Emergency management and safety professionals bear the responsibility of safeguarding the well-being of community residents, workers, and visitors during times of crisis. Despite our best intentions and advanced planning, the failure to conduct quality public outreach frequently threatens the effectiveness of our emergency preparedness and response efforts.
We need to identify fail points and blind spots in emergency planning and in the operational phases. Two common root causes for failing to meet the complex needs of our widely diverse communities are the lack of human-centered design and inadequate cultural competency.
By taking intentional and actionable steps to build these two concepts into our operational strategies and delivery processes, we will better ensure that our services (and the communications about those services) are appropriate for the individuals we serve. And critically, we will be more equitable to those populations who historically are at greater risk of hazards due to their social conditions or other issues that may challenge their ability to take action, such as those with limited English or digital access, individuals with disabilities, or are undocumented.
The Four Primary Blind Spots in Emergency Management
1. Inadequate Cross-Cultural Communication
One common failure is poor communication with diverse populations. Language barriers, cultural norms, and technological limitations often stand in the way of creating and disseminating culturally understandable, lifesaving information before and during an emergency. Failure to recognize and correct these communication challenges often results in reduced community engagement, delayed response times, and increased social vulnerability.
2. Inclusivity and Accessibility
Failing to consider the needs of the “whole community” can lead to blind spots in emergency planning. Emergency operations plans (EOPs) and all accompanying annexes must articulate specific actions to be taken and the resources available to meet the needs of the diverse populations in the community—be it residents, visitors, or workers. Inadequate provisions for individuals with disabilities, limited access to emergency shelters, or overlooking the unique requirements of elderly populations can significantly impact the effectiveness of response efforts and jeopardize the safety of vulnerable individuals.
3. Cultural Competency
Insufficient cultural competency can impede effective emergency planning. Failure to understand cultural norms, beliefs, and practices may result in a lack of trust and cooperation from certain communities. This blind spot can lead to underutilization of resources available, such as those offered through local community and faith-based organizations, outreach that does not use language that is understandable and inclusive, and increased vulnerability, particularly among minority and immigrant populations.
4. Human-Centered Design
Neglecting to involve the community in the design and implementation of emergency plans hinders their effectiveness.
Human-centered design principles, which emphasize empathy and collaboration, are essential for understanding the unique needs, concerns, and capacities of community members. It is critical to proactively engage key stakeholders, advocates, community champions, and those with lived experience in planning, evaluation, and exercise of plans and programs.
With the passage of recent legislation, the State of California legally requires counties to actively engage stakeholders in the planning. Without richly diverse perspectives of the community members, emergency managers fail to consider real-world expectations, reduce responsiveness, and potentially lose the cooperation of those for whom the planning is intended to protect and assist.
Real Scenarios of Blind Spots and Fail Points in Emergency Management
The following are real occurrences highlighting some of the blind spots and fail points in disaster management and planning and what we learned to help improve outcomes in future planning.
Hurricane Katrina (2005)
Cultural Competency Failure: Communication and Engagement Gap with Marginalized Communities
The devastating impact of Hurricane Katrina on the Gulf Coast exposed significant failures in the planning process and in providing a culturally competent response.
The response efforts faced criticism for inadequate understanding and consideration of the unique needs of the predominantly African American and low-income communities in New Orleans and surrounding areas.
The lack of culturally sensitive communication outreach, evacuation plans that didn’t adequately address such issues, the lack of transportation, and limited accessible resources resulted in a high casualty rate, exposure of marginalized racism, and prolonged suffering for many marginalized populations.
This disaster exposed the dire consequences of not integrating cultural competency into the planning process.
What Could Have Been Done Differently
To improve the response and outcomes during Hurricane Katrina, several actions could have been taken, and are recommended for communities to not experience another event like it:
- Cultural Competency Training: Implement comprehensive cultural competency training for emergency management personnel. This would include education on the unique cultural dynamics, history, and vulnerabilities of the communities at risk. Understanding the cultural context will allow for more effective communication, tailored evacuation plans, and better allocation of resources.
- Community Engagement: Engage with community leaders, organizations, faith-based organizations, and residents before, during, and after the event. Foster relationships of trust, actively listening to their concerns and needs and involving them in decision-making processes. This collaboration will better ensure that the emergency response plans consider the specific cultural nuances and preferences of high risk “communities within the community.”
