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[Senate Prints 109-69]
[From the U.S. Government Publishing Office]

                                     

109th Congress                                                  S. Prt.
 2nd Session                COMMITTEE PRINT                     109-69
_______________________________________________________________________
                                                                 

 
                    SAFEGUARDING AMERICA'S SENIORS:
           WHAT WE CAN DO TO PREPARE FOR NATIONAL EMERGENCIES

                               __________

                       SPECIAL COMMITTEE ON AGING

                          UNITED STATES SENATE

[GRAPHIC] [TIFF OMITTED] TONGRESS.#13

             Prepared by Senator Herb Kohl, Ranking Member
                 U.S. Senate Special Committee on Aging
                              October 2006

    This document has been printed for information purposes. It does
 not represent either findings or recommendations formally adopted by 
                             the Committee.

                    U.S. GOVERNMENT PRINTING OFFICE
21-023                      WASHINGTON : 2006
_____________________________________________________________________________
For Sale by the Superintendent of Documents, U.S. Government Printing Office
Internet: bookstore.gpo.gov  Phone: toll free (866) 512-1800; (202) 512�091800  
Fax: (202) 512�092250 Mail: Stop SSOP, Washington, DC 20402�090001

                       SPECIAL COMMITTEE ON AGING

                     GORDON SMITH, Oregon, Chairman
RICHARD SHELBY, Alabama              HERB KOHL, Wisconsin
SUSAN COLLINS, Maine                 JAMES M. JEFFORDS, Vermont
JAMES M. TALENT, Missouri            RON WYDEN, Oregon
ELIZABETH DOLE, North Carolina       BLANCHE L. LINCOLN, Arkansas
MEL MARTINEZ, Florida                EVAN BAYH, Indiana
LARRY CRAIG, Idaho                   THOMAS R. CARPER, Delaware
RICK SANTORUM, Pennsylvania          BILL NELSON, Florida
CONRAD BURNS, Montana                HILLARY RODHAM CLINTON, New York
LAMAR ALEXANDER, Tennessee           KEN SALAZAR, Colorado
JIM DeMINT, South Carolina
                    Catherine Finley, Staff Director
               Julie Cohen, Ranking Member Staff Director

                                  (ii)

  

                            C O N T E N T S

                              ----------                              
                                                                   Page
Introduction.....................................................     1
Background.......................................................     1
Recommendations..................................................     2
Planning.........................................................     2
Training.........................................................     3
Senior Education.................................................     3
Conclusion.......................................................     4

                                 (iii)

  
                    SAFEGUARDING AMERICA'S SENIORS:

           WHAT WE CAN DO TO PREPARE FOR NATIONAL EMERGENCIES

                              INTRODUCTION

    Last September, our nation reeled from the tragic and 
shameful images of seniors abandoned during the aftermath of 
Hurricane Katrina. We must never again leave our parents and 
grandparents to face an emergency alone.
    This report compiles the recommendations made to the U.S. 
Senate Special Committee on Aging during and following the 
hearing, ``Caring for Seniors in a National Emergency: Can We 
Do Better?,'' held on May 18, 2006. The report does not point 
fingers for past tragedies; it looks forward. Hurricane season 
is an annual event, the threat of terrorism remains, and the 
potential for an avian flu pandemic looms. We all agree, we let 
our seniors down after Hurricane Katrina. But, as sorry as we 
all are, are we any more prepared for the next hurricane, 
attack, or disaster?
    We know now that one-size-fits-all emergency plans are of 
little use to seniors, especially those who depend on other for 
assistance in their daily lives. When we plan for emergencies, 
we must also plan for the unique challenges of keeping seniors 
safe.
    Our lack of preparation for seniors after last summer's 
hurricane's--and the terrible price we paid in lives and 
suffering--was a national tragedy. That tragedy is compounded 
if we ignore the painful lessons of the past. We need specific 
plans, programs, and information for seniors facing 
emergencies.
    This report is intended to inform decision makers on all 
levels--Federal, State and local emergency planners, first 
responders, law enforcement, advocates, seniors, and their 
families and friends. We believe all will find information they 
can use to prepare to care for seniors when the next emergency 
occurs.

