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+
+ - EMERGENCY WARNING SYSTEMS: WAYS TO NOTIFY THE PUBLIC IN THE NEW ERA OF HOMELAND SECURITY
+
+[House Hearing, 108 Congress]
+[From the U.S. Government Publishing Office]
+
+
+
+ EMERGENCY WARNING SYSTEMS:
+ WAYS TO NOTIFY THE PUBLIC IN THE
+ NEW ERA OF HOMELAND SECURITY
+
+=======================================================================
+
+ HEARING
+
+
+ of the
+
+ SUBCOMMITEE ON EMERGENCY PREPAREDNESS AND RESPONSE
+
+ before the
+
+ SELECT COMMITTEE ON HOMELAND SECURITY
+ HOUSE OF REPRESENTATIVES
+
+ ONE HUNDRED EIGHTH CONGRESS
+
+ SECOND SESSION
+
+ __________
+
+ SEPTEMBER 22, 2004
+
+ __________
+
+ Serial No. 108-58
+
+
+
+ Printed for the use of the Select Committee on Homeland Security
+
+
+ Available via the World Wide Web: http://www.gpoaccess.gov/congress/
+ index.html
+
+
+ __________
+
+ U.S. GOVERNMENT PRINTING OFFICE
+26-275 WASHINGTON : 2006
+_____________________________________________________________________________
+For Sale by the Superintendent of Documents, U.S. Government Printing Office
+Internet: bookstore.gpo.gov Phone: toll free (866) 512-1800; (202) 512�091800
+Fax: (202) 512�092250 Mail: Stop SSOP, Washington, DC 20402�0900012006
+
+
+ SELECT COMMITTEE ON HOMELAND SECURITY
+
+
+
+ Christopher Cox, California, Chairman
+
+Jennifer Dunn, Washington Jim Turner, Texas, Ranking Member
+C.W. Bill Young, Florida Bennie G. Thompson, Mississippi
+Don Young, Alaska Loretta Sanchez, California
+F. James Sensenbrenner, Jr., Edward J. Markey, Massachusetts
+Wisconsin Norman D. Dicks, Washington
+David Dreier, California Barney Frank, Massachusetts
+Duncan Hunter, California Jane Harman, California
+Harold Rogers, Kentucky Benjamin L. Cardin, Maryland
+Sherwood Boehlert, New York Louise McIntosh Slaughter, New
+Joe Barton, Texas York
+Lamar S. Smith, Texas Peter A. DeFazio, Oregon
+Curt Weldon, Pennsylvania Nita M. Lowey, New York
+Christopher Shays, Connecticut Robert E. Andrews, New Jersey
+Porter J. Goss, Florida Eleanor Holmes Norton, District of
+Dave Camp, Michigan Columbia
+Lincoln Diaz-Balart, Florida Zoe Lofgren, California
+Bob Goodlatte, Virginia Karen McCarthy, Missouri
+Ernest J. Istook, Jr., Oklahoma Sheila Jackson-Lee, Texas
+Peter T. King, New York Bill Pascrell, Jr., New Jersey
+John Linder, Georgia Donna M. Christensen, U.S. Virgin
+John B. Shadegg, Arizona Islands
+Mark E. Souder, Indiana Bob Etheridge, North Carolina
+Mac Thornberry, Texas Ken Lucas, Kentucky
+Jim Gibbons, Nevada James R. Langevin, Rhode Island
+Kay Granger, Texas Kendrick B. Meek, Florida
+Pete Sessions, Texas Ben Chandler, Kentucky
+John E. Sweeney, New York
+
+ John Gannon, Chief of Staff
+
+ Stephen DeVine, Deputy Staff Director and General Counsel
+
+ Thomas Dilenge, Chief Counsel and Policy Director
+
+ David H. Schanzer, Democrat Staff Director
+
+ Mark T. Magee, Democrat Deputy Staff Director
+
+ Michael S. Twinchek, Chief Clerk
+
+ ______
+
+ Subcommittee on Emergency Preparedness and Response
+
+ John Shadegg, Arizona, Chairman
+
+Curt Weldon, Pennsylvania Bennie G. Thompson, Mississippi,
+W.J. ``Billy'' Tauzin, Louisiana Ranking Member
+Christopher Shays, Connecticut Jane Harman, California
+Dave Camp, Michigan Benjamin L. Cardin, Maryland
+Lincoln Diaz-Balart, Florida Peter A. DeFazio, Oregon
+Peter King, New York Nita M. Lowey, New York
+Mark Souder, Indiana Eleanor Holmes Norton, District of
+Mac Thornberry, Texas Columbia
+Jim Gibbons, Nevada Bill Pascrell, Jr., New Jersey
+Kay Granger, Texas Donna M. Christensen, U.S. Virgin
+Pete Sessions, Texas Islands
+Christopher Cox, California, ex Bob Etheridge, North Carolina
+officio Ken Lucas, Kentucky
+ Jim Turner, Texas, ex officio
+
+ (II)
+
+
+ C O N T E N T S
+
+ ----------
+ Page
+
+ STATEMENTS
+
+The Honorable John B. Shadegg, a Representative in Congress From
+ the State Arizona, and Chairman, Subcommittee on Emergency
+ Preparedness and Response...................................... 1
+The Honorable Bennie G. Thompson, a Representative in Congress
+ From the State of Mississippi, and Ranking Member, Subcommittee
+ on Emergency Preparedness and Response......................... 2
+The Honorable Christopher Cox, a Representative in Congress From
+ the State of California, and Chairman, Select Committee on
+ Homeland Security.............................................. 3
+The Honorable Jim Turner, a Representative in Congress From the
+ State of Texas, and Ranking Member, Select Committee on
+ Homeland Security.............................................. 22
+The Honorable Bob Etheridge, a Representative in Congress From
+ the State of North Carolina.................................... 25
+The Honorable Nita M. Lowey, a Representative in Congress From
+ the State of New York.......................................... 31
+The Honorable Eleanor Holmes Norton, a Delegate in Congress From
+ the District of Columbia....................................... 33
+The Honorable Curt Weldon, a Representative in Congress From the
+ State of Pennsylvania.......................................... 27
+
+ WITNESSES
+ Panel I
+
+Mr. James. Dailey, Director of Homeland Security, Federal
+ Communications Commission:
+ Oral Statement................................................. 8
+ Prepared Statement............................................. 10
+Mr. Kathleen Henning, Certified Emergency Manager, International
+ Association of Emergency Management:
+ Oral Statement................................................. 13
+ Prepared Statement............................................. 15
+Mr. Reynold N. Hoover, Director of National Security
+ Coordination, Department of Homeland Security:
+ Oral Statement................................................. 5
+ Prepared Statement............................................. 7
+
+ Panel II
+
+Ms. Patricia McGinnis, President and CEO, Council for Excellence
+ in Government:
+ Oral Statement................................................. 51
+ Prepared Statement............................................. 53
+Mr. Frank Lucia, Vice Chairman, Washington, D.C. Emergency Alert
+ System Committee Member, Public Communications & Safety Working
+ Group, Media Security and Reliability Council:
+ Oral Statement................................................. 45
+ Prepared Statement............................................. 47
+Dr. Peter L. Ward, Founding Chairman, Partnership for Public
+ Warning, U.S. Geological Survey (Retired):
+ Oral Statement................................................. 35
+ Prepared Statement............................................. 37
+
+ FOR THE RECORD
+
+Mr. Reynold Hoover Responses to Questions........................ 63
+Mr. Frank Lucia Responses to Questions........................... 84
+Ms. Patricia McGinnis Responses to Questions..................... 65
+Dr. Peter Ward Responses to Questions............................ 68
+
+
+ EMERGENCY WARNING SYSTEMS:
+ WAYS TO NOTIFY THE PUBLIC IN THE
+ NEW ERA OF HOMELAND SECURITY
+
+ ----------
+
+
+ Wednesday, September 22, 2004
+
+ House of Representatives,
+ Select Committee on Homeland Security,
+ Subcommittee on Emergency Preparedness
+ and Response,
+ Washington, DC.
+ The subcommittee met, pursuant to call, at 10:08 a.m., in
+Room 2261, Rayburn House Office Building, Hon. John Shadegg
+[chairman of the subcommittee] presiding.
+ Present: Representatives Shadegg, Weldon, Camp, Cox (ex
+officio), Thompson, DeFazio, Lowey, Norton, Etheridge, Lucas
+and Turner (ex officio).
+ Mr. Shadegg. Good morning. The committee will come to
+order.
+ I would like to ask unanimous consent that opening
+statements be limited to the subcommittee and full committee
+chairman and the ranking members of the subcommittee and the
+full committee. Is there any objection?
+ Without objection, so ordered.
+ You may not be aware of this, but September is National
+Preparedness Month, an effort to heighten the importance of
+American families and businesses to be better prepared for
+emergencies, especially in this new era of Homeland Security.
+As a part of that effort, today we will be focusing on the
+emergency warnings communication system, that is, how we can
+get the best information to the public on what steps they
+should take to protect themselves in the event of an emergency.
+ You know, it was Paul Revere and his partner who is less
+well known, Robert Newman, who pioneered unknowingly the first
+emergency warning system in our country. Newman was the
+individual who hung lanterns. Of course, Paul Revere was the
+one who made the famous ride. One if by land and two if by sea,
+as well as a midnight ride warning that the British were
+coming, were effective means of spreading the word in the 18th
+century. However, in the 21st century, in a new war on
+terrorism and a new era of Homeland Security and technology, we
+must