Disaster Recovery Guidance Series Disability-Inclusive Disaster Recovery © 2020 Global Facility for Disaster Reduction and Recovery 1818 H Street, NW, Washington, DC, 20433, USA This work is a product of the staff of The World Bank Social Development Global Practice and the Global Facility for Disaster Reduction and Recovery (GFDRR) with external contributions. The findings, analysis and conclusions expressed in this document do not necessarily reflect the views of any individual partner organization of The World Bank, its Board of Directors, or the governments they represent. Although the World Bank and GFDRR make reasonable efforts to ensure all the information presented in this document is correct, its accuracy and integrity cannot be guaranteed. 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No use of this publication may be made for resale or other commercial purpose without prior written consent of the Secretariat. All images remain the sole property of the source and may not be used for any purpose without written permission from the source. Cover photo: A boy using a wheelchair enjoying fully accessible environment. Photo: Ann Gaysorn / Shutterstock.com. Contents Acknowledgments.................................................................................................................................... 2 Abbreviations............................................................................................................................................ 2 Glossary ............................................................................................................................................... 3 1. Introduction........................................................................................................................ 4 a. Background................................................................................................................................... 4 b. Purpose.......................................................................................................................................... 5 2. Key principles...................................................................................................................... 6 a. Disability-inclusive recovery as opportunity............................................................................ 6 b. Understanding disability............................................................................................................. 6 c. Intersectionalities......................................................................................................................... 7 d. Accessibility................................................................................................................................... 7 e. DPOs.............................................................................................................................................. 8 Summary and action points............................................................................................................. 8 3. Data for inclusive post-disaster needs assessment and recovery....................................... 9 a. Disability data and sources......................................................................................................... 9 b. Measurement tools: the Washington Group Questions.......................................................... 10 c. Data on barriers and accessibility.............................................................................................. 12 Summary and action points............................................................................................................. 12 4. Enabling policies and legislation for disability-inclusive recovery.................................... 13 Summary and action points............................................................................................................. 14 5. Institutional mechanisms for disability inclusive recovery............................................... 15 Summary and action points............................................................................................................. 16 6. Financing mechanisms........................................................................................................ 17 Summary and action points............................................................................................................. 18 7. Implementation arrangements........................................................................................... 19 a. Twin-track approach.................................................................................................................... 19 b. Barriers, design considerations, and diverse needs................................................................. 19 c. Monitoring and evaluation......................................................................................................... 21 Summary and action points............................................................................................................. 21 1 2 Acknowledgments This guidance note is a result of collaboration Disability Adviser), Mari Helena Koistinen between the Global Facility for Disaster (Senior Social Development Specialist), Deepti Reduction and Recovery and the Social Samant Raja (Disability and Development Development Global Practice at the World Consultant), Mare Lo (Senior Disaster Risk Bank. The document was written by Dr. Management Specialist), Nadia Islam (Program Alex Robinson (Independent Consultant) Analyst) and Elad  Shenfeld (Senior Disaster under the  coordination of a team including Risk Management Specialist). Editing of the Alice Mortlock (Disaster Risk Management document was done by Cheryl Toksoz. Graphic Specialist), Charlotte McClain-Nhlapo (Global design was by ULTRA Designs, Inc. Abbreviations CRPD Convention on the Rights of Persons with Disabilities DPO disabled persons’ organization DRF disaster recovery framework GFDRR Global Facility for Disaster Reduction and Recovery ISO International Organization for Standardization NRA National Reconstruction Authority NSO national statistical office PDNA post-disaster needs assessment UN United Nations UNICEF United Nations Children’s Fund Glossary ■ Accessibility ■ Functioning Refers to measures to ensure persons with An umbrella term that includes an disabilities have equal access to physical individual’s body structure and functions, environments; transportation; information activities, and level of participation. An and communications, including information individual’s level of functioning is an and communications technologies and interaction with barriers in society and their systems; and other facilities and services. personal factors, such as gender and age.4 Measures also include the identification and ■ Post-Disaster Needs Assessment elimination of barriers to accessibility.1 A multisectoral assessment that measures ■ Disaster Recovery Framework the impact of disasters on the society, A pragmatic, sequenced, prioritized, economy, and environment of the disaster- programmatic, yet living (and flexible) affected area.5 action plan that ensures resilient recovery ■ Reasonable accommodation after a disaster.2 Adjustments to meet the specific ■ Disaster risk accessibility requirements of persons with The potential loss of life, injury, or destroyed disabilities. or damaged assets which could occur to a ■ Underlying risk factors system, society, or community in a specific Pre-existing conditions that can increase time period, determined probabilistically as disaster risk, including poverty and a function of hazard, exposure, vulnerability, inequality, climate change, unplanned and capacity.3 urbanization, demographic change, and the ■ Disabled persons’ organization limited availability of technology.6 A representative organization of persons ■ Universal design with disabilities that is led, and majority The process of designing goods and services governed, by persons with disabilities. so that they can be used equitably. 