Communication with Vulnerable Populations: A Transportation and Emergency Management Toolkit (2011)

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TRANSPORTAT ION RESEARCH BOARD WASHINGTON, D.C. 2011 www.TRB.org T R A N S I T C O O P E R A T I V E R E S E A R C H P R O G R A M TCRP REPORT 150 Research sponsored by the Federal Transit Administration in cooperation with the Transit Development Corporation Subscriber Categories Public Transportation • Security and Emergencies • Society Communication with Vulnerable Populations: A Transportation and Emergency Management Toolkit Deborah Matherly LOUIS BERGER GROUP, INC. Washington, DC Jane Mobley JANE MOBLEY ASSOCIATES Kansas City, MO W I T H Beverly G. Ward BGW ASSOCIATES, LLC Tampa, FL Bill Benson Nancy Aldrich HEALTH BENEFITS, ABCS Silver Spring, MD Elisa Nichols KENSINGTON CONSULTING, LLC Kensington, MD Glenn Robinson MORGAN STATE UNIVERSITY SCHOOL OF ENGINEERING AND INSTITUTE FOR URBAN RESEARCH Baltimore, MD Roberta Thomas ATKINS (FORMERLY PBS&J) Tallahassee, FL

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CRP STAFF FOR TCRP REPORT 150 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs S. A. Parker, Senior Program Officer Megha Khadka, Senior Program Assistant Eileen P. Delaney, Director of Publications Maria Sabin Crawford, Assistant Editor TCRP PROJECT A-33 PANEL Field of Operations Dwight A. Ferrell, Metropolitan Atlanta Rapid Transit Authority, Atlanta, GA (Chair) Valerie Jo Anderson-Stallworth, Wesley Chapel, FL Roosevelt Bradley, The Allen Group, Miami, FL Judith A. Burrell, Burrell Project Consult LLC, Vienna, VA Mary Ann Collier, Swayzer Engineering, Inc., Dallas, TX Shoshana Cooper, Metropolitan Transportation Authority - New York City Transit, New York, NY Richard Devylder, Department of Transportation, Washington, DC Aida Berduo Douglas, Capital Metropolitan Transportation Authority, Austin, TX Natalie Easterday, Hampton Roads Planning District Commission, Chesapeake, VA Alexandra Enders, University of Montana/Rural Institute on Disabilities, Missoula, MT Cynthia A. Gallo, Norwell, MA Minnie Fells Johnson, Plantation, FL Yvonne M. Lyon, Tri-County Metropolitan Transportation District, Portland, OR Meg H. Robertson, Massachusetts Commission for the Blind, Boston, MA Allen C. Smith, Metropolitan Transit Authority of Harris County (TX), Houston, TX Kimberly Lashelle Goins, FTA Liaison Laurel J. “Laurie” Radow, FHWA Liaison Corey Walker, FTA Liaison William Brownlow, AASHTO Liaison Julie Cunningham, COMTO Liaison David Hahn, APTA Liaison Karen Lowrie, Center for Transportation Safety, Security and Risk Liaison Keri Lubell, Centers for Disease Control and Prevention Liaison Ramonica Moore, COMTO Liaison Kelly Shawn, Community Transportation Association of America Liaison Edward A. Tanzman, Argonne National Laboratory Liaison Joedy W. Cambridge, TRB Liaison C O O P E R A T I V E R E S E A R C H P R O G R A M S

