indi­ viduals with disabilities, and these are helpful even though the procedures are necessarily customized for their particular buildings. At least two discussion groups within ALA have shared ideas on emergency procedures for library us­ ers and employees with disabilities. All o f these ideas are helpful; but in the final analysis, each library must structure a plan that works for its situation. Issues to consider Librarians recognize that many factors contrib­ ute to the complexity of providing protection for users and staff with disabilities during an emergency situation. Listed below are examples of the complications and issues that surface. • Although it is the responsibility of the college and university as well as o f the library to minimize danger for all library users and em­ ployees during emergency situations, most aca­ demic libraries appear to be on their own when developing procedures for emergency situa­ tions. On many campuses there is no overall campus plan for safety. • It is perhaps more difficult to develop emergency procedures for libraries than for other public buildings because library build­ ings are in use many hours every day. Proce­ dures that work in regular hours may be differ­ ent from those designed for the “o f f ” hours (evenings and weekends) when fewer library employees are on duty. • It is impossible to develop procedures for every kind of emergency. Fire, bomb threats, power outages, and (in some areas of the coun­ try) tornadoes and earthquakes are the most common emergencies which require immedi­ ate action. Fire, earthquakes, and power out­ Kate W. R agsdale is p lan n in g o fficer a t the University o f A la ba m a (UA) Libraries, e-m ail: k r a g s d a l @ l v m .u a . edu; Ja n ic e Simpson is h e a d o f the Circulation Department a t the UA Libraries, e-m ail: jsim pson @ u alvm .u a.edu mailto:kragsdal@ualvm.ua.edu mailto:jsimpson@ualvm.ua.edu 3 5 2 /C & R L News ages provide no prior warning; however, there is often time to prepare for tornadoes and hur­ ricanes. These factors must be considered when formulating emergency procedures. • It is impossible to develop procedures to cover every kind and level of disability. • There is not general agreement about the best methods to use when evacuating individu­ als who need special assistance. All alternatives should be considered; judgment and common sense must be applied to each situation based on the circumstances. • Staff turnover in college and university libraries makes it difficult to have all library employees fully trained in emergency proce­ dures. To accommodate frequent staff changes, a good emergency plan must be adaptable as well as easily implemented. • There appears to be no good way to iden­ tify individuals who may need assistance in case of a library emergency. Library users have a right to privacy, and users who may need as­ sistance in exiting the building if the elevators are not operating are not required to identify themselves upon entering the building. Some library emergency plans state that the library user is responsible for informing the library staff o f a need for assistance. Some libraries ask us­ ers with disabilities to state in which part o f the library they will be working in case an emer­ gency occurs. Other libraries rely on the floor/ area monitors to check for users who need as­ sistance during emergencies. Still others offer users with disabilities battery-powered commu­ nications devices to use whenever they are in the building. Ultimately, the library’s responsi­ bility is in providing information about proce­ dures to follow in case of emergency. Architectural considerations In spite of the complex issues involved, librar­ ians must figure out how to provide an envi­ ronment that is safe for all individuals in the building. The very first step in preventing per­ sonal injury to library users and employees during an emergency is to construct library buildings according to code and to maintain these buildings according to code.2 Library buildings have individual architec­ tural features that challenge the simplicity and effectiveness o f emergency procedures for in­ dividuals with disabilities. However, regardless of the design of the building, attention to the items below can help to ensure the safety of all library users and employees. ■ Providing visual alarm s. Visual alarms must operate in public buildings at the same time audible alarms are sounding. The Ameri­ cans with Disabilities Act (ADA) Accessibility Guidelines (ADAAG) require that visual alarms be located in specific areas throughout the building, that they be installed at a certain height, and that the lights are of a certain in­ tensity and color.3 • Designating accessible routes. The ANSI Standards for Buildings and Facilities require accessible routes as a means of egress or con­ nection to an area of rescue assistance in an emergency.4 These routes should be shown on prominent, easy-to-read signs in the building. • Identifying areas o f rescue assistance. These designated areas, identified through prominently displayed signage, are most com­ monly stairwells, but can also be exterior exit balconies, certain corridors, or a vestibule where barriers are set up to keep smoke and heat from spreading.5 It is important to provide two- way communication in areas of rescue assis­ tance so that those waiting there can commu­ nicate with and receive instructions from emergency personnel. Developing a plan Many libraries have responded to the ADA self- study which includes questions about emer­ gency procedures. A logical next step is coop­ eration among the campus ADA coordinator, the Disabled Students Office, safety and secu­ rity personnel, library users with disabilities, and librarians in making a plan to help ensure the safety of library users and employees with disabilities in emergency situations. The actions and services listed below are not building-spe­ cific but apply to most campus libraries. • D eveloping an ev acu ation m an ag e­ m en t plan. There are two basic elements to any emergency plan involving occupants of a public building: alerting all people in the build­ ing to the emergency situation and then mov­ ing them to safety. Issues that are more com­ plex include how to make sure that each library user understands that there is an emergency, how to identify individuals who must be in­ formed by means other than an audible alarm or announcement, where the safe places within the building are, and how to make sure that everyone, regardless of physical impairment, moves into a safe place quickly. It is a good idea for librarians to team with the fire and police departments in developing Ju n e 19 9 6 /3 5 3 emergency procedures for people with disabili­ ties. Each group contributes expertise in devel­ oping w orkable procedures, and with the completion o f that process, each group then understands what its responsibilities are when an emergency occurs. • Selecting an em erg en cy co o rd in ato r. One way to coordinate communication during an emergency, especially one that involves evacuation, is to designate one person as coor­ dinator. For the sake of convenience and quick action, this person probably should be a library employee. Other library employees, serving as monitors and located throughout the building, will communicate through the coordinator who is in direct contact with the professional emer­ gency personnel on the scene. Quick and ef­ fective communication is especially important when there are people on upper floors who need special assistance in exiting the building. • P ro v id in g c o n c is e in fo rm a tio n . An emergency plan for library users with disabili­ ties can be effective only if these individuals know what the plan is. Concise information with floor diagrams showing routes of evacua­ tion should be posted on each floor where people will naturally look (probably near the elevators). More than one escape route should be selected in case something (like smoke) blocks a route.6 Written information, again with floor diagrams, should be readily available for library users and staff with disabilities. Emer­ gency personnel should be provided with cop­ ies o f both the procedures and the floor dia­ grams showing the designated escape routes and the areas of rescue assistance. And all li­ brary staff must have access to written infor­ mation concerning evacuation procedures. • Assigning m on itors. In the event of an emergency, each area of the library (divided by floor or functional area) may be monitored by an assigned library employee. This person informs users located in this area about the emergency, gives instructions, and checks the entire area thoroughly, searching especially for individuals who need assistance. It may be necessary to remind users that the elevators cannot be used in a fire and are not operable during a power failure. • T raining m o n ito rs. Monitors must un­ derstand what their responsibility is with re­ gard to persons who need special assistance in exiting the building. There is widespread dis­ agreement, even among safety experts, about the exact nature of these responsibilities since legal implications for liability in case of injury vary from state to state. It is generally agreed that a library employee should communicate the need for assistance to the professional emergency personnel (either through the coordinator or directly). Also, this employee may direct individuals who need help in exiting the building to a designated central spot or area o f rescue assistance, whereupon emergency personnel will take over. At this point, most authorities require that the monitor leave the individual in this safe area (as diffi­ cult as this might be) and exit the building so that the fire fighters or other emergency per­ sonnel will have only one person, rather than two, to assist. Although it may b e extremely difficult for the staff member to leave in such a situation, having an effective procedure in place should alleviate fears of both the patron and staff member. For example, a beeper can be left with the individual who is awaiting assis­ tance so that two-way communication exists. Carrying a person with mobility impairment down stairs in a wheelchair is dangerous and should be avoided if at all possible. The library employee should ask the individual about the best way to provide assistance. Some libraries use an evacuation chair designed with skids to maneuver stairs.7 Although there are several suggested ways o f carrying a person down stairs,8 most libraries do not train staff to carry individuals who cannot handle stairs alone. It is acceptable for a library employee to assist an individual down stairs only when waiting for emergency personnel to arrive would result