1 Based on the United Nations Convention on the Rights of Persons with Disabilities. Article 9. https://www.un.org/disabilities/ documents/convention/convoptprot-e.pdf 2 Global Facility for Disaster Reduction and Recovery (GFDRR). 2015. “Guide to Developing Disaster Recovery Frameworks: Sendai Conference Version.” World Bank, Washington, DC. https://www.gfdrr.org/sites/default/files/publication/DRF-Guide.pdf 3 United Nations Office for Disaster Risk Reduction terminology. https://www.undrr.org/terminology/disaster-risk 4 Based on the World Health Organization’s International Classification of Functioning, Disability and Health. https://www.who. int/classifications/icf/en/ 5 GFDRR. 2015. “Guide to Developing Disaster Recovery Frameworks: Sendai Conference Version.” World Bank, Washington, DC. https://www.gfdrr.org/sites/default/files/publication/DRF-Guide.pdf 6 Based on United Nations Office for Disaster Risk Reduction terminology. https://www.undrr.org/terminology/underlying- disaster-risk-drivers 3 4 1. Introduction a. Background Long-term physical, mental, intellectual, or sensory impairments, which, in interaction The impacts of disasters and the related with various barriers, may hinder their full recovery and reconstruction needs of and effective participation in society on an individuals and communities vary. Disaster equal basis with others.8 impacts are dependent on pre-existing conditions and underlying risk factors, The CRPD places emphasis on the barriers including access to resources, the availability persons with disabilities face that contribute of social networks and support, and levels of to exclusion from all aspects of life. In participation in community life. The more an comparison to persons without disabilities, individual or group is excluded from society, persons with disabilities frequently experience the greater the disaster impact will be. Simply, lower educational attainment; fewer work disasters affect some people more than others opportunities and lower household incomes; and many of those disproportionately affected higher unmet health needs; and higher are persons with disabilities. household expenditures on transportation and health.9,10 Barriers also contribute to higher An estimated 15 percent of the world’s rates of death and injury in disasters among population have a disability with 100 million persons with disabilities.11 Disasters also people experiencing serious functioning contribute new long-term injuries and increase difficulties.7 A fundamental characteristic disability in populations.12 of disability is diversity, and persons with disabilities represent a broad range of Post-disaster recovery presents the individual lived experiences. This diversity opportunity to “build back better” and to is recognized in the United Nations (UN) reduce the underlying factors that contribute Convention on the Rights of Person with to disproportionate risk. Importantly, Disabilities (CRPD), which describes persons recovery and reconstruction processes that with disabilities as having: actively engage with and include persons with disabilities contribute to building more inclusive and resilient societies for all. 7 World Health Organization and World Bank. 2011. “World Report on Disability.” World Health Organization, Geneva. http:// www. who.int/disabilities/world_report/2011/ report.pdf 8 UN. 2005. “Convention on the Rights of Persons with Disabilities.” Article 1. https://www.un.org/disabilities/documents/ convention/convoptprot-e.pdf 9 World Health Organization and World Bank. 2011. World Report on Disability. World Health Organization, Geneva. http:// www. who.int/disabilities/world_report/2011/ report.pdf 10 Mitra, Sophie, Michael Palmer, Hoolda Kim, Daniel Mont, and Nora Groce. 2017. “Extra Costs of Living with A Disability: A Systematized Review and Agenda for Research.” Disability and Health Journal, 10 (4): 475–84. 11 Fujii, Katsunori. 2015. “The Great East Japan Earthquake and Persons with Disabilities Affected by the Earthquake—Why Is the Mortality Rate so High?” Interim Report on JDF Support Activities and Proposals. Japan Disability Forum, Tokyo. http://www. dinf.ne.jp/doc/english/resource/JDF_201503/1-1-1.html 12 Sudaryo, Mondrasrti K., Besral, Ajeng Tias Endarti, Ronnie Rivany, Revati Phalkey, Michael Marx, and Debarati Guha- Sapir. 2012. “Injury, Disability, and Quality of Life after the 2009 Earthquake in Padang, Indonesia: A Prospective Cohort Study of Adult Survivors.” Global Health Action, 5 (4). https://www.tandfonline.com/doi/full/10.3402/gha. v5i0.11816%40zgha20.2012.5.issue-s4 Disaster impacts are dependent on pre-existing conditions and underlying risk factors, including access to resources. A boy using crutches walking in the Dadaab refugee camp in Somalia. Photo: Shutterstock.com b. Purpose This guidance note provides action-oriented ■ Key principles for disability-inclusive direction for government officials and decision- recovery. makers with responsibility for post-disaster data for the post-disaster needs ■ Disability recovery and reconstruction. The guidance assessment and inclusive recovery. will enable the development of disability- inclusive planning and programming across ■ Enabling policies and legislation for sectors and government. The note is expected disability-inclusive recovery. to be of interest to wider government and ■ Institutional mechanisms for inclusive nongovernment actors, including disabled recovery. persons’ organizations (DPOs), concerned with inclusive recovery. ■ Financing mechanisms. Key considerations and critical information for ■ Implementation arrangements. recovery planning are highlighted in text boxes. A summary and action points are provided at the end of each section. The note is organized around the following topics: 5 6 2. Key principles a. Disability-inclusive recovery as b. Understanding disability opportunity The concept of disability has evolved from Disasters disproportionately affect the poor. being medically focused to an understanding The poorest 20 percent of affected populations that is more socially constructed. Disability account for 11 percent of asset losses in is the result of an individual’s impairment, disasters; however, this same group bears or difficulty functioning, and barriers in 47 percent of losses to well-being.13 The society. Barriers may be attitudinal, such as relationship between poverty and disability is prejudice and stigma; institutional, including bi-directional.14 That is, if you are a person with discriminatory policies and legislation; disabilities, you are more likely to be poor and informational, including limited access if you live in poverty, you are more likely to to information and appropriate means of have a disability. The World Bank and GFDRR communication; and environmental or estimate that quicker and more inclusive physical. recovery could reduce losses to well-being by Barriers affect the lives of individuals with $65 billion a year.15 disabilities differently. For example, persons Post-disaster recovery and reconstruction with intellectual disabilities can experience present the opportunity to build a foundation severe stigma and prejudice.16 As a result, they for strengthened resilience and well- can be hidden in communities and invisible being across communities. Improving the in recovery planning. Levels of functioning accessibility of infrastructure, information, difficulties, such as mobility or vision, differ and communications; ensuring barrier-free between individuals, and persons with urban and land-use planning; widening disabilities may experience one or multiple workforce participation; and improving access functioning difficulties. A disability-inclusive to healthcare and education contribute to recovery process will actively include a range inclusion and, in turn, reduce disaster risk. of lived experiences and the participation of Improved accessibility not only benefits persons diverse groups of persons with disabilities. with disabilities, it also benefits older people, those who are ill or have been injured, pregnant women, and some indigenous and non-native language speakers. 