TCRP Report 150: Communication with Vulnerable Populations: A Transportation and Emergency Management Toolkit describes how to create a communication process to reach vulnerable populations regarding their transportation options in emergencies. This toolkit provides a guiding framework and tools for constructing a scalable, adaptable communica- tion process built on a network of agencies from public, private, and nonprofit sectors. Together, these partners will form interconnected communication channels with the abil- ity to carry out the function of emergency communication in far-reaching and resourceful ways not possible by working alone. This toolkit will be useful to state DOTs and their regional divisions; transit agencies; metropolitan planning organizations; state and local emergency managers; other public agencies, such as public health and public safety; local and regional elected or appointed officials and tribal leaders; community-based organiza- tions and faith-based organizations; and private businesses and industries. The Federal Emergency Management Agency (FEMA) released “Developing and Main- taining Emergency Operations Plans: Comprehensive Preparedness Guide (CPG) 101, Ver- sion 2.0” in November 2010. “With this edition, greater emphasis is placed on representing and engaging the whole community—to include those with access and functional needs, children, and those with household pets and service animals.” (Foreword letter by Craig Fugate, Administrator.) The first step in the CPG 101 Planning Process is to “Form a Col- laborative Planning Team.” TCRP Report 150 provides helpful how-to advice and tools that will help emergency managers and stakeholder partners build and maintain the collabora- tive networks that are the foundation for CPG 101, Version 2. The natural disasters encountered by the coastal states in 2005 increased national aware- ness of the role of public transportation in planning for, responding to, and recovering from weather-related emergencies. Two separate reviews of how transit agencies prepare for emergencies with a focus on vulnerable populations (e.g., people with access and functional needs, whose members may have additional needs before, during and after an incident in functional areas, such as maintaining independence, communication, transportation, supervision, and medical care; examples include the transit-dependent, disabled, poor, low English proficiency, racial and ethnic minorities) were conducted by the Federal Transit Administration (FTA) Office of Civil Rights and the Conference of Minority Transporta- tion Officials (COMTO). FTA’s 12-month review culminated in the release of Transporta- tion Equity in Emergencies: A Review of the Practices of State Departments of Transportation, Metropolitan Planning Organizations, and Transit Agencies in 20 Metropolitan Areas. COMTO’s expedited 2-month review culminated in a white paper, Emergency Preparedness F O R E W O R D By S. A. Parker Staff Officer Transportation Research Board

and Response for Vulnerable Populations. Both documents summarize existing preparedness and recovery policies and practices regarding vulnerable populations. What was clear in both reviews is that vulnerable populations—residents who have no other means of transportation during an emergency—must rely on passenger-transportation providers. Poor communications with vulnerable populations can cause a lack of awareness regarding the role of public transit agencies in public emergency response operations. This lack of awareness was evident during the evacuation of New Orleans residents during Hurricane Katrina, as noted in the FTA and COMTO reviews. Research was needed to develop a toolkit of communications strategies for use by public transportation and emergency management professionals to better ensure that vulnerable populations can be successfully communicated with prior to, during, and after natural disasters and other emergencies. The Louis Berger Group and Jane Mobley Associates prepared TCRP Report 150 under TCRP Project A-33. They were tasked to develop a toolkit of communications strategies, policies, and practices for transportation agencies and emergency management agencies that focuses on communicating with vulnerable populations prior to, during, and after all- hazards emergencies. The research team accomplished the research objectives by (1) iden- tifying strategies to communicate with vulnerable populations prior to, during, and after emergencies through a focused literature review and review of existing practices; (2) con- ducting interviews with experts (from diverse organizational perspectives, including repre- sentatives of passenger-transportation providers; government agencies; advocacy groups; and trade, community-based, and professional organizations) in communicating with vul- nerable populations in conjunction with emergencies; (3) evaluating the lessons observed from recent emergencies regarding communications with vulnerable populations; (4) iden- tifying key issues associated with the involvement of state and local public transportation agencies in communicating with vulnerable populations as part of specific state and local coordinated emergency communications activities; (5) developing and field testing a toolkit of communications strategies, policies, and practices for transportation agencies and emer- gency management agencies that focuses on communicating with vulnerable populations prior to, during, and after all-hazards emergencies; and (6) providing a final report and PowerPoint presentation to document the research process and the toolkit. This toolkit helps transportation and emergency managers develop a communication process, so delivery options for reaching vulnerable populations are in place before a crisis occurs. The approach advocated in this toolkit is one of shared responsibility for outreach to vulnerable populations and is predicated on inclusive planning between government agencies, non-government organizations, and the private sector. This approach has been tested and successfully implemented in the field by public agencies, such as area agencies on aging, public health, and voluntary organizations active in disaster (VOADs). Most of the tools in this kit have been directly requested by participants in workshops held as part of the research for this toolkit. This toolkit is provided in an accessible format on the TRB website at www.TRB.org/ SecurityPubs. There one may also find the tools from the toolkit in MS Word format. The contractor’s final report on how the research was conducted can be found on the project web page at http://apps.trb.org/cmsfeed/TRBNetProjectDisplay.asp?ProjectID=2611.

