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DISASTER PLANNING FOR INDIVIDUALS WITHIN THE HOMELESS POPULATION
By BowenBen
Roanoke EmergencyManagementServices
Cityof Roanoke

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ACKNOWLEDGEMENTS
Special thanks to the following individuals for their assistance and guidance:
Kyle Edgell
Artist and Humor Professional
Association for Applied Therapeutic Humor
International Society of Caricature Artists
Marci Stone
Coordinator
City of Roanoke Emergency Management
Services
Anders Sylvester-Johnson
Director of Programs
Rescue Mission
Susan Trout, MSW
Coordinated Entry Supervisor
Central Intake – One Door
Carol Tuning, BSW, MALS
Human Services Administrator
Chair, Blue Ridge Continuum of Care
All material in this document is available to the public and may be used and reprinted without
special permission. However, citation would be appreciated. Suggested citation:
Ben, B. (2016). Disaster Planning for Individuals within the Homeless Population. Roanoke:
Emergency Management Services.
Disclaimer
Any opinions communicated within this document is strictly that of the author’s, not necessarily
the views of any organization acknowledged above. This document will serve an informational
purpose more for the homeless organizations and population to prepare and respond to a crisis or
any influxes.
Emergency Management Services (EMS)
713 3rd Street SW
Roanoke, Virginia 24016
phone: 540-853-2426
Web site: http://www.roanokeva.gov/639/Emergency-Management

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Table of Contents
Executive Summary……………………………………………………………………………….4
Defining Homeless Population……………………………………………………………………5
Pre- and Post-Disaster Planning…………………………………………………………………..6
Shelters & Programs………………………………………………………………………………8
Notes………………..……………………………………………………………………………11
References & Sources……………………………………………………………………………12

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EXECUTIVE SUMMARY
______________________________________________________________________________
The homeless population is often disregarded in local and state emergency management plans
because of their inaccessibility to residency and specific resources that can inform them of a
disaster occurrence and what to do in a crisis. When faced with troubled times, their specific
needs are usually ignored or paired up with the general population’s and requires prior
knowledge of where to go for health, food, water, and shelter needs. However, there are specific
concerns that are only applicable to the homeless population which are not addressed in most
contingency plans. The City of Roanoke Emergency Management’s main goal is “to aid the
community in mitigating, preparing for, responding to, recovering from natural and man-made
emergencies and disasters that could affect the citizens, businesses and visitors of the City of
Roanoke”.1 Each category of citizens has its own response to a disaster and grouping up the
homeless needs with other individuals draws away valuable assistance from their respective
groups.
The circumstances in which people become homeless can vary anywhere from domestic to
community violence. However, the main reason people experience homelessness is because they
cannot find housing they can afford. It’s because of this situation that homeless people are more
vulnerable and require aid with even the simplest of needs after a disaster. Issues this population
can face include:
 Personal preparation
 Communication
 Transportation and evacuation
 Basic necessities (health, food, shelter)
Failing to explicitly include homelessness in specifications has resulted in unintended
consequences where they are denied services. The City of Roanoke contains many local shelters
and a Homeless Assistance Team (HAT) to address the issues above and continually improve
upon them. The importance of having preparation, evacuation and operation plans are a
necessity. Assistance shelters should also consider obtaining backup generators and a supply of
basic needs items to utilize during disasters.
Emergency Management Services is a public, government entity for the City of Roanoke that
“maintains the city’s Emergency Operations Center, is an active partner with the Roanoke Valley
Local Emergency Planning Committee and participates in regular exercises to test and
continuously revise the city’s Emergency Operations Plan to insure a state of constant
readiness”.2 In order to meet the objectives and goals set by the organization, it posts news and
communicates through the city’s website or through social media platforms such as Facebook
and Twitter. In addition, there are many quick links accessible on the web page in regards to
other organizations and response, but none regarding specific homelessness assistance. Moving
forward, the aim of this document serves to open a forum between Emergency Management and
local shelters and homeless human service agencies with the preparation of disaster preparedness
plans. The situations that can affect not just the homeless population, but the general population
includes:
 Power outages greater than 12 hours