13 Hallegatte, Stephane, Jun Rentschler, and Brian Walsh. 2018. “Building Back Better: Achieving Resilience through Stronger, Faster, and More Inclusive Post-Disaster Recovery.” World Bank, Washington, DC. http://documents.worldbank.org/curated/ en/420321528985115831/Building-back-better-achieving-resilience-through-stronger-faster-and-more-inclusive-post-disaster- reconstruction 14 Banks, Lena Morgon, Hannah Kuper, and Sarah Polack. 2017. “Poverty and Disability in Low- and Middle-Income Countries: A Systematic Review.” PLoS One 12(12). https://journals.plos.org/plosone/article?id=10.1371/journal.pone.0189996 15 Hallegatte, Stephane, Jun Rentschler, and Brian Walsh. 2018. Building Back Better: Achieving Resilience through Stronger, Faster, and More Inclusive Post-Disaster Recovery. “ World Bank, Washington, DC. http://documents.worldbank.org/curated/ en/420321528985115831/Building-back-better-achieving-resilience-through-stronger-faster-and-more-inclusive-post-disaster- reconstruction 16 Ditchman, Nicole, Kristin Kosyluk, Eun-Jeong Lee, and Nev Jones. 2016. “How Stigma Affects the Lives of People with Intellectual Disabilities: An Overview” in Intellectual Disability and Stigma: Stepping Out from the Margins, edited by K. Scior and S. Werner, 31–47. London: Palgrave MacMillan. c. Intersectionalities creating further barriers for persons with disabilities. Addressing barriers during The language of the CRPD places the person recovery and reconstruction requires a before the disability; that is, “persons with holistic approach. This means that barriers disabilities” and not “disabled persons.” The are not addressed in isolation and the CRPD terminology reminds that, for example, aim of removing barriers is clear; that is, women and men with disabilities have different to contribute to closing the gap between lived experiences. Personal factors, including persons with and without disabilities. For gender, age, and indigeneity all affect the example, building a ramp to improve physical way disability is experienced. For example, access at a government office is not enough. women with disabilities may experience a Information in the office needs to be accessible “triple jeopardy” of exclusion resulting from and communicated appropriately. Likewise, the intersection of gender, disability, and staff need to be sensitive to the requirements poverty.17 These jeopardies intersect and further of persons with diverse disabilities. All are limit community participation and access to needed if the services the office provides are opportunities. to be accessible. The CRPD sets out two key Considering intersectionalities between accessibility principles: disability and personal factors, such as gender ■ Reasonable accommodation and age, enable us to look beyond seeing Reasonable accommodation refers to making persons with disabilities as a homogenous appropriate and necessary adjustments group. Recent research notes that a man (accommodations) to meet the access needs of with a lower limb amputation may be individuals with disabilities. Reasonable means accepted as a village official or teacher in without “a disproportionate or undue burden.”19 rural Cambodia; however, it is not clear a Article 5 of the CRPD notes that reasonable woman with disabilities would have the same accommodation is integral to ensuring opportunities.18 In the same community, men nondiscrimination and equality. with intellectual disabilities were reported as subject to pity, with ridicule considered ■ Universal design an acceptable norm. Effective disability- Universal design is designing goods, inclusive recovery considers the barriers environments, programs, and services so that different individuals face and focuses on they can be used equitably by all people. The removing those barriers to improve equality of importance of universal design in recovery opportunity. is highlighted in the Sendai Framework for Disaster Risk Reduction.20 The World d. Accessibility Bank Environmental and Social Framework Disasters disrupt the environment, recommends “universal access” in the design institutions, and socio-economic processes and construction of buildings and 17 Astbury, Jill, and Fareen Walji. 2013. “Triple Jeopardy: Gender-Based Violence and Human Rights Violations Experienced by Women with Disabilities in Cambodia. Research Working Paper1, AusAid, Canberra. https://iwda.org.au/assets/files/20130204_ TripleJeopardyReport.pdf 18 Pers. Coms. Nossal Institute for Global Health, University of Melbourne. Publication forthcoming. 19 UN Convention on the Rights of Persons with Disabilities. Article 2. https://www.un.org/disabilities/documents/convention/ convoptprot-e.pdf 20 UN. 2015. “Sendai Framework for Disaster Risk Reduction 2015-2030.” UN, New York. https://www.preventionweb.net/ files/43291_sendaiframeworkfordrren.pdf 7 8 Box 1. Considerations: DPO engagement Growing awareness of disability inclusion is increasing demand for DPO engagement. These pressures may be amplified in a post-disaster context. It is essential that persons with disabilities, and their representative organizations, are consulted and involved in all stages of recovery. However, disability inclusion is a responsibility shared by all recovery stakeholders. Accountability for disability inclusion must not be placed on the shoulders of DPOs alone. During a recovery process, DPOs may be operating outside their normal area of work. The ways in which DPOs can be resourced to contribute to recovery and reconstruction require consideration. The role of DPOs in recovery and reconstruction will depend on available DPO capacities and capabilities. DPO roles may include facilitation, training of recovery personnel, technical guidance and support, monitoring and accessibility audits, and direct implementation of recovery programming. infrastructure as “unimpeded access for people identified by national-level DPO networks or of all ages and abilities in different situations departments of social affairs. Where DPOs are and under various circumstances.”21 not present in a working area, persons with disabilities should be engaged in the recovery e. DPOs process with consideration to diversity, DPOs are representative organizations of including gender, age, and disability type. persons with disabilities led by persons with disabilities. DPOs vary in terms of membership Summary and action points and may represent a particular group of persons with disabilities or persons with n Post-disaster recovery provides the disabilities in general. The focus areas of DPOs opportunity to create more inclusive and vary, for example some are exclusively advocacy resilient societies. organizations while others may also deliver n Lived experiences of disability are diverse services. While DPOs may be established at and will vary according to type(s) of the national level, many DPOs are small and disabilities, gender, age, indigeneity, and locally focused. DPOs can ensure a disability household income. perspective in recovery and reconstruction and n Disability-inclusiverecovery is provide essential disability expertise. DPOs primarily concerned with creating equal should be engaged with as a priority through opportunities for persons with disabilities the recovery process (see box 1). through the removal of barriers. DPOs may not exist in all recovery locations. n Barriersare not just physical and should Where DPOs do exist, they are unlikely to be addressed holistically. work directly in all affected communities. Not n DPOs are key allies for ensuring all DPOs represent all persons with disabilities disability inclusion and should