TABLE OF CONTENTS Summary......................................................................................................................................................... i Additional Information........................................................................................................................iv Introduction .................................................................................................................................................vii Building a Collaborative Network Is Critical .....................................................................................vii Key Issues Addressed in the Toolkit..................................................................................................viii Assumptions...........................................................................................................................................ix This Toolkit Is about a Communication Process................................................................................xi Users of This Toolkit ............................................................................................................................xii How This Toolkit Is Organized ...........................................................................................................xii Defining Population Terminology....................................................................................................xiv Additional Information...................................................................................................................... xvi Chapter 1: Gather Information .................................................................................................................................... 1 Step 1: Get Started ................................................................................................................................ 3 Step 2: Collect Population Information..............................................................................................5 Step 3: Assess Hazards and Community Vulnerability ...................................................................... 7 Step 4: Assess Agency Resources..........................................................................................................8 Step 5: Identify Existing Networks.......................................................................................................8 Step 6: Keep a Contact List.................................................................................................................11 Tools ......................................................................................................................................................13 1.1 Securing Leadership Buy-in................................................................................................15 1.2 Tip Sheet on Identifying Vulnerable Populations...........................................................18 1.3 Working with Metropolitan Planning Organizations....................................................21 1.4 Working with Rural Transportation Planning Organizations .......................................23 1.5 Potential Network Partners ...............................................................................................24 1.6 Network Contact Database ...............................................................................................26 1.7 Preliminary Contact Information......................................................................................27 Additional Information.......................................................................................................................28 Chapter 2: Build or Add to a Network .....................................................................................................................31 Step 1: Begin Outreach to Key People..............................................................................................32 Step 2: Plan the First Meeting............................................................................................................33 Step 3: Manage the Meeting Logistics..............................................................................................34 Step 4: Conduct the Meeting.............................................................................................................36 Step 5: Update Contact List................................................................................................................37 Step 6: Plan Next Steps........................................................................................................................37 Step 7: Transition to an Organized Network ...................................................................................38 Step 8: Set Parameters ........................................................................................................................41 Step 9: Choose a Name for the Network..........................................................................................41 Step 10: Document the Work.............................................................................................................41 Tools ......................................................................................................................................................43 2.1 Network Fact Sheet ............................................................................................................45 2.2 Sample Invitation................................................................................................................47 2.3 Meeting Accommodation Form........................................................................................48 2.4 Planning Accessible Meetings ...........................................................................................49 2.5 Accessible Meeting Facility Checklist................................................................................50 2.6 Meeting Agenda.................................................................................................................52 2.7 Making Meetings Work Tip Sheet ....................................................................................53

2.8 Sample Presentation Outline.............................................................................................57 2.9 Sign-in Form.........................................................................................................................58 2.10 Follow-up Memo Template ...............................................................................................59 2.11 Goals and Objectives Template.........................................................................................60 Additional Information ......................................................................................................................61 Chapter 3: Communicate through the Network ..................................................................................................63 Step 1: Define Communication Procedures .....................................................................................65 Step 2: Establish Communication Roles and Responsibilities.........................................................68 Step 3: Assess Communication Resources.........................................................................................69 Step 4: Reassess Hazards and Community Vulnerability.................................................................72 Step 5: Plan for Communicating about Transportation .................................................................73 Step 6: Test the Network ....................................................................................................................74 Step 7: Communicate through the Network ...................................................................................74 Step 8: Document the Work...............................................................................................................75 Tools......................................................................................................................................................77 3.1 Network Member Roles and Responsibilities ............................................................79 3.2 Network Member Planning Checklist.........................................................................81 3.3 Communication Channels by Sector...........................................................................84 3.4 Registries Fact Sheet ....................................................................................................86 3.5 Communicating with Vulnerable Populations Tip Sheet..........................................89 3.6 How to Conduct a Network Test.................................................................................91 3.7 Alert Template....................................................................................................................93 Additional Information.......................................................................................................................94 Chapter 4: Sustain the Network ................................................................................................................................ 95 Engage Network Members Regularly...............................................................................................96 Update Network Contacts..................................................................................................................97 Look for Opportunities to Expand the Network Structure............................................................97 Strategically Grow the Network........................................................................................................98 Form Agreements................................................................................................................................ 98 Equip Network Members to Perform Their Roles ...........................................................................99 Evaluate Policy Implications .............................................................................................................100 Establish Common Terminology......................................................................................................100 Evaluate and Improve the Network................................................................................................102 Document the Work .........................................................................................................................103 Tools ....................................................................................................................................................105 4.1 Social Media Tip Sheet .....................................................................................................107 4.2 Contact Information Update...........................................................................................109 4.3 Forming Agreements Tip Sheet ......................................................................................111 4.4 Network-Building Checklist .............................................................................................113 4.5 Performance Measures for Communicating with Vulnerable Populations...............117 4.6 Designing and Implementing Baseline and Post-Activation Surveys Tip Sheet........121 4.7 Post-Event Evaluation Tool ..............................................................................................125 Additional Information.....................................................................................................................126 Conclusion ...................................................................................................................................129 Glossary of Terms......................................................................................................................131 Resources .....................................................................................................................................143