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 Ice Storms
 Mass Acts of Violence
 Flooding
 Hazardous Materials with more than 5 patients
 Bomb Threats
 Severe Thunderstorm
 Snowfall greater than 2 inches
 Mass casualty trauma
 Wind Events
 Temperature extremes
The events that are most prone to effect the homeless population to are the ones that involve
weather. People who are homeless have limited access to Internet and television. To
communicate emergency information to these people, homeless service providers should be
included in emergency notification systems. Service providers can quickly communicate the
emergency situation to those near their facilities and deploy outreach teams to notify the
homeless population that are dispersed throughout the community.
The community is also encouraged to consider the living needs of homeless population after a
disaster. Many areas inhabited by people without homes may not be suitable for living after a
disaster. Disasters pose opportunities for communities to acquire federal funding for
improvements or more service providers.
This plan can also support the county and can be an annex.
 The City of Roanoke Emergency Operations Plan (COREOP) maintained by Emergency
Systems including the Comprehensive Plan and Chapters 1 through 8. Please see
http://www.roanokecountyva.gov/index.aspx?NID=743. The plan is in support of
Roanoke County Comprehensive Plan “Chapter 4 – Community Facilities” and all other
parts of the plan.
DEFINING HOMELESS POPULATIONS
______________________________________________________________________________
Before assisting those that fall under the homeless bubble, it must be identified and described to
what dictates the status. Under the U.S. Department of Health and Human Services:
A homeless individual is defined in section 330(h)(5)(A) as “an individual who lacks housing
(without regard to whether the individual is a member of a family), including an individual
whose primary residence during the night is a supervised public or private facility (e.g., shelters)
that provides temporary living accommodations, and an individual who is a resident in
transitional housing.” A homeless person is an individual without permanent housing who may
live on the streets; stay in a shelter, mission, single room occupancy facilities, abandoned
building or vehicle; or in any other unstable or non-permanent situation. [Section 330 of the
Public Health Service Act (42 U.S.C., 254b)]3

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The homeless population is sometimes integrated within the general population or special needs
individuals such as those with functional, learning, or accessibility disabilities. Because of the
stereotyping, the issues they face is undermined. The Federal Emergency Management Agency
(FEMA) does not use the term ‘homeless’ and provides instruction under the ‘special needs’
umbrella. Ultimately, it comes down to what the state and local government determines to be
homeless. Some elements to consider include:
 Persons who are living in areas not meant for human habitation, the streets, in shelters,
transitional housing, or are exiting an institution where they temporarily resided.
 Persons who are losing primary nighttime residence, which may include a motel or hotel
or a doubled up situation, within 14 days and lack resources or support networks to
remain in housing.
 Families with children or unaccompanied youth who are unstably housed and likely to
continue in that state. Applies to families with children or unaccompanied youth who
have not had a lease or ownership interest in a housing unit in the last 91 or more days,
have had three or more moves in the last 90 days, and who are likely to continue to be
unstably housed because of disability or multiple barriers to employment.
 Persons who are fleeing or attempting to flee domestic violence, have no other residence,
and lack the resources or support networks to obtain other permanent housing. This
category is similar to the current practice regarding people who are fleeing domestic
violence.
 Persons without a regular house or dwelling because they cannot afford, or are otherwise
unable to maintain regular, safe, and adequate housing, or lack "fixed, regular, and
adequate nighttime residence."
 Persons who literally spend substantial periods of time on or reside on the streets.4
PRE- AND POST-DISASTER PLANNING
______________________________________________________________________________
Emergency Management will work coordinate with the City of Roanoke, local homeless shelters
and services providers, and volunteer disaster assistance programs to ensure the survival and
basic needs of the homeless population are met during a disaster. In addition, communication
methods and resource accessibility will be provided to these organizations.
Communication
Pamphlets- One way to raise awareness to the homeless population is to do so before a disaster
strikes. Pamphlets or flyers generally contain information about processes or organizations that
assist in emergencies and within customized ones, there could be a variety of shelters that
individuals could utilize in emergencies depending on what part of Roanoke the emergency is
effecting. Information will also be included on how to access information in emergencies
including what radio stations will emit emergency broadcasts, how to register cell phones for