be and multiple DPOs should be engaged in the engaged throughout the recovery and recovery and reconstruction process to ensure reconstruction process. diverse representation. Local DPOs may be 21 World Bank. 2017. “The World Bank Environmental and Social Framework,” page 46 World Bank, Washington DC. pubdocs. worldbank.org/en/837721522762050108/Environmental-and-Social-Framework.pdf 3. Data for inclusive post-disaster needs assessment and recovery a. Disability data and sources If disability data has not been collected in the PDNA, a rapid survey may need to be While global estimates suggest disability conducted to establish a baseline. National or prevalence to be 15 percent, national local, statistical offices may be appointed as disability figures vary and are often far the lead agency and should be appropriately lower. For example, prevalence figures resourced. Departments of health and social for Asia and the Pacific vary between 24 affairs may have access to community workers percent for New Zealand to 1.1 percent for that can assist in data collection. Data on the Brunei Darussalam.22 This variation is due number of persons with disabilities may also be to differences in how disability is defined available from existing sources; however, each and counted. Direct questions, such as “do has limitations. you have a disability?”, are frequently used in ■ Population and household surveys national surveys and underreport prevalence due to stigma associated with disability. The Increasingly, disability prevalence data is use of medical categorizations or impairment collected in population and household surveys types may also underrepresent the extent of by national statistical offices (NSOs). Disability disability.23 surveys may also have been conducted by NSOs, local statistical offices, or other agencies. Despite recognition of the need for sex, age, Disability surveys include the World Health and disability disaggregated data for effective Organization’s Model Disability Survey or recovery planning and delivery,24 data on Disability Assessment Schedule 2.0.25 ,26 The UN disability is neither routinely collected in Children’s Fund (UNICEF) has also included post-disaster needs assessments (PDNAs) nor questions on disability in Multiple Indicator incorporated in disaster recovery frameworks Cluster Surveys in some countries.27 (DRFs). There are two key reasons why data on Data from population and household surveys persons with disabilities is required: can provide information on prevalence in i. To understand impact, recovery, and an affected area, but usually will not identify reconstruction requirements, we need to individuals or households for service delivery know how many persons with disabilities purposes. there are in the affected area and their needs. ■ Administrative data ii. To ensure services are equitably delivered Administrative data is used to manage and during recovery and reconstruction, we need deliver a program or service. Disability to know where persons with disabilities are. data may be stored in health or education 22 UNESCAP. 2019. “Disability at a Glance 2019: Investing in Accessibility in Asia and the Pacific.” Bangkok, United Nations Economic and Social Commission for Asia and the Pacific. https://www.unescap.org/publications/disability-glance-2019 23 Berghs, Maria. 2015. “Radicalising ‘Disability’ in Conflict and Post-Conflict Situations.” Disability & Society 30(5): 743–58. 24 Robles, Cindy Patricia Quijada, and Melody Benvidez. 2018. “Gender Equality and Women’s Empowerment in Disaster Recovery: Disaster Recovery Guidance Note.” GFDRR, Washington, DC. https://www.gfdrr.org/sites/default/files/publication/ gender-equality-disaster-recovery.PDF 25 World Health Organization Model Disability Survey. https://www.who.int/disabilities/data/mds/en/ 26 World Health Organization Disability Assessment Schedule 2.0. https://www.who.int/classifications/icf/whodasii/en/ 27 UNICEF Multiple Indicator Cluster Surveys. https://mics.unicef.org/ 9 10 management information systems or be b. Measurement tools: the available for persons with disabilities receiving Washington Group Questions disability benefits or social insurance. This data may contain identifiable information, The Washington Group on Disability Statistics including addresses. However, there may be was established in 2001 to improve the legal restrictions and privacy considerations quality and comparability of disability data on what data can be shared. Administrative collected in national censuses and surveys.28 data only includes individuals with disabilities The Washington Group has developed several who are accessing a service and not the wider question sets. These include an extended set population of persons with disabilities. with additional questions, including those that can improve the identification of persons ■ Key informants with intellectual disabilities, and a module on Due to stigma and low awareness, persons with child functioning developed with UNICEF.29,30 disabilities may be hidden by their families The Washington Group short set of questions and not identified in traditional household (see box 2) is designed to be simple to use and surveys. Trusted key informants in affected follow a functional approach to disability based communities may be able to identify persons with on the difficulties a person may experience disabilities. Key informants may include teachers, conducting everyday activities. health workers, women’s groups, and DPO The Inter-Agency Standing Committee representatives. Due to the stigma associated with Guidelines on the Inclusion of Persons disability, seeking information on disability from with Disabilities in Humanitarian Action community leaders can result in underreporting. recommend use of the Washington Group Data collected from community leaders, therefore, questions in response and recovery efforts.31 should be cross-checked with other sources. Where the importance of disability data is DPOs may have membership data and are likely currently noted in DRFs, such as Sri Lanka’s to be able to facilitate identification of persons 2017 flood and landslide DRF, no guidance with disabilities in affected areas. However, it on how to collect disability data is provided.32 should not be assumed that DPO membership However, there are an increasing number data will include all persons with disabilities of guidance resources available from the in an area. Including DPOs in disability data Washington Group’s website.33 Detailed collection and the identification of persons with guidance is also contained in the World Bank’s disabilities is increasingly recognized as good guide to Disability Measurement in Household practice. Technical support and appropriate Surveys, 2020.34 A summary of considerations training should be made available to any DPOs for using the Washington Group questions is engaged in data collection. provided in box 3. 28 See: http://www.washingtongroup-disability.com/about/history/#note-808-1 29 Washington Group Extended Set, see: http://www.washingtongroup-disability.com/washington-group-question-sets/extended- set-of-disability-questions/ 30 UNICEF Module on Child Functioning, see: https://data.unicef.org/resources/module-child-functioning/ 31 Inter-Agency Standing Committee. 2019. “Guidelines: Inclusion of Persons with Disabilities in Humanitarian Action.” Inter-Agency Standing Committee, New York. https://interagencystandingcommittee.org/iasc-task-team-inclusion-persons- disabilities-humanitarian-action/documents/iasc-guidelines 32 Government of Sri Lanka. 2017. “Post-Disaster Recovery Plan: Sri Lanka Floods and Landslides.” May. https://reliefweb.int/sites/ reliefweb.int/files/resources/Sri%20lanka%20Recovery%20plan.pdf 33 See: http://www.washingtongroup-disability.com/ 34 Tiberti, Marco, and Valentina Costa. 