SUMMARY From the fearsome paralysis of ice to the ripping power of hurricanes, the last decade’s natural and man-made disasters across the United States focused national attention on the increased numbers of people who rely on various types of transportation resources to cope with emergencies. The most vulnerable populations during emergencies are those with few transportation options and substantial communication barriers. The call to action is clear. Gaps in communication with vulnerable populations about transportation during emergencies must be closed. Legislation has been put in place to protect vulnerable populations before, during, and after an emergency. Nationwide, emergency management and transportation professionals in general agree that every aspect of required preparation, response, and recovery efforts demands effective communication. Studies of how transportation agencies prepare for emergencies, with a focus on populations likely to be marginalized from mainstream emergency response, make clear that communication is critical for people to understand their own roles and the role of transportation agencies in public emergency response operations. Such inclusive communication is generally lacking. It’s the Law Federal legislation that addresses the needs of vulnerable populations in all phases of emergencies includes: The Americans with Disabilities Act of 1990 (ADA) The Robert T. Stafford Disaster Relief and Emergency Assistance Act (P.L. 93-288, 1988, as amended after Hurricanes Katrina and Rita) Health and Human Services Pandemic and All-Hazards Preparedness Act (PAHPA) (P.L. 109-417, 2006) Executive Order 13347: Individuals with Disabilities in Emergency Preparedness (2004) The Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users 2005 (SAFETEA-LU) (P.L. 109-59) Homeland Security Presidential Directive 5 (HSPD-5), Management of Domestic Incidents

To help address this gap, the Transit Cooperative Research Program of the Transportation Research Board of the National Academies funded the development of This toolkit demonstrates how to create a communication process to reach vulnerable populations regarding their transportation options in emergencies. This toolkit provides a guiding framework and tools for constructing a scalable, adaptable communication process built on a network of agencies from public, private, and nonprofit sectors. Together, these partners will form interconnected communication channels with the ability to carry out the function of emergency communication in far- reaching and resourceful ways not possible by working alone. At the 2008 conference for the National Public Health Information Coalition, Lieutenant General Russel L. Honorè (Ret.) reminded participants that, “Trust builds speed.” This truth is widely recognized among public sector managers involved in emergency planning and response; it is even more true at the intersection of the public, voluntary, and private sectors. Building the type of communication network described in this toolkit will create trustworthy working relationships that support preparedness planning and swift responses. Each chapter provides steps in the network-building process. The primary steps in this process are: 1. Gather information with emergency information. communicate with vulnerable populations about transportation. Partnership Is National Policy In (January 22, 2008), the Department of Homeland Security communicates integrated key concepts and an expanded focus on partnerships. The states: An effective national response requires layered, mutually supporting capabilities. This approach affirms that local communities, tribes, and States have primary responsibility for the safety and security of their citizens; local leaders build the foundation for response; and resilient communities begin with prepared individuals and families.