                               BACKGROUND

    The National Preparedness System (NPS), as overseen by the 
Department of Homeland Security (DHS), coordinates operations 
and priorities of homeland security officials, emergency 
managers, and first responders. NPS has developed six basic 
documents to guide emergency planning. These documents set 
goals and standards for Federal, State and local governments to 
meet in order to properly protect our citizens during a 
national emergency.
    NPS' guidance is a good first step; however, it is 
important to note that not one single office within DHS is 
solely dedicated to the protection of seniors. DHS has issued 
only limited guidance to State and local emergency planners 
that specifically deals with seniors' needs--a questionable 
strategy in the face of seventy-seven million baby boomers on 
the cusp of retirement.
    The structure of and responsibility for emergency 
management varies greatly among State and local governments. 
That is why it is imperative for the federal government to 
provide strong leadership in protecting seniors. We must 
coordinate all efforts--federal, state and local--to ensure 
that our most vulnerable populations are protected.

                            RECOMMENDATIONS

    The following recommendations were culled from testimony 
provided to the Committee in preparation for its May 18, 2006 
hearing examining emergency preparedness issues for seniors. 
They do not necessarily represent the perspectives of the 
Committee or any of its members, but serve as a valuable 
starting point in discussing how we, as a nation, can better 
protect our seniors in the event of a national disaster.

                                PLANNING

      Emergency planners should involve social service 
providers, such as Meals on Wheels programs, in the planning 
process. These providers' transportation resources could be 
used to evacuate many seniors on voluntary registries 
administered by local governments. These providers have 
expertise and ongoing contact with clients who face 
transportation obstacles, and are familiar with their day-to-
day and non-emergency needs.
      Plans should clearly articulate the 
responsibilies of all agencies in evacuating transportation-
disadvantaged populations, and spell out the methods and 
coordination of evacuations. This plan should detail how local 
and state emergency management, and transit agencies should 
work together to evacuate transportation-disadvantaged people. 
Emergency management officials stated that this level of 
coordination enabled them to successfully conduct several 
evacuations in the past.
      Federal, State and local planners should involve 
gerontologists (geriatricians, geriatric nurse practitioners, 
geriatric social workers, etc.) in all aspects of emergency 
preparedness and care delivery. Gerontologists should be 
involved in the training of frontline workers and other first 
responders about frail adults' unique needs.
      The federal government should develop a simple, 
inexpensive, cohesive, integrated and efficient tracking system 
for seniors and other vulnerable adults that can be employed at 
the state and local levels.
      The federal government should select an existing 
agency, such as the Department of Transportation, to be the 
primary federal agency responsible for developing the 
capability to conduct mass evacuations.
      DHS should require that state and local 
governments conduct evacuation planning and exercises as a 
condition for receiving Homeland Security grants.
      DHS, in coordination with the states, should 
plan, train and exercise for evacuations, including exercises 
that incorporate those populations that do not have the means 
to evacuate.
      Ongoing federal funding is needed for existing 
programs to continue to plan for national emergencies. Federal 
funding is also needed to provide the infrastructure to 
accommodate the needs of the elderly in disasters.
      Congress should consider restoring funding to the 
geriatrics health professions programs, which includes the 
Geriatrics Education Centers (GECs). The GECs are at the 
forefront of disaster preparedness and the elderly, having 
prepared the lead, national curriculum in this area.
      State and local planners should designate 
separate shelter areas in advance for the elderly and other 
vulnerable adults. Seniors without family members or advocates 
should be grouped in shelter sites so that they can be attended 
to by medical personnel and volunteers to help them with their 
special needs.
      Metropolitan areas should revisit their building 
codes and develop strategies to strengthen their 
infrastructures. Areas prone to disasters such as hurricanes, 
earthquakes, wildfires or flooding should review and strengthen 
building codes specific to the disasters most likely to occur 
in their particular area. Buildings known to specifically house 
seniors should be focused on during these reviews.