2020. “Disability Measurement in Household Surveys: A Guidebook for Designing Household Survey Questionnaires.” World Bank, Washington DC. http://surveys.worldbank.org/publications/disability- measurement-household-surveys-guidebook-designing-household-survey Box 2. Key information: the Washington Group Short Set The Washington Group short set of questions ■ Do you have difficulty (with self-care such as) on disability washing all over or dressing? ■ Do ■ Using your usual (customary) language, do you you have difficulty seeing, even if wearing glasses? have difficulty communicating, for example ■ Do you have difficulty hearing, even if using a understanding or being understood? hearing aid? Responses to the above questions ■ Do you have difficulty walking or climbing ■ No difficulty steps? ■ Yes, some difficulty ■ Do you have difficulty remembering or concen- ■ Yes, a lot of difficulty trating? ■ Cannot do at all Source: The Washington Group on Disability Statistics, 2016. Box 3. Considerations: use of the Washington Group questions ■ The Washington Group questions are identify more persons with disabilities if the not designed to identify all persons with objective is broader inclusion in recovery disabilities. The identification of persons with programming. disabilities should be ongoing throughout the ■ It is recommended to use all six Short Set recovery process. questions. In a resource-poor humanitarian ■ The Washington Group Short Set will identify situation, such as in a rapid PDNA, there some persons with intellectual disabilities. may be justification for using the first four The extended set of questions has additional questions of the Short Set as a second-best questions to improve the identification of option. However, this will result in missing persons with intellectual disabilities or some persons with disabilities and should be cognitive difficulties. The Extended Set is transparently reported. available from the Washington Group website. ■ Before collecting data, ensure resources are ■ The Washington Group questions do not available to analyze it. identify impairments or health conditions. ■ Plan sufficient time to train data collectors. The However, the questions can be used as a screening tool for referral for medical questions are designed to be simple, but the assessment to ensure specific health needs are underlying functioning approach to disability met. can be unfamiliar. Data collectors need to be ■ The Washington Group recommends “a lot of comfortable not mentioning “disability” before difficulty” as the cut-off for identifying persons asking the questions. Any direct reference to with disabilities in censuses and surveys. disability before asking the Washington Group Including “some difficulty” responses may questions can skew findings. 11 12 c. Data on barriers and accessibility Summary and action points Tools, such as the Washington Group questions, n Howdisability is measured varies and can help collect sex, age, and disability results in a broad range of prevalence disaggregated data at the individual level, but figures. In the majority of cases, do not provide a complete understanding disability prevalence remains significantly of disability. Disability data in recovery and underestimated. reconstruction must also include data on situations present the n Post-disaster barriers and improved accessibility. Efforts to opportunity to improve the availability of remove barriers to inclusion should also be current and future disability data. documented and monitored (also see box 8). n Suitabledata to assess the impacts on, Crucially, barriers must be actively removed and recovery needs of, persons with regardless of the availability of prevalence data. disabilities may not exist. Disability data should be collected in the PDNA. If Monitoring improved accessibility can not, a rapid disability survey will need include accessibility audits of buildings, to be resourced and conducted. Despite programs, and communications (see section limitations for use in recovery, existing 7.c). Retrospective reviews can be used to sources of disability data may need to be form an accessibility baseline by identifying used. barriers prior to the disaster event. This can aid n Usethe Washington Group Short Set planning and the prioritization of interventions to collect disability data and monitor to improve accessibility during recovery disability inclusion in recovery and and reconstruction. To ensure relevance, reconstruction. the identification of barriers should be in data on individuals with n Collecting collaboration with persons with disabilities and disabilities is not enough. Data on barriers their representative organizations. The recovery and accessibility improvements also process should also improve the collection and need to be collected to understand and use of disability data more broadly (see box 4). assess disability inclusion in recovery and reconstruction. Box 4. Considerations: future disability data preparedness Collecting data on persons with disabilities recovery processes; and knowing who may in post-disaster situations is an exercise in require assistance, such as evacuating, in future identifying who survived and, possibly, who was situations of risk. injured. Having robust data on disability prior To use pre-placed data, strategies that address to a disaster, or pre-placed, can contribute to privacy and confidentiality concerns need to preventing injury and deaths and minimizing be considered. This may include voluntary disaster impacts. mechanisms where DPOs act as custodians of The recovery process should contribute to information about persons with disabilities. improving the collection and future application With agreement, information about the location of disability data. This includes better of persons with disabilities may then be shared understanding disability prevalence; identifying with first responders. persons with disabilities for participation in 4. Enabling policies and legislation for disability-inclusive recovery Legislation and policies establish the necessary accommodations” for, including with the enabling environment for disability-inclusive participation of, persons with disabilities recovery and reconstruction. A suitable in disasters, post-disaster recovery, and enabling environment facilitates the tasking, reconstruction.36 prioritization, and allocation of resources Pre-dating Pakistan’s 2020 Disability Rights necessary for inclusive recovery (see box 5). Act, the National Disaster Management Awareness of the need for disability inclusion Authority published National Policy Guidelines is increasing, but is not yet fully reflected in on Vulnerable Groups in Disasters in 2014. national policies. Although 181 countries had The guidelines emphasize the inclusion of ratified the CRPD by early 2020, there are persons with disabilities and of enabling “these few examples of specific polices addressing communities to rebuild their lives in a holistic disability-inclusive recovery.35 However, there and integrated manner.”37 The guidelines also are examples of national disability legislation note the imperative of addressing inclusion as a that address the inclusion of persons with crosscutting issue. The drafting of Bangladesh’s disabilities in disaster risk management and National Plan for Disaster Management 2016– recovery. Indonesia’s 2016 disability law 20 included consultative stakeholder workshops requires national and local government to on disability-inclusive disaster management.38 ensure “proper and accessible The plan recognizes social inclusion as Box 5. Key information: frameworks and standards for disability-inclusive recovery ■ Convention on the Rights of Persons with ■ Charter on Inclusion of Persons with Disabilities, 2006. Article 11: Situations of risk Disabilities in Humanitarian Action, 2016. and humanitarian emergencies. ■ Minimum Economic Recovery Standards, 2017. ■ Incheon Strategy to “Make the Right Real” ■ Humanitarian Inclusion Standards for Older for Persons with Disabilities in Asia and People and Persons with Disabilities, 2018. the Pacific, 2012. Goal 7: Ensure disability- ■ Inter-Agency Standing Committee Guidelines inclusive disaster risk reduction and on the Inclusion of Persons with Disabilities in management. Humanitarian Response, 2019. ■ Sendai Framework for Disaster Risk Reduction 2015–30. 