2. Build a network of public sector agencies and organizations from the community, volunteer, and private sectors. 3. Organize and communicate through the network. 4. Sustain the network through agreements and performance measurement. The approach advocated in this toolkit is one of shared responsibility for outreach to vulnerable populations and is based on inclusive planning among: government agencies, nongovernmental organizations, and the private sector. This approach has been tested and successfully implemented in the field by public agencies, such as the Kentucky Cabinet for Health and Family Services, where it has been recognized as a promising practice for pandemic planning by the Center for Infectious Disease Research and Policy; and the U.S. Centers for Disease Control and Prevention, where it is used as federal guidance and recognized as a model practice by national health organizations. Foundational Studies The Federal Transit Administration (FTA) Office of Civil Rights and the Conference of Minority Transportation Officials (COMTO) conducted two separate reviews of how transit agencies prepare for emergencies. The reviews focused on populations likely to be marginalized from mainstream emergency response. Both reports concluded that communication with vulnerable populations is vital to inclusive emergency planning. (University of New Orleans Transportation Center, October 2008) cites source after source supporting greater involvement of private organizations that serve vulnerable population groups in pre-disaster planning and in response to disasters and emergencies. The study identifies the need for facilitation of interaction between Emergency Management Agencies and other government agencies. Federal Guidance The Federal Transit Administration’s Disaster Response and Recovery Resource for Transit Agencies states that transit agencies should work with community human service agencies in planning for emergency transportation for vulnerable populations. The guidance document also states that information for passengers should be available in alternative formats (e.g., Braille, electronic, and large print) for individuals with visual impairments and alternative languages for individuals with limited English proficiency.

Additional Information The following sources contributed to the development of the Summary. Disaster Response and Recovery Resource for Transit Agencies, Federal Transit Administration, August 21, 2006 This resource provides local transit agencies and transportation providers with useful information and best practices in emergency preparedness and disaster response and recovery. It provides information about identifying and communicating with vulnerable populations and emphasizes the importance of working with intermediary agencies to carry out this function. http://bussafety.fta.dot.gov/uploads/resource/3348_filename Executive Order 13347: Individuals with Disabilities in Emergency Preparedness Signed by President George W. Bush in 2004, Executive Order 13347 was established to ensure that the safety and security needs of individuals with disabilities are appropriately supported in disaster situations and accounted for in emergency preparedness planning. http://www.dol.gov/odep/pubs/ep/preparing/execorder.htm The Federal Emergency Management Agency and the Department of Homeland Security (DHS) Office for Civil Rights and Civil Liberties, “Comprehensive Preparedness Guide (CPG) 301: Emergency Management Planning Guide for Special Needs Populations,” August 2010 This document contains basic guidance on the subject issued by the DHS. http://www.fema.gov/emergency/disasterhousing/planning_ resources.shtm Health and Human Services Pandemic and All-Hazards Preparedness Act (PAHPA) (P.L. 109-417, 2006) The PAHPA was passed in 2006 and focuses on public health, medical bioterrorism preparedness, and all-hazard medical surge capacity. It requires the needs of vulnerable populations to be considered in managing preparedness initiatives, such as the Strategic National Stockpile. http://www.dhhs.state.nc.us/dhsr/EMS/aspr/pdf/papareport.pdf

Homeland Security Presidential Directive 5 (HSPD-5) The purpose of HSPD-5 is to enhance the ability of the United States to manage domestic incidents by establishing a single, comprehensive national incident management system. http://training.fema.gov/EMIWeb/IS/ICSResource/assets/HSPD- 5.pdf National Study on Carless and Special Needs Evacuation Planning: A Literature Review, Federal Transportation Administration (produced by the University of New Orleans Transportation Center), October 2008 This study reviews how state departments of transportation (DOTs), metropolitan planning organizations (MPOs), transit agencies, and local governments are incorporating the needs of vulnerable populations into emergency planning. http://planning.uno.edu/docs/CarlessEvacuationPlanning.pdf Robert T. Stafford Disaster Relief and Emergency Assistance Act (P.L. 93-288, 1988, as amended after Hurricanes Katrina and Rita) The Stafford Act amended the Disaster Relief Act of 1974 and constitutes the statutory authority for most disaster response activities, including federal financial and resource assistance to eligible states and local authorities through the Federal Emergency Management Agency (FEMA). The act requires vulnerable populations to be fully integrated into emergency management. http://www.fema.gov/about/stafact.shtm Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU) (P.L. 109-59) The SAFETEA-LU Act requires MPOs and state DOTs to address the needs of environmental justice and Title VI populations in their systems’ planning processes, including long-range transportation plans and transportation improvement programs. http://www.fhwa.dot.gov/safetealu/