in certain tragedy. • Scheduling drills. It cannot be overem­ phasized how important it is to schedule drills to practice and reinforce emergency procedures. Procedures should be tested on a regular basis, and both staff and library users must become accustomed to acting quickly and knowledge­ ably in a stressful situation. Some say that a plan is only as good as the last time it was tested on all employees.9 O rienting in dividu als to the plan Beyond general measures that librarians can provide in assisting users with disabilities dur­ ing emergencies, knowing how and when to assist is in many cases based both on common sense and a rudimentary understanding of dis­ ability-specific limitations. Enlisting library us­ ers or staff with disabilities when developing an emergency management plan helps to clarify 3 5 4 /C& RL News exactly what assistance may be needed and to dispel myths concerning specific disabilities.10 • A ssistance fo r the visually im paired and blind. It is a good idea to orient blind and visually impaired individuals to the layout of the building, carefully pointing out designated areas of rescue assistance. Once they under­ stand the layout of the library, blind library users are often quite independent in moving around in the building. These patrons should be pro­ vided with the emergency procedures in large type, Braille, on tape, or orally.11 One thing to remember is that guide dogs can become dis­ oriented in an emergency, especially a fire, which can contribute to the confusion. • A ssistance fo r the h earin g im paired and deaf. Standards in building construction require that there be visible alarms, such as flashing lights, in addition to audible ones throughout the building. Strobe lights are not recommended because they may induce sei­ zures in some individuals.12 Alerting deaf library users to an emergency can also be done by sign language, by providing the individuals with a vibrating alarm or beeper, or by carrying signs that give simple evacuation instructions. • A ssistance fo r th e mobility impaired. As mentioned earlier, library personnel should lead individuals who are mobility impaired to the designated safe area and then exit the build­ ing, informing emergency personnel of the per­ son waiting for assistance in the safe area. A beeper and/or a flashlight may be given to the person awaiting assistance. Mobility-impaired persons in a wheelchair should be assisted down the stairs by library personnel only in order to avoid tragedy and, in those cases, the chair should always be left behind. Concerns of the disabled While library users with disabilities do not ex­ pect librarians to have developed fail-safe pro­ cedures to assist them in an emergency situa­ tion, they have the following concerns: • that the risk of disaster is not an excuse that prevents them from working or studying in a building; • that the level of safety for them in the building is the same as for able-bodied people; • that the unique difficulties that they might face in an em ergency are anticipated and planned for in advance. As a response to these concerns, immedi­ ate action by libraries includes improving emer­ gency procedures for library users and employ­ ees with special needs. Libraries can also work toward providing improved safety measures for all library users and staff, equipment for two- way communication, and the identification of areas of rescue assistance.13 Conclusion The Americans with Disabilities Act mandates greater access to public buildings. As more li­ brary users with disabilities take advantage of this increased access, college and university li­ brarians must be prepared to deal with emer­ gency situations involving a variety of patrons. Having a good emergency management plan that anticipates problems involved in evacuat­ ing individuals with disabilities could save time and lives when an emergency arises. Notes 1. Em ployers A re Asking . . . A bou t the Safety o f H a n d ica p p ed Workers When E m ergencies Oc­ c u r (Washington, D.C.: President’s Commission on Employment of the Handicapped, 1985), 5. 2. Ibid., 5. 3. A m erican s with D isabilities A ct A ccessi- . bility G u idelines (ADAAG): Checklist f o r B u ild­ ings a n d Facilities, Survey Form 20 (Washing­ ton, D.C.: U.S. Architectural and Transportation Barriers Compliance Board, 1991). 4. A m erican N ation al S ta n d a r d f o r B u ild ­ ings a n d Facilities—P roviding A ccessibility a n d Usability f o r P hysically H a n d ic a p p e d P eop le (New York: American National Standards Insti­ tute, 1986), 4.3.10: 21, and A4.3.10; 76. 5. ADAAG, Survey Form 10. 6. Judith Fortson, D isaster P lan n in g a n d Re­ covery: A H ow -to-do-lt M an u al f o r L ibrarian s a n d A rchivists (New York: Neal-Schumann Pubs.: 1992), 35. 7. Employers A re Asking, 12. 8. Ibid., 10– 11. 9. Ibid., 18. 10. Ibid., 8. 11. Ibid., 15– 16. 12. Ibid., 13. 13. Ibid., 6. Au. note: Some ideas here were discussed by the f o l ­ lowing ALA Discussion Groups a t the 1994 A nnual Conference: A cadem ic Librarians Assisting the Dis­ a b le d Discussion Group, Libraries Serving Special Populations Section, Association o f Specialized a n d Cooperative Library Agencies; a n d the Library Safety/ Security Discussion Group, Buildings a n d Equipment Section, Library Administration a n d M anagement Association. Ju n e 1 9 9 6 /3 5 5 3 5 6 /C & R L News