35 United Nations Treaty Collection. Accessed 13 April 2020. https://treaties.un.org/Pages/ViewDetails.aspx?src=TREATY&mtdsg_ no=IV-15&chapter=4&clang=_en 36 Government of Indonesia. 2016. “Undang-undang Republik Indonesia Nomor 8 Tahun 2016 tentang penyandang disabilitas.” Government of Indonesia, Jakarta. http://www.dpr.go.id/dokjdih/document/uu/1667.pdf 37 Government of Pakistan. 2014. “National Policy Guidelines on Vulnerable Groups in Disasters.” National Disaster Management Authority, Islamabad. p.20 https://reliefweb.int/sites/reliefweb.int/files/resources/gcc_policy.pdf 38 Government of Bangladesh. 2017. “National Plan for Disaster Management 2016-2020.” Ministry of Disaster Management and Relief, Dhaka. https://modmr.portal.gov.bd/sites/default/files/files/modmr.portal.gov.bd/policies/0a654dce_9456_46ad_ b5c4_15ddfd8c4c0d/NPDM(2016-2020)%20-Final.pdf 13 14 A white cane on tactile ground surface indicators. Photo: Shutterstock.com. foundational to building resilience and that Summary and action points a “whole of society” approach should be employed across recovery. legislative and policy environment n The can enable, or hinder, disability-inclusive Disability-inclusive disaster management recovery and reconstruction. policies and strategies lay the foundation for disability legislation facilitates n Suitable inclusive recovery and reconstruction and the prioritization and allocation of the development of an inclusive DRF. Policies resources to disability-inclusive recovery. and strategies will either supplement existing n Some countries may have disability disability legislation or guide inclusive recovery legislation that addresses inclusion in in the absence of appropriate legislation. disaster risk management and recovery or Where national legislation and policies specific polices on disability inclusion in addressing disability inclusion do not exist, or disaster risk management. are incomplete, international frameworks and majority of counties have ratified the n The standards can be referred to. CRPD, which, alongside other international frameworks and standards, can be used to guide disability inclusive recovery and reconstruction. 5. Institutional mechanisms for disability inclusive recovery National governments are ultimately established to provide inputs to the Earthquake responsible for ensuring disability inclusion Recovery Minister. Christchurch City Council in recovery. Guidance on deciding the lead also benefits from a standing Disability agency for recovery and reconstruction is Advisory Group of persons with disabilities and provided in the Guide to Developing Disaster family members to ensure engagement between Recovery Frameworks, 2015.39 In nondisaster the council and the wider disability community. situations, responsibility for disability lies An alternative mechanism has been established across ministries, including health, social in Indonesia. In 2014, the Head of the affairs, and education. Some countries, such Indonesian National Disaster Management as the Philippines, have a disability affairs Agency issued a regulation on disability office to coordinate disability inclusion across and disaster management.41 The regulation government. A similar model may be used in instructs local disaster management agencies recovery and reconstruction to support the to establish disability service units. In Central lead recovery agency. Any such coordination Java, disability service units have been mechanism must not divert attention away established at the provincial and district levels from the shared responsibility all agencies with accompanying guidance developed in and recovery stakeholders have for disability collaboration with persons with disabilities. inclusion. The guidance tasks disability service units with A number of mechanisms have been established coordinating the participation of DPOs within by local and national governments to ensure recovery and reconstruction processes.42 In this disability inclusion in recovery. Persons with role, the disability service units are an integral disabilities were actively involved in recovery part of the provincial disaster management following the Christchurch earthquake in agency. 2011.40 The Earthquake Disability Leadership Following the 2015 Nepal earthquake, a Group was established and advocated for a National Reconstruction Authority (NRA) was concerted focus on improving accessibility established with a steering committee chaired during reconstruction. This included legislative by the prime minister. 43 The NRA developed proposals to ensure all commercial and public Nepal’s Post-Disaster Recovery Framework buildings were accessible. A community with broad stakeholder engagement, including forum, including persons with disabilities, was with DPOs. The framework prioritizes 39 World Bank. 2015. “Guide to Developing Disaster Recovery Frameworks: Sendai Conference Version.” World Bank, Washington, DC. https://www.gfdrr.org/sites/default/files/publication/DRF-Guide.pdf 40 Hay, Kathryn and Katheryn Margaret Pascoe. 2018. “Disabled People and Disaster Management in New Zealand: Examining Online Media Messages.” Disability & Society 34(2). Also see: Disability Advisory Group: https://ccc.govt.nz/culture-and-community/inclusive-christchurch/disability-advisory- group/ 41 Government of Indonesia. 2014. Peraturan Kepala Badan Nasional Penanggulangan Bencana No 14 Tahun 2014 Tentang Penanganan, Perlindungan Dan Partisipasi Penyandang Disabilitas Dalam Penanggulangan Bencana. BNPB, Jakarta. https:// bnpb.go.id/uploads/regulation/1085/Perka%20No%2014%20Tahun%202014.pdf 42 Government of Central Java. 2018. “Panduan Layanan Inklusi Disbalitas Penanggulangan Bencana Provinsi Jawa Tengah.” BPBD, Semarang. 43 Government of Nepal. 2016. “Post-Disaster Recovery Framework 2016-2020.” National Reconstruction Authority, Kathmandu. https://www.undp.org/content/dam/nepal/docs/reports/PDRF%20Report_FINAL10May.pdf 15 16 Box 6. Considerations: lead recovery agency tasks to ensure disability inclusion Resource identification special education should be appointed to the ■ Identify and map sectoral disability expertise education cluster. The focal points should within government. This may include special report to the disability affairs lead. and inclusive education; social protection; ■ Establish a coordination mechanism, group, health and rehabilitation; or accessible infra- or forum to ensure the perspectives of persons structure. with disabilities are included and communi- ■ Identify and collate existing government cated. policies and guidelines relevant to disability Standard setting inclusion. This may include building codes and ■ Ensure existing standards, such as those for accessibility standards or workplace regula- accessibility in building codes, are applied tions on anti-discrimination. across the recovery and reconstruction pro- ■ Identify gaps in resources with respect to dis- cess. Where sectoral guidelines do not exist, ability expertise and government policies and interim guidance and standards should be guidelines. drafted with DPOs. Coordination Monitoring and compliance ■ Identify a lead agency for coordinating disabil- ■ Task the disability affairs lead and focal points ity affairs in recovery and reconstruction. This to monitor disability inclusion across the re- agency should be endorsed and resourced at covery and reconstruction process. the ministerial level, or higher, to ensure cred- ■ Monitoring should be conducted with persons ibility and effectiveness. with disabilities, such as DPO representatives. ■ Allocate a disability focal point to each sector ■ Ensure the