Transportation Equity in Emergencies: A Review of the Practices of State Departments of Transportation, Metropolitan Planning Organizations, and Transit Agencies in 20 Metropolitan Areas: Final Report, Federal Transit Administration, 2007 The FTA commissioned this report to promote nondiscrimination in the emergency preparedness activities administrated by recipients of FTA financial assistance. The report reviewed the extent to which transit providers, MPOs, and state DOTs in selected metropolitan regions were addressing the needs of vulnerable populations in the event of a natural or man-made disaster. http://www.trb.org/Main/Blurbs/Transportation_Equity_in_ Emergencies_A_Review_of_t_158835.aspx What’s New in the National Response Framework, Department of Homeland Security, January 22, 2008 This document describes the changes made to the former , now called the , a guide to how the nation conducts incident response. http://www.fema.gov/pdf/emergency/nrf/whatsnew.pdf White Paper on Emergency Preparedness and Response for Vulnerable Populations, COMTO COMTO partnered with several organizations to develop this white paper, which examines the roles of mass transportation in the context of vulnerable populations that are transit dependent. The analysis seeks to identify how vulnerable populations are directly affected by policy (or the lack thereof) regarding emergency preparedness and recovery. http://www.comto.org/ Transportation Research Board (TRB) Special Report 294, The Role of Transit in Emergency Evacuation, 2008 This special report examined transit systems in the 38 largest communities in the United States and looked at roles of transit systems in evacuation and in moving people to and from different locales in an emergency. The study found no evidence of “clear regional emergency management protocol” and http:// www.trb.org/Main/Blurbs/The_Role_of_Transit_in_Emergency_ Evacuation_160047.aspx

INTRODUCTION Building a Collaborative Network Is Critical Almost universally in communities throughout the United States, emergency managers have the designated lead in emergency efforts. Most transportation agencies do not have — or want — significant leadership roles. Even so, transportation agencies can and do serve as leaders in emergency planning at the local level, working with emergency managers to define not only transportation tasks, but also the communication tasks that can save lives in emergencies, particularly among the most vulnerable populations. National policies and planning initiatives, such as the National Response Framework (NRF) and the National Incident Management System (NIMS), call for a coordinated response to incident management through a network approach. The term “network” as used throughout this guide and toolkit refers to the various ways organizations work together to address problems they cannot solve on their own. Definitions Functional Needs Populations: Individuals in need of additional response assistance because of additional needs in one or more functional area, including maintaining independence, communication, transportation, supervision, and medical care. Network: Organizations working together to address problems they cannot solve on their own. Vulnerable Populations: People who have existing vulnerabilities (regarding age, income, disability, language, or mobility) that are exacerbated in emergency situations.

Definition Champion: A champion is someone who recognizes the need and an opportunity for mutual problem-solving, recognizes and engages key stakeholders, and may provide strategic direction and vision. Champions are passionate and committed to the idea of collaboration as the best means for reaching vulnerable populations in an emergency. They are advocates, defenders — people who are willing to battle for the rights of others. A champion can be a mid-level manager, high- level agency staff, or an elected official. Regardless, champions are people in sustainable positions, able to move easily among various arenas, and have multiple professional and community contacts, guaranteeing the capacity for outreach well beyond the boundaries of transportation and emergency management. Successful transportation and emergency management professionals collaborate with key people and organizations that already have relationships with members of these populations. By building partnerships among themselves and other public sector agencies, they effectively leverage their expertise and outreach capability to reach vulnerable populations. This toolkit provides guidance and tools for building a scalable, adaptable network. The steps connect transportation and emergency planners to each other and to their colleagues in the public sector, in nongovernmental organizations (NGOs), and in private sector businesses. Together, these relationships form connected communication channels that carry out the functions of emergency communication in far-reaching, resourceful, and effective ways not otherwise possible. Key Issues Addressed in the Toolkit Emergency management and transportation agencies that achieve successful communication with vulnerable populations address a wide variety of concerns, which can be grouped under the following five key issues: 1. Defining roles and relationships between state and local departments of transportation (DOTs) and at the local level among emergency managers, transportation agencies, and other agencies with regard to transportation in emergencies. Where does transportation fit in? 2. Understanding the local community sufficiently to decide what information is important and how best to communicate it in fully accessible formats so that people are informed, responsive, and motivated.

