California doesn't mandate registries for people who need help in disasters. Florida does. Why?

After the Palisades and Eaton firestorms in January 2025, one story captured how Los Angeles County’s emergency management system seemed to have failed. Anthony Mitchell Sr., an 80-year-old man who used both a prosthetic and a wheelchair, and his 35-year-old son, Justin, who had cerebral palsy, died in their Altadena home waiting for evacuation assistance.

Anthony Mitchell had called 911 twice, identifying himself and his son as disabled, and was assured help was coming.

Of the 31 people killed in the fires, 27 were over 65, and at least six had mobility issues, according to news reports.

The tragedy led California and L.A. County to consider adopting “disaster registries,” an emergency management strategy used around the country for assisting people who might require additional help in emergencies due to their age, disability or other health conditions.

The California Commission on Aging issued a report in November that noted evacuation centers lacked data on older and disabled residents who would need assistance. That led to a shortage of equipment and expertise to address the specialized needs of those residents. The commission recommended that the state consider implementing a statewide registry.

Even before the commission’s recommendation, Los Angeles County supervisors had directed its Aging and Disabilities Department to study the feasibility of a registry.

But neither initiative has moved forward.

“We have not seen much movement on exploring a disaster registry,” said Patrick Smith, the state Commission on Aging’s legislative director.

The Los Angeles feasibility study was “paused” last year while the county reviewed its emergency operations with the McChrystal Group, said Liz Odendahl, a spokesperson for Supervisor Janice Hahn, who co-sponsored the resolution authorizing the study.

The arguments against registries

Some advocacy groups in California and the state Office of Emergency Services have argued against registries, Smith said. In fact, OES’ official guidance on registries is that “jurisdictions should not use them.”

Registries typically are voluntary, and registrants are responsible for keeping their information up to date. Because of that, they are unreliable sources of information, which is one reason some emergency managers and many advocates for older and disabled people oppose them.

They also point out that registries could give a false sense of security to people, who may assume assistance is guaranteed when it is not.

“This false assumption is dangerous and can lead to an overall decrease in personal disaster preparedness,” the California Office of Emergency Services says on its website.

Registries are hard to keep current, the office notes, and the personal information people provide may be challenging to safeguard.

Why some places have registries anyway

With data showing older people far more likely to die in natural disasters — and climate change making disasters more frequent and severe — several states have taken the opposite approach, establishing registries to better assist older adults and people with disabilities in emergencies.

Florida’s statewide Special Needs Registry is often cited as a model because it connects the state’s Health Department with emergency management in all 67 counties. Florida also requires its counties to establish shelters for people with special medical needs.

Delaware, New Jersey, North Dakota, Rhode Island, Texas and Utah also have statewide registries, as do many municipal emergency offices across the country.

In California, three of 58 counties have registries — Mono, Siskiyou and Butte.

Butte County’s registry was in place in 2018, when the Camp Fire killed 85 people, 67 of whom were seniors. Emergency managers can’t say how many or if any of the older adults who died in that fire were on the registry.

But they say the registry remains a useful tool.

“If we didn’t have the list, we wouldn’t have had any idea at all who needed extra assistance evacuating,” said Butte County Emergency Manager Angie Mannel, who was a 911 dispatcher during the Camp Fire.

Older adults, like many Americans, are not prepared for disasters. A 2023 AARP survey found that under one-third of older adults have a comprehensive plan for natural disasters, and only 10% have opted into apps or text notifications that alert people to emergencies.

“You can’t just throw a bunch of information out there and expect everyone to be able to act on it,” said Lindsay Peterson, a gerontology researcher at the University of South Florida. “Some people just can’t.”

Her research has shown that technology can be a barrier for older adults, especially those living independently but with limited technological skills and income.

While acknowledging that “registries are controversial,” Peterson said state and local governments must find ways to ensure the most vulnerable older adults will be protected.

Florida’s Special Needs Registry

That’s what Florida set out to do with its Special Needs Registry. But it does not guarantee emergency assistance, which the Health Department notes when people register. Still, the Florida Division of Emergency Management advises older adults needing this assistance to register, because registries can be useful planning tools and may save lives, even if they are incomplete.

Each of Florida’s county emergency management offices decides how it will use the registries to provide assistance. Seminole County, in eastern Florida, offers transportation assistance to registrants who request it. Three days before a tropical storm or hurricane is expected, the county Office of Emergency Management calls registrants about the approaching storm and advises them to evacuate. They must agree to leave at that time in order to receive transportation, said Steven Lerner, division manager.

“We’re like Enterprise; we’ll pick you up,” he said. The county uses a fleet that includes school buses and ADA-compliant vans.

Lerner’s main concern about Seminole’s registry of 1,700 people is who is not on it. He focuses his outreach efforts on new residents who may never have experienced a hurricane season, and those aging at home who may overestimate their ability to evacuate themselves.

In Lee County on Florida’s western coast, the Office of Emergency Management used public transportation to help evacuate people when Hurricane Ian hit in 2022. More than half of Lee County’s 800,000 residents were ordered to evacuate a day before the hurricane made landfall. Many were forced to weather the storm at home or in shelters, as 10 inches of rain inundated areas, winds gusted up to 140 mph and storm surge reached 15 feet. The storm killed 149 Floridians, including 72 Lee County residents. Most of the fatalities were people over 65.

County spokesperson Betsy Clayton wouldn’t say how many registrants emergency crews helped to evacuate during Hurricane Ian. But she said the county has assisted about 1,000 registrants in each major storm Florida has experienced in the past two decades, providing paratransit and ambulance services.

A California example

In California’s Butte County, emergency managers believe the registry will save lives if a disaster on par with the Camp Fire strikes again.

After igniting on Nov. 8, 2018, the Camp Fire grew rapidly, overwhelming the county’s emergency management plans and destroying its communication systems. It incinerated Paradise, a town of 27,000 people, in four hours.

The California auditor’s 2019 after-action review of the county’s emergency plans recommended Butte use registry data in evacuation planning, so emergency responders know who will need help before a disaster.

Tiffany Rowe manages Butte’s Special Needs Awareness Program, which notifies registered people of emergencies and evacuation orders and assists in evacuating them if needed.

The voluntary registry pinpoints who will require assistance in particular evacuation zones and what they’ll need. Most warnings are automated, but if the emergency is expected to affect 10 or fewer registrants, Rowe calls them herself.

After the pandemic and the busy fire seasons of 2022 and 2024, the number of Butte County registrants increased by over 50%. Today, around 2,200 older adults and people with disabilities are registered.

“Being a disaster-prone county,” said Mannel, Butte’s emergency manager, “our perspective is always focused on the safety of our citizens.”

Timothy Lane is a writer with the Investigative Reporting Program at the UC Berkeley Journalism School and covered this story through a grant from The SCAN Foundation.