disability affairs lead has the au- or thematic area within the recovery process. thority and procedures to enforce standards For example, a focal point from the Ministry for disability inclusion. of Education with experience in inclusive or assistance for at-risk groups with specific Summary and action points reference to persons with disabilities in reconstruction, employment, training, and and designate an agency with n Identify health care support. Social inclusion is responsibility for coordinating and emphasized, as is the need for mechanisms to overseeing disability affairs in recovery and reconstruction. This agency should be ensure access to recovery services for persons endorsed at the highest level and provide with disabilities and other at-risk groups guidance and support to the overall lead in remote areas via the establishment of recovery agency. community-based organizations. disability focal points across line n Establish Box 6 provides detailed action points for ministries with responsibility for reporting ensuring disability inclusion in recovery. and communicating between ministries Overall responsibility for delivering on these and the disability affairs lead. action points lies with the lead recovery agency. n Ensurestandards for disability inclusion in recovery and reconstruction are established and communicated. mechanisms to ensure the n Establish participation of persons with disabilities in the planning and designing of recovery and reconstruction processes. Flood waters on a parking lot marked with the International Symbol of Access. Photo: Shutterstock. 6. Financing mechanisms The inclusion of persons with disabilities importance of targeted financing for persons in recovery and reconstruction processes with disabilities during recovery.44 The PDNA can increase workforce participation and recognizes the disproportionate impact of the household incomes, generate tax revenue, cyclone on persons with disabilities and their and reduce social welfare dependency. limited ability to self-recover. As such, the Improving accessibility also “future proofs” PDNA recommends the strategic allocation investments by ensuring infrastructure of government and donor funds to groups remains fit for purpose over time. This is that cannot quickly self-recover alongside particularly important for countries with the requirement for at-risk groups, including aging populations or increasing incidences of persons with disabilities, to be included in noncommunicable diseases that will intensify recovery- and clean-up-related employment. demand for accessible infrastructure in the Two-year waivers of fees, including school and future. medical fees and taxes, are also recommended as well as the provision of micro-grants and The Government of Vanuatu’s PDNA following training to restore livelihoods and incomes. Tropical Cyclone Pam in 2015 notes the 44 Government of Vanuatu. 2015. “Vanuatu Post-Disaster Needs Assessment Tropical Cyclone Pam, March 2015.” Government of Vanuatu, Port Vila. https://www.gfdrr.org/sites/default/files/publication/pda-2015-vanuatu.pdf 17 18 Box 7. Considerations: budgeting for disability-inclusive recovery Informing recovery and reconstruction financing ■ Apply principles of universal design and ensure ■ Budget for inclusion of the Washington Group accessibility from the outset to be far more questions in the PDNA and for the analysis of cost-effective than retrofitting accessibility. findings. Budgeting to ensure DPO representation ■ Budget for training enumerators on how to use ■ Ensure DPOs are financially resourced to con- the Washington Group questions, including how tribute to the recovery process and that their disability is conceptualized in the questions. professional contributions are recognized. ■ Budget for supplementary data collection to Disability-inclusive procurement policy identify barriers and accessibility requirements. ■ Prioritize service providers, contractors, or sim- Financing accessibility ilar vendors managed by, or employing, persons ■ Set standards and ensure disability inclusion with disabilities. is budgeted across all sectors of recovery by all ■ Ensure all providers of goods and services con- stakeholders (see box 6). tributing to the recovery process have a disabil- ■ Prioritize households with limited means to ity-inclusion policy in place. self-recover, including those with household ■ Ensure all suppliers and service providers fol- members with disabilities. low the principles of universal design. ■ Target financial support toward improving equality of opportunity between persons with disabilities and persons without disabilities. The need for rapid disbursement of recovery Summary and action points funds means that standards for disability- inclusive budgeting and procurement n Investments in disability-inclusive need to be set quickly. Experience shows recovery can bring long-term benefits that if disability inclusion is not mandated by ensuring infrastructure and services remain fit for purpose over time. in recovery and reconstruction budgets, improvements to accessibility will not be n Targetfinancial support and related prioritized and opportunities for building interventions to households and groups back better will be missed. Where possible, that have limited ability to self-recover, budgeting and procurement should be guided including households with persons with disabilities. by existing national policies and regulations on accessibility, such as building codes and n Setstandards for disability inclusion accessibility-related legislation. Coordination in budgeting and procurement quickly is required to ensure financial investments and and ensure they are applied across the contributions from varied stakeholders meet recovery and reconstruction process. disability-inclusion objectives, such as across n Requirefull consideration of accessibility, government (on-budget) funds, including including the principles of universal contingency funds, and nongovernmental design, as a condition of financial (off-budget) sources. Key considerations are contributions and assistance by all outlined in box 7. recovery actors. 7. Implementation arrangements a. Twin-track approach b. Barriers, design considerations, and diverse needs While a twin-track approach is not specific to disability inclusion, the method is recognized As has been emphasized, the social as critical for ensuring disability inclusion in understanding of disability focuses attention recovery programs and services.45 The twin- on the removal of barriers to equalize track approach should be integrated across opportunities between persons with and recovery and reconstruction interventions. The without disabilities. Directing attention two components, or tracks, of the tactic are: to the removal of barriers in recovery and reconstruction provides benefits to a broad ■ Mainstreaming range of persons with disabilities. While Mainstreaming is the removal of barriers to reasonable accommodations (see section 2.d) allow persons with disabilities to participate will still be required to ensure all persons in, and benefit from, all aspects of recovery with disabilities can participate in and benefit and reconstruction. That is, all mainstream from recovery, this approach is well-suited recovery programs and services should be to complex recovery and reconstruction accessible to, and usable by, persons with environments. disabilities. An alternative approach would be to begin ■ Targeting with an individual’s impairment, or disability, Targeting refers to providing interventions as a basis for guiding recovery planning. This and investments specifically for persons alternative is complex for the nonspecialist with disabilities. Targeted interventions may and can be difficult to apply to identifying and include empowering persons with disabilities addressing diverse needs. While in no way to participate in the recovery process or downplaying the importance of addressing providing assistive technologies through disability-specific needs, this note emphasizes disability-specific programs. Mainstreaming the removal of barriers as central to disability- alone is insufficient to ensure no one is left inclusive recovery and reconstruction. The behind. following table provides examples of how this Mainstreaming includes ensuring universal approach may be applied to benefit individuals design principles are followed and accessibility with a range of functioning difficulties. is a requirement in the reconstruction of The functional difficulty categories in the buildings and infrastructure. A related targeted final column of table 1 are based on the intervention would be training and equipping Washington Group Short Set (see box 2) and DPOs to monitor and ensure compliance with are not exhaustive. The examples provided accessibility standards and related building are illustrative and are not a substitute for codes. consultation with DPOs and persons with disabilities. 