3. Building necessary community relationships to enable information exchange in every stage of an emergency. 4. Securing and managing needed information from a transportation perspective. 5. Understanding requirements and desires of other agencies and community-based organizations (CBOs) so that transportation providers can meet or manage expectations. Assumptions The process outlined in this toolkit is based on several assumptions: The collaborative process at the local level can start with one person, a champion, who responds to the call to action and begins the work. This toolkit is designed to help that person get started and bring others into the process. Emergency management carries primary responsibility for communication in emergencies, but may delegate vulnerable population outreach to various agencies that are expected to be interacting directly with people who have the greatest needs. In some communities, transportation, public health, or other agencies may lead the collaborative communication network to reach vulnerable populations. Agencies and organizations that participate in the network will vary by location. Different communities will be at different points in the process of collaboration. Even those that have established, active partnerships can evaluate existing practices and look for new opportunities to ensure that vulnerable populations can receive and act on critical messages. Before an Event According to the Federal Highway Administration (FHWA) publication, Evacuating Populations with Special Needs: Routes to Effective Evaluation Planning Primer Series, “Transportation agencies can help disseminate information prior to an event and can encourage those at risk to prepare, thus reducing the numbers of people requiring assistance during an evacuation.”

The process of building a communication network is not “one-size-fits-all.” The strategies, tools, and templates in this toolkit work best when they are scaled and adapted to local conditions or circumstances and then implemented. Communities approach collaboration differently. Some communities are well along in interagency collaboration and have established working relationships among entities from the public, voluntary, and private sectors. Often times communities have task forces, steering committees, or other leadership groups in place. These groups can provide a good base for transportation and emergency managers to use in building their communication network with vulnerable populations. Other communities may not have wide-reaching collaborative efforts under way. In that case, representatives from transportation and emergency management agencies should convene and decide how they will work together to prepare effective emergency communication plans to reach vulnerable populations. These agreements will provide a solid base when the network-building process reaches out to CBOs, faith-based organizations (FBOs), and other agencies. The network-based communication process laid out in this toolkit can be productive whether its initial leadership comes from a single agency or from two agencies working together. The approach will be different for different communities, but the critical component is having the initiating leaders in agreement about fundamental goals, tactics, and approaches before they begin to create a community-wide process for outreach to vulnerable populations. Partnership Focus The toolkit does not focus on the activities or specific messages of emergency planning, response, and recovery. It lays out a process for building the collaborative partnerships necessary to communicate the messages and implement the activities needed for planning, response, and recovery to take place.

The approach advocated in this toolkit is one of shared responsibility for outreach to vulnerable populations and is predicated on inclusive planning between government agencies, NGOs, and the private sector. This approach has been tested and successfully implemented in the field by public agencies, such as area agencies on aging, public health, and voluntary organizations active in disaster (VOADs). Most of the tools in this kit have been directly requested by participants in workshops held as part of the research for this toolkit. This Toolkit Is about a Communication Process This toolkit helps transportation and emergency managers develop a communication process, so delivery options for reaching vulnerable populations are in place before a crisis occurs. Communication is central to the success or failure of emergency preparedness and response. Communicating in a crisis is different from day-to-day communication. The urgency of the situation doesn’t leave room for exploring options for message content or delivery mechanisms. Those options have to be in place before a crisis. Encouraging individuals to act during emergencies requires communicating with them through multiple channels. These channels depend on trusted relationships built over time, so they are well established in times of crisis. A pre-crisis network of communication channels can carry messages across barriers and create a safety net that prevents especially vulnerable people from missing access to transportation assistance in emergencies.