- Language Accessibility: Ensure multilingual messages, appropriate communication dissemination channels, and accessibility resources are prepositioned and readily available to be utilized when an event unfolds. These actions will assist in more effectively communicating often challenging response and recovery concepts and tasks and addressing language barriers in alerts and warnings.
Human-Centered Design Failure: Lack of User-Centered Approach and Community Engagement
How the lack of human-centered design contributed to the fail points during Hurricane Katrina in several ways.
Emergency response plans did not adequately consider the needs, capabilities, and limitations of the affected population.
For example, evacuation plans did not account for individuals who did not have access to private transportation or had mobility challenges. Shelters were not designed with sufficient capacity and resources to accommodate the specific needs of diverse populations, such as individuals with disabilities or medical conditions. The failure to incorporate human-centered design principles resulted in a response that was not effectively tailored to the realities and experiences of those most deeply impacted.
What Could Have Been Done Differently
To incorporate human-centered design principles and achieve better results during Hurricane Katrina, the following actions could have been taken:
- Community Engagement: Actively engage with the affected communities during the planning phase to understand their unique needs, capabilities, and limitations. Conduct community surveys, hold town hall meetings, and involve community leaders to ensure their perspectives are considered in the development of emergency response plans.
- User-Centered Shelter Design: Design shelters with a user-centered approach, considering the diverse needs of the population. Consider accessibility for individuals with disabilities, privacy for families, and separate areas for those with medical needs. Provide appropriate amenities, such as hygiene facilities, and ensure the availability of necessary supplies and resources.
- Culturally Sensitive Communication: Develop culturally sensitive communication strategies that resonate with different cultural groups. Use diverse communication channels, including local media outlets and community organizations, to effectively disseminate information. Provide information in multiple languages and formats accessible to diverse populations.
Tohoku Earthquake and Tsunami (2011)
Cultural Competency Failure: Inadequate Consideration of Elderly Population’s Needs
The Tohoku earthquake and tsunami in Japan revealed the consequences of insufficient cultural competency in disaster planning.
The response to the disaster faced challenges in effectively assisting elderly individuals, who constituted a significant portion of the affected population. The lack of understanding regarding their specific needs, such as access to healthcare and mobility limitations, hindered the provision of appropriate support.
This incident emphasized the importance of considering cultural factors and demographic characteristics in emergency planning.
What Could Have Been Done Differently
To enhance the response to the Tohoku earthquake and tsunami, the following measures could have been implemented:
- Elderly-Centric Planning: Develop specific planning elements that inclusively address the needs of elderly individuals, who are often more vulnerable during disasters. This includes provisions for accessible transportation, healthcare facilities, and targeted communication strategies designed to reach this demographic effectively.
- Community-Based Support: Collaborate with local community organizations, faith-based organizations, and eldercare institutions to identify and support vulnerable elderly individuals. By leveraging existing networks, community knowledge, and existing resources, emergency responders can provide timely assistance, ensuring the specific needs of the elderly population are met.
- Evacuation Assistance: Establish evacuation protocols that address the challenges faced by elderly individuals, such as mobility issues, accessible transportation, and the need for medical support. Design evacuation centers that accommodate their needs, including accessible facilities, resources that support durable medical devices, and the availability of staff trained to understand their unique physical and psychological needs.
Human-Centered Design Failure: Insufficient Consideration of Elderly Population’s Needs in Design
How the absence of human-centered design principles in the response to the Tohoku earthquake and tsunami exacerbated the fail points.
The emergency plans did not adequately address the specific needs and vulnerabilities of the elderly population, failing to consider their unique circumstances during evacuation, sheltering, and access to healthcare services. Designing emergency protocols without actively involving the elderly population and understanding their perspectives and challenges limited the effectiveness of the response efforts and hindered the ability to provide appropriate support.
What Could Have Been Done Differently
To integrate human-centered design principles and improve the response to the Tohoku earthquake and tsunami, the following measures could have been implemented:
- Elderly-Inclusive Planning: Incorporate the elderly population’s perspectives and needs in the planning process. Consider their limitations, mobility challenges, and medical requirements when developing evacuation plans, establishing shelters, and providing healthcare services.
- Accessibility Considerations: Ensure that evacuation routes, shelters, and relief distribution centers are accessible to individuals with mobility challenges, including the elderly and others with disabilities, access, and functional needs. Provide appropriate transportation options, resources, and ensure facilities are designed to accommodate their needs.
- User-Focused Communication: Develop communication strategies that consider the preferences and abilities of the elderly population. Utilize clear and concise messaging, visual aids, and communication methods that are easily understood and accessible to individuals with different physical and cognitive abilities.
Hurricane Maria in Puerto Rico (2017)
Cultural Competency Failure: Lack of Cultural Understanding and Collaboration
The aftermath of Hurricane Maria in Puerto Rico highlighted the failures resulting from inadequate cultural competency. The response efforts were criticized for not fully recognizing the unique cultural context and the significance of the local community networks. This led to delays in the distribution of assistance, limited access to crucial resources, and insufficient engagement with local leaders and organizations.
The incident underscored the vital role of cultural understanding and collaboration with community members in effective disaster response.
What Could Have Been Done Differently
To improve the response to Hurricane Maria in Puerto Rico, the following actions could have been taken:
- Cultural Awareness Training: Provide cultural awareness and sensitivity training to emergency management personnel, ensuring they understand the local customs, communication styles, and social structures. This would facilitate better collaboration and trust-building with local communities.
- Engage Local Leaders: Actively involve local leaders, community organizations, and grassroots initiatives in the planning and decision-making processes. Their knowledge and understanding of the community dynamics would have helped in identifying specific needs and ensuring a more effective response.
- Localize Resource Distribution: Establish distribution centers within affected communities, enabling residents to access essential supplies and resources close to their homes. This localized approach would have reduced dependency on centralized distribution points and facilitated a more equitable distribution of aid.
Human-Centered Design Failure: Limited Integration of Cultural Context and Community Empowerment in Design
How the lack of human-centered design principles in the response to Hurricane Maria led to fail points in Puerto Rico.
The response efforts did not sufficiently involve the local community in the planning and decision-making processes. As a result, the design of emergency protocols, resource distribution, and communication strategies did not align with the realities and preferences of the affected population. This failure to incorporate a human-centered approach limited the effectiveness of the response and hindered the ability to provide timely and appropriate assistance.
What Could Have Been Done Differently
To incorporate human-centered design principles and achieve better outcomes during Hurricane Maria in Puerto Rico, the following actions could have been taken:
- Community Empowerment: Engage local communities and organizations in the planning and decision-making processes. Include community leaders as stakeholders to ensure their perspectives, knowledge, and expertise are integrated into the response efforts.
- Culturally Tailored Response: Develop culturally appropriate response plans that consider the cultural context and customs of the affected communities. Incorporate local practices, resources, indigenous knowledge, and traditional systems of support into the emergency response strategies.
- Effective Communication Channels: Establish diverse and accessible communication channels to disseminate information. Utilize local champions, radio stations, community centers, and trusted community leaders to deliver accurate and timely updates, ensuring that information reaches all segments of the population.
COVID-19 Pandemic
Cultural Competency Failure: Insufficient Cultural Sensitivity in Communication and Access to Services
The global response to the COVID-19 pandemic exposed the repercussions of overlooking cultural competency in emergency planning. In many instances, public health messages and guidelines failed to consider cultural and linguistic diversity, resulting in reduced compliance and misunderstandings among diverse communities.
This contributed to the uneven distribution of resources, disparities in healthcare outcomes, and vaccine hesitancy among certain populations. The issues of equity, access, and trust grew increasingly problematic as the months went by.
The pandemic quickly grew into a painfully stark, unprecedented experience that reinforced the necessity for using culturally competent approaches to effectively communicate, counter institutionalized racism, and provide equitable access to treatment and service during times of a healthcare crisis.
These real occurrences serve as sobering reminders of the severe consequences that can arise from neglecting cultural competency in disaster management and planning. By learning from these failures, we can strive to develop more inclusive, responsive, and culturally sensitive emergency strategies in the future.
What Could Have Been Done Differently
To address the cultural competency challenges encountered during the COVID-19 pandemic, the following steps could have been taken:
- Multilingual Communication: Develop and disseminate public health messages in multiple languages, improving understanding, and ensuring accessibility for diverse populations. Utilize culturally appropriate channels of communication, such as community radio stations, ethnic media outlets, and social media platforms that cater to specific communities.
- Community Health Liaisons: Recruit and train community health workers who are fluent in different languages and familiar with the cultural contexts of diverse communities. These liaisons effectively bridge communication gaps, provide more accurate information, know how to address unique cultural concerns, and can facilitate access to testing, treatment, and vaccination services.
- Culturally Tailored Education: Design culturally sensitive informational and educational materials that address cultural beliefs, indigenous practices, and concerns related to the pandemic. Tailor messaging to align with specific cultural norms, building trust and facilitating adherence to preventive measures.
Human-Centered Design Failure: Inadequate Cultural Sensitivity and User-Focused Design in Communication and Resource Development
How the absence of human-centered design contributed to fail points during the COVID-19 pandemic response.
Public health guidelines, communication strategies, and the design of testing and vaccination sites did not adequately consider the diverse needs, preferences, and contexts of different unique communities. This lack of human-centered design principles led to communication barriers, disparities in access to testing and vaccines, and challenges in effectively reaching and engaging marginalized populations.
The failure to incorporate a human-centered approach hindered the effectiveness and inclusivity of the response efforts.
What Could Have Been Done Differently
To integrate human-centered design principles and improve the response to the COVID-19 pandemic, the following measures could have been implemented:
- Cultural Competency Training: Provide training to healthcare professionals, public health officials, and emergency responders on cultural competency and sensitivity. This would enable them to better understand diverse cultural beliefs, unique practices, and perspectives, resulting in more effective communication and engagement.
- Tailored Information and Resources: Develop culturally appropriate and accessible information and resources related to disease and other public health-related prevention, testing, treatment, and vaccination. Consider language diversity, literacy levels, and cultural norms to effectively reach and engage diverse communities.
- Community Partnerships: Establish partnerships with community-based organizations, religious institutions, and trusted leaders to facilitate community-specific outreach efforts. Leverage existing networks to disseminate information, address concerns, and provide support to vulnerable populations.
Mitigating Blind Spots in Emergency Management and Planning
By learning from these failures, we can strive to develop more inclusive, responsive, and culturally sensitive emergency strategies in the future. When creating your emergency plans and conducting assessments, keep these key points as a quality control checklist.
Enhance Cultural Competency
- Invest in training programs and workshops to foster cultural competency among emergency management personnel.
- Encourage cross-cultural understanding and promote inclusivity in decision-making processes.
- Develop partnerships with local community organizations, religious institutions, and grassroots initiatives to better understand and serve diverse populations during emergencies.
Conduct Community Engagement
- Prioritize engaging communities in emergency planning processes.
- Establish regular forums for dialogue and feedback, ensuring the participation of diverse voices.
- Utilize community networks, trusted leaders, and multilingual communication channels to bridge communication gaps and build stronger relationships with underserved populations, particularly culturally diverse populations and individuals with disabilities, access, and functional needs.
Embrace Human-Centered Design
- Integrate human-centered design principles into emergency planning frameworks.
- Involve community members in the planning and decision-making stages to ensure their unique perspectives are considered. Involve them in evaluation processes.
- Design and test emergency protocols with the participation of a wide range of diverse community stakeholders who can provide valuable input and feedback, such as; individuals with disabilities, limited English speakers, individuals who are black, indigenous, and people of color (BIPOC), lesbian, gay, bisexual, transgender, queer or questioning, intersex (LGBTQI), those who live in remote geographic locations, and those with limited digital access.
Leverage Technology
- Utilize technology to enhance communication and accessibility during emergencies.
- Implement multilingual emergency notification systems.
- Develop user-friendly mobile applications for information dissemination.
- Understand ways different cultures use and trust social media to ensure your communities have access to guidance and services.
To achieve comprehensive and effective emergency planning, we must recognize and address blind spots in cultural competency and human-centered design. By taking the necessary steps to improve cultural competency, engage communities, embrace human-centered design principles, and leverage technology, we can mitigate these blind spots and strengthen the resilience of our emergency management strategies.
To address the blind spots in cultural competency and human-centered design within emergency management, The Frew Group offers a first-of-its-kind comprehensive workshop. This practical and interactive workshop is tailored for government agency leaders, community organizations, and community stakeholders, aiming to enhance inclusivity, equity, and community engagement in emergency response.
Improve team dynamics, planning, operations, and communications by scheduling The Frew Group’s Building Inclusive and Equitable Emergency Management Workshop.
Together, let’s work towards a future where emergency management strategies effectively serve diverse populations in times of crisis.