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reverse 911, and additional information on outreach team pickups as well as transportation. The
information should be displayed in large fonts with non-complex language. Diagrams or
graphics of the city could even list out where the shelters are relative to the map of the city. The
pamphlets should highlight actions that can be taken as well as actions to avoid to ensure
survivability.
Cell Phones- Some homeless individuals have mobile devices that can get them in contact with
alerts from the city. This is a useful tool that can inform these demographics. This can even lead
to flexible communication between those with phones to those without them, should they be in
the same vicinity.
Information Seminars- Some shelters within the City of Roanoke have programs where
homeless individuals can participate in activities that provide back to the community. The
principle of self-worth is taught and this appeals to those who have lost almost everything and
need a simple step in the right direction. Training programs can teach members of the homeless
population about the potential for upcoming crisis. Educational seminars can communicate
awareness of the COREOP and bi-weekly curriculums can be implemented to educate both
service providers and consumers to foster a sense of mutuality that can facilitate the emergency
response process. The curriculum can include points of:
 Pick-up points for evacuations
 How to access up-to-date information about the emergency situation
 Dangers of seeking inappropriate shelter such as under bridges and overpasses and in cars
 What to do if stranded
 What to expect physically, mentally, and emotionally during and after different types of
disaster
 Guidance on dealing with first responders
Outreach Teams- Workers from the local shelters must work together to locate and transport
homeless individuals who are spread among a wide area, to safety. Outreach workers, such as
those from the HAT, must establish trust and credibility within the homeless community.
Building trust is important when reaching out to people experiencing homelessness. The
discrimination and exclusion that homeless people frequently experience, together with mental or
physical illness, contribute to social isolation, distrust, and unwillingness to act even in an
emergency. The City of Roanoke’s homeless population is dispersed among many areas,
therefore outreach teams must have capabilities to announce emergencies, impending or
aftermath, over a loudspeaker or megaphone from their vehicles.5 These teams can even send
personal notification.
Health
Emergency Kits & Health Information Cards (HIC) - If the city has enough funding, kits
containing water, first aid supplies, and a flashlight may be distributed to the homeless
population during disasters. Kits can provide short term relief until the individual is able to

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make it to a more resourceful area or shelter. HICs can provide first responders with personal
and medical information. They are useful if the individual is unconscious or otherwise unable to
communicate his or her needs in an emergency. These cards can be distributed at homeless
shelters or at human services agencies. Announcements sent to hospitals will increase awareness
and utility of the cards.
Transportation and Evacuation
Identifying Homeless Populated Areas- There is not sufficient data to locate all homeless
people that reside inside the city. However, the human interaction with these individuals can
provide ‘street’ knowledge of where groups or camps may be located. General areas where they
may reside include parks, alleys, bridges and overpasses, abandoned infrastructure, fields, and
encampments. The HAT team works regularly to mark numbers and locations of homeless
populations. Once locations have been identified, the pinpointed areas can be relayed to first
responders and outreach teams to notify and transport those willing to safety in a disaster.
Determining and Identifying Transportation Needs and Resources
It is important for emergency planners to collaborate with transportation providers to identify
individuals who might require transportation assistance during an evacuation. This will help
determine appropriate forms of transportation and enhance coordination among multiple service
providers.6 Providers should send representatives to attend emergency preparedness training in
order to relay quality information and be familiar with homeless populations.
SHELTERS & PROGRAMS
__________________________________________________________________
Once the homeless have been transported to a shelter, the shelter should be able to meet their
goal of ensuring the health and safety of those who enter their doors. The City of Roanoke must
work in conjunction with shelters to ensure basic resources such as food, water, and clothing are
available. In addition, there will be those who have more advanced medical and behavioral
needs that must be accounted for.
As of 2016, there are 66 local services and resources accessible in the city of Roanoke or in the
surrounding areas. They include:

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Information and Referrals
 2-1-1 Virginia Dial 211
www.211virginia.org
 Central Intake One Door (540) 853-1163,
339 Salem Avenue SW, Roanoke VA 24016
 Community Housing Resource Center
(540) 266-7551, 339 Salem Avenue SW,
Roanoke VA 24016
Overnight Shelters
 Family Promise of Roanoke Valley (540)
444-7374, 37 East Clay Street, Salem VA
24153
 Rescue Mission (540) 343-7227, 402 Street
SE, Roanoke VA 24013
 Salvation Army Red Shield Lodge (540)
342-7398, 821 Salem Ave SW, Roanoke VA
24016
 Salvation Army Turning Point (540) 345-
0400
 TRUST House (540) 344-8060, 404 Elm
Avenue SW, Roanoke VA 24016
Day Shelters
 Roanoke Area Ministries (RAM) (540)
343-3753, 824 Campbell Avenue SW,
Roanoke VA 24016
 Samaritan Inn (540) 343-1447, 543 Salem
Avenue SW, Roanoke VA 24016
Direct Service Providers
 Alleghany Highlands Rural Shelter Plus
Care (540) 965-2100 Ext. 134
 Roanoke City Schools-Homeless Student
Liaison (540) 400-9787
 Blue Ridge Behavioral Healthcare/PATH
(540) 853-1716
 City of Roanoke Homelessness Assistance
Team (HAT) (540) 853-1715, 339 Salem
Avenue SW, Roanoke VA 24016
 City of Roanoke Shelter Plus Care (540)
853-1716
 Commonwealth Catholic Charities (540)
342-7561 Ext. 304, 820 Campbell Avenue
SW, Roanoke VA 24016
 Community Housing Resource Center
(540) 266-7551, 339 Salem Avenue SW,
Roanoke VA 24016
 Family Services of Roanoke Valley (540)
563-5316, 360 Campbell Avenue SW,
Roanoke VA 24016
 Outreach at St. John’s Episcopal Church
(540) 343-9341, 1 Mountain Avenue SW,
Roanoke VA 24016
 Roanoke Redevelopment and Housing
Authority (540) 983-9281, 2624 Salem
Turnpike NW, Roanoke VA 24017
 Safehome Systems (540) 965-3237, 102 E.
Main Street, Covington VA 24426
 Total Action for Progress (TAP) (540)
283-4800, 302 Second Street SW, Roanoke
VA 24011
Social Services Department
 Alleghany County/Covington Department
of Social Services (540) 965-1780, 110
Rosedale Avenue Suite B, Covington VA
24426
 Bath County Department of Social
Services (540) 839-7271, 65 Courthouse
Hill Road, Warm Springs VA 24484
 Botetourt County Department of Social
Services (540) 591-5960, 220 Commons
Parkway, Daleville VA 24083
 Craig County Department of Social
Services (540) 864-5117, 177 Court Street
#1, New Castle VA 24127
 Roanoke City Department of Social
Services (540) 853-2591, 1510 Williamson
Road, 3rd Floor, Roanoke VA 24012
 Roanoke County Department of Social
Services (540) 387-6087 (Roanoke County,
Salem, and Vinton), 220 East Main Street,
Salem VA 24153
Veterans
 TAP Homeless Veterans Reintegration
Program (540) 283-4908, 302 Second
Street SW, Roanoke VA 24011
 Veterans Affairs Medical Center (540)
982-2463 Ext. 1517 or 2520, 1970 Roanoke
Blvd., Salem VA 24153
 Virginia Department of Veterans Affairs
(540) 342-9726
Disability