                                TRAINING

      Train all first responders and law enforcement 
agents about the unique needs of the elderly in the event of a 
national emergency or disaster.
      Conduct regular exercises of emergency response 
plans in order to test coordination between agencies involved 
in evacuations.
      Encourage citizens who have special needs to 
voluntarily register with their local emergency management 
agency. Train all appropriate parties how to implement and use 
voluntary registries before, during and after an emergency. 
According to emergency management officials, in several recent 
evacuations, voluntary registries assisted emergency personnel 
in efficiently evacuating transportation-disadvantaged 
populations.
      Involve region-specific social services, medical 
and public health resources, volunteers, and facilities in pre-
event planning and training for elders and vulnerable adults.
      Train first responders and law enforcement 
officers on how to implement senior specific triage tools.
      Develop coordinated regional plans for 
evacuations of residents of long-term care facilities and for 
homebound seniors. These regional plans should be reviewed 
periodically and incorporated into regular training exercises, 
so that long-term care facilities and isolated seniors are 
appropriately prioritized in the event of an emergency.

                            SENIOR EDUCATION

    The following information should be made available to 
seniors to better prepare themselves for future national 
disasters.
      It is always better to prepare for a disaster too 
early than too late. Take the possibility of a disaster 
seriously; many are sudden and have no warning.
      Become part of a network of people to check on 
your welfare in the event of a disaster. Many towns are 
establishing registries so that emergency workers can locate 
high risk and high needs people, and check on those who might 
not have anyone else to check on them. If you need medical 
assistance, teach those who will come to check on you any 
necessary equipment operations. A network of friends or 
neighbors would work as well. This is to ensure that when a 
disaster happens, everyone is accounted for and taken care of.
      Become informed as to what kind of disasters are 
common in your community, state, or region. Physical geographic 
factors are not the only factors to take into account. 
Proximity to large cities, power plants, military bases, etc. 
are sources of disasters as well.
      There are several steps to take that will prepare 
you for any disaster:
    Make sure that you have access to communication--many 
emergency notification are broadcast on the television or 
radio.
    Assemble a disaster supply kit, complete with medical and 
general supplies:

    - Battery-powered radio and flashlight; including extra 
batteries for each
    - Clothing, rain, gear, and sturdy comfortable shoes
    - Blanket or sleeping bag
    - Extra car and house keys
    - Whistle in case you need to attract attention
    - Cash, credit cards and loose change
    - Personal hygiene supplies
    - Emergency phone numbers as well as phone numbers of 
relatives, friends, your doctor, and insurance company
    - Sealed supplies of water

      Plan transportation that will accommodate any 
mobility needs you might have in the event of an evacuation. 
Always try to travel with others.
      Plan a safe place in your home where you can wait 
during an emergency if so instructed.
      In the event of a fire, plan two escape routes 
out of each room. If you cannot use stairways, make special 
arrangements for help in advance. Never use elevators. Test 
your smoke detector battery regularly.
      In case of an earthquake or other disaster, you 
should have things securely anchored in your home, keeping 
heavy things off of top shelves to prevent injury. Have 
personal records in fireproof, watertight containers.
      Even if you do have a registry or network that 
will check on you, you should still be prepared to support 
yourself for up to 72 hours without outside help.
      In the event of an evacuation:

    - Travel with others if at all possible.
    - Wear appropriate clothing and sturdy shoes.
    - Take your Disaster Supplies Kit.
    - Lock your home.
    - Use the travel routes specified or special assistance 
provided by local officials. Don't take any short cuts; they 
may be unsafe.
    - Notify shelter authorities of any needs you may have.

                               CONCLUSION

    When the next national emergency strikes--whether it's a 
hurricane, terrorist attack or a public health threat--we need 
to make sure no senior is left behind.
    It's clear that the Federal government still has a lot of 
work to do. We need to make sure that seniors know how to 
prepare themselves and who to turn to for help. All levels of 
government need to plan, train and practice now so we can 
respond to seniors in a future emergency.
    We hope that you will find these recommendations helpful 
and act immediately to make sure seniors never fall through the 
cracks again.

                                 
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