Users of This Toolkit This toolkit will be useful to state DOTs and their regional divisions, transit agencies, metropolitan planning organizations (MPOs); state and local emergency managers; other public agencies, such as public health and public safety; local and regional elected or appointed officials and tribal leaders; CBOs and FBOs; and private businesses and industries. The collaborative process needs a champion, or champions, within an agency or organization to take the lead in bringing a network of people together to open communication channels. Although this toolkit was prepared for transportation and emergency managers, it might also be useful to anyone with an interest in improving agencies’ outreach to vulnerable populations. How This Toolkit Is Organized The toolkit has been organized into four chapters: Chapter 1 — Gather Information Chapter 2 — Build or Add to a Network Chapter 3 — Communicate through the Network Chapter 4 — Sustain the Network Chapter content is designed to help the champion (transportation personnel, emergency managers, or others) enlist the support of other agencies and influential representatives of vulnerable populations to increase their readiness to act during an emergency. Each chapter includes steps and strategies that can improve organizations’ and individuals’ abilities to communicate with vulnerable populations. The chapters also include listings of additional information that contributed to chapter development.

Chapter 1 — Gather Information Chapter 1 guides planners through the steps of securing buy-in from leadership; gathering information about the people who live in the community in terms of demographics and communication needs; assessing hazards and community vulnerability; determining what their organization and others are doing to communicate with vulnerable populations; and identifying potential network partners. Chapter 2 — Build or Add to a Network In Chapter 2, the steps focus on convening potential network partners for the first time, presenting the idea and purpose of an emergency communication network of public and private partnerships, and collaborating for effective communication with vulnerable populations. Chapter 3 — Communicate through the Network Chapter 3 covers the strategies to organize and communicate through the network and helps planners define basic operating procedures for the network as well as members’ roles and responsibilities to act as communication conduits to vulnerable populations. Chapter 4 — Sustain the Network Chapter 4 addresses how to sustain the network through forming agreements, assessing hazards and community vulnerability, and measuring performance. This chapter also discusses ways to equip network partners to perform their roles and responsibilities and to grow the network strategically over time.

Tools and Templates The four chapters comprise a guide that serves as the primary “tool” in this toolkit. Each chapter provides a suite of tools and templates designed to support the planner in implementing the steps outlined in the guide. Resources Section The Resources Section provides additional information that expands on the ideas presented in the toolkit. The resources incorporate key findings from the research and allow for further inquiry into more complex concepts. Defining Population Terminology Conversations with transportation and emergency managers and other professionals responsible for emergency planning and response suggest that questions still arise about how best to define populations considered to be the most vulnerable in emergencies. No single term has been universally accepted, and no term is without controversy. The use of terminology such as continues to be a subject of national debate and can pose challenges when planning for the diverse needs of people in these groups. This toolkit adopts the National Response Framework (NRF) definition of access and functional needs populations:

Descriptors for groups of individuals are difficult. The term may not be meaningful to people who are usually able and independent, but who, after a widespread disaster, are injured, stranded, homeless, or suddenly outside mainstream communication channels — in other words, especially to adverse outcomes. These populations could include people who would usually not be categorized as especially vulnerable, but who may have functional needs in a particular emergency and require transportation assistance at that time, such as carless populations and visitors. The toolkit uses the term “vulnerable populations” to describe the many and varied groups that represent individuals for whom emergency situations exacerbate their vulnerabilities or create new ones.

Additional Information The following sources contributed to the development of the Introduction. Evacuating Populations With Special Needs, U.S. Department of Transportation, Federal Highway Administration, April 2009 The primary focus of the primer is moving people with special needs. The primer discusses the roles transportation agencies can perform in communicating with vulnerable populations. It also identifies the communication and transportation needs of vulnerable populations among other functional needs. http://www.ops.fhwa.dot.gov/publications/fhwahop09022/ index.htm National Incident Management System (NIMS), Department of Homeland Security, FEMA, December 2008 NIMS provides a consistent nationwide template to enable federal, state, tribal, and local governments; nongovernmental organizations; and the private sector to work together to prevent, protect against, respond to, recover from, and mitigate the effects of incidents of any size, cause, or location. http://www.fema.gov/pdf/emergency/nims/NIMS_core.pdf National Response Framework (NRF), Department of Homeland Security, Federal Emergency Management Agency (FEMA), January 2008 The NRF is a guide to how the nation conducts all-hazards response. It is built upon scalable, flexible, and adaptable coordinating structures to align key roles and responsibilities across the Nation, which links all levels of government, nongovernmental organizations, and the private sector. http://www.fema.gov/pdf/emergency/nrf/nrf-core.pdf