45 Inter-Agency Standing Committee. 2019. “Guidelines: Inclusion of Persons with Disabilities in Humanitarian Action.” Inter-Agency Standing Committee, New York. https://interagencystandingcommittee.org/iasc-task-team-inclusion-persons- disabilities-humanitarian-action/documents/iasc-guidelines 19 20 Table 1. Barriers, design considerations, and functional difficulties. Functional Barriers Build back better priority Design considerations difficulty • Ramps and handrails. • Width of doors and entry ways. • Floor space and positioning in toilets and bathrooms. Public spaces, • Position of switches, alarms, and handles. • Mobility walkways, • Height of service counters and workspaces. • Upper body/fine transportation, and • Fire lifts and elevators in high rise buildings. motor buildings, including • Stairway evacuation devices. • Seeing internal rooms • International Organization for Standardization (ISO) Environmental 21542:2011 Building construction—Accessibility and usability are accessible and navigable. Ensure of the built environment https://www.iso.org/standard/50498. barrier-free evacuation html. in emergency • Guiding blocks. • Seeing situations. • Global positioning system and waypoint technologies. • Cognitive • Digital signage. • Workspaces and education facilities equipped with adapted • All tools and accessible systems and processes. • Braille. • Large print. • Seeing • Audio. • Text to speech. Information and • Closed captioning or sign language interpretation across communications, television, video, and related media. • Hearing including early warning • Visual media. systems, are delivered • Text messaging services. Information / in accessible formats. • Plain language. Communication • Visual media. • Cognitive • Digital and interactive technologies. • Picture-based communication boards. • Communication • Digital applications and devices. Websites are accessible • IW3C Web Accessibility Initiative (ISO/IEC 40500:2012). Web • Seeing and in line with Content Accessibility Guidelines (WCAG) 2.1. https://www. • Hearing international standards. w3.org/TR/WCAG21/ • Cognitive • Communication Disability inclusion is • Existing regulations, such as accessibility and building codes, are enforced. institutionalized across Institutional • New standards and guidance are developed as required. • All government, sectors, • Disability inclusion is budgeted and resourced as an integral and business. part of building back better. Public officials and • Guidelines and standards on disability etiquette. private sector service • Trainings by DPOs. Attitudinal • Increase interaction with persons with disabilities at all levels. • All providers are disability aware. c. Monitoring and evaluation enabling environment for disability-inclusive recovery and reconstruction also require With commitments to leave no one behind, monitoring. It is these systematic changes that there is a need for disaggregated disability data enable inclusive, resilient, and sustainable for monitoring and reporting progress against societies. Disability-inclusive recovery and the Sustainable Development Goals and related reconstruction presents the opportunity to do frameworks, such as the Sendai Framework. just this. The Washington Group questions are widely recommended by disability stakeholders Summary and action points for this purpose.46 The inclusion of the n Apply a twin-track approach that invests Washington Group questions in monitoring in disability inclusion in mainstream and evaluating recovery processes aligns with recovery programming and disability- broader disability data collection efforts and specific interventions. can contribute to improved disability data n Focus disability-inclusive recovery and collection over time. However, the Washington reconstruction around the removal of Group questions alone are insufficient for barriers to benefit as wide a range of measuring disability inclusion. persons with disabilities as possible. At Washington Group data should be combined the same time, do not overlook specific with data on improved accessibility and the individual needs and the importance of reasonable accommodation. extent to which barriers have been reduced or removed (see box 8). Data on both individual n Persons with disabilities are best placed participation by persons with disabilities and to evaluate whether recovery processes on improved accessibility is required to fully are inclusive or not. evaluate efforts to build back better. n Do not lose sight of the overall aim of disability-inclusive recovery. That is, to Further, disability inclusion requires changes enable equality of opportunities and to in systems and structures. The institutional build resilience for all. and policy changes required to form an 46 International Disability Alliance. 2017. “Joint Statement by the Disability Sector: Disability Data Disaggregation.” International Disability Alliance, Ottawa. http://www.internationaldisabilityalliance.org/data-joint-statement-march2017 Box 8. Considerations: budgeting for disability-inclusive recovery ■ Number of public buildings and workplaces ■ Number of recovery-related television broad- reconstructed with improved accessibility. casts including sign language and closed cap- ■ Number of officials completing disabili- tioning. ty-awareness training. ■ Number of recovery-related forums including ■ Number of mixed media recovery messages persons with disabilities. communicated. ■ Number of policies and standards revised or ■ Quality and comprehensibility of recovery developed to ensure disability inclusion in messages communicated. recovery. 21 Overview The Process Note for Developing Disaster Recovery Frameworks is part of GFDRR’s Disaster Recovery Guidance Series. This Note builds on GFDRR’s Guide to Developing Disaster Recovery Frameworks. It provides advice to senior government officials who face the challenge of mobilizing a recovery effort after a major disaster. It explains the key decisions related to recovery policy, planning, financing, and implementation that contribute to an effective and efficient recovery process. The Process Note reflects the World Bank’s extensive experience in helping governments plan and execute post-disaster recovery programs. For more information on implementing recovery programs, please visit the GFDRR Recovery Hub: https://www.gfdrr.org/recovery-hub The Global Facility for Disaster Reduction and Recovery (GFDRR) is a global partnership that helps developing countries better understand and reduce their vulnerabilities to natural hazards and adapt to climate change. Working with over 400 local, national, regional, and international partners, GFDRR provides grant financing, technical assistance, training and knowledge sharing activities to mainstream disaster and climate risk management in policies and strategies. Managed by the World Bank, GFDRR is supported by 34 countries and 9 international organizations.