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 Blue Ridge Independent Living Center
(540) 342-1231 (V/TTY), 1502 B
Williamson Road NE, Roanoke VA 24012
 Brain Injury Services of SW VA (540)
344-1200, 3904 Franklin Road SW,
Roanoke, VA 24014
Legal Assistance
 Blue Ridge Legal Services (540) 344-2080,
132 Campbell Avenue,Suite 300, Roanoke
VA 24011
 Legal Aid Society of Roanoke Valley (540)
344-2080, 132 Campbell Avenue, Suite 200,
Roanoke VA 24011
Health/Mental Health
 Blue Ridge Behavioral Healthcare (540)
981-9351
 Alleghany Highlands Community
Services Board (540) 965-2100, 311 S
Monroe Avenue,Covington, VA 24426
 Bradley Free Clinic of the Roanoke
Valley (540) 344-5156, 1240 3rd Street,
Roanoke VA
 City of Roanoke Health Department (540)
283-5050, 1502 Williamson Road NE, 2nd
Floor, Roanoke VA 24012
 New Horizons (formerly Kuumba) (540)
362-0360, 4910 Valley View Blvd Suite
310, Roanoke VA 24012
 Roanoke County/Salem Health
Department (540) 387-5530, 105 E.
Calhoun Street, Salem VA 24153
 Roanoke County/Vinton Health
Department (540)857-7800, 224 S. Pollard
Street, Vinton VA 24179
Thrift Stores
 Goodwill (540) 581-0620, Locations
throughout the area
 Habitat for Humanity ReStore (540) 767-
2267, 403 Salem Avenue, Roanoke VA
24016
 Rescue Mission Thrift Store (540) 777-
0145, 421 4th Street SE, Roanoke VA 24013
 Salvation Army Thrift Store (540) 563-
5585, 5511 Williamson Road, Roanoke VA
24012
 St. Mark’s Lutheran Church (540) 344-
9051, 1008 Franklin Road SW, Roanoke VA
24016, NO CHARGE/1st & 3rd Thursdays,
9:30am-10:30am
Transportation
 Valley Metro (540) 982-2222,
wwwvalleymetro.com, 1109 Campbell
Avenue SE, Roanoke VA 24013
 Smartway Bus (540) 982-6622
 RADAR (540) 343-1721, 1-800-964-5707,
www.radartransit.org
 Greyhound Bus (540) 343-5436, 26 Salem
Avenue SW, Roanoke VA, 24011
 Megabus www.megabus,com
 Smart Way Connector (Amtrack) (540)
982-2222, www.smartwaybus.com
 Star Line Trolley (540) 982-2222
 City Cab (540) 815-5050
 Dependable Cab (540) 524-0948
 Go Green Taxi (540) 397-5555
 Northwest Cab (540) 339-5594
 Salem Taxi (540) 389-5555
 Yellow Cab (540) 345-7711
Food Pantries/Food Resources
 Feeding America Southwest Virginia
(540) 342-3011, 1025 Electric Road, Salem
VA 24153
 Mission Manna Ministries (540) 343-7227,
402 4th Street SE, Roanoke, VA 24013
 Presbyterian Community Center (540)
982-2911, 1228 Jamison Avenue SE,
Roanoke, VA 24013
 Salem Food Pantry (540) 389-6938, 620
Chapman Avenue, Salem VA 24153
 St. Francis House (540) 342-7561 Ext. 319,
820 Campbell Avenue SW, Roanoke VA
24016
 St. Mark’s Lutheran Church (540) 344-
9051, 1008 Franklin Road SW, Roanoke VA
24016, NO CHARGE/2nd &4th Mondays,
6:00pm-7:00pm

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Notes
1 & 2 Emergency Management
3
What Is the Official Definition of Homelessness?
4 DISASTER/EMERGENCY PLAN DESIGN FOR THOSE WITH FUNCTIONAL AND ACCESS
NEEDS | HOMELESS POPULATIONS
5 Edgington, Disaster Planning for People Experiencing Homelessness
6 Interim Emergency Management Planning Guide for Special Needs Populations

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References and Sources:
"DISASTER/EMERGENCY PLAN DESIGN FOR THOSE WITH FUNCTIONAL AND
ACCESS NEEDS | HOMELESS POPULATIONS." Houston Downtown Management
District | Emergency Management Website. 2011. Accessed December 1, 2016.
http://emergency.downtowndistrict.org/external/content/document/5487/1773883/1/CFTH
Disaster Emergency Plan Final _2_.pdf.
Edgington, Sabrina. "Disaster Planning for People Experiencing Homelessness." National Health
Care for the Homeless Council. March 2009. Accessed December 1, 2016.
http://www.nhchc.org/wp-content/uploads/2011/10/Disaster-Planning-for-People-
Experiencing-Homelessness.pdf.
"Emergency Management." Roanoke, VA. Accessed December 01, 2016.
http://www.roanokeva.gov/639/Emergency-Management.
"Interim Emergency Management Planning Guide for Special Needs Populations." The
University of Kansas. August 15, 2008. Accessed December 1, 2016.
http://www2.ku.edu/~rrtcpbs/resources/pdf/FEMA_CPG301.pdf.
"What Is the Official Definition of Homelessness?" National Health Care for the Homeless
Council. Accessed December 01, 2016. https://www.nhchc.org/faq/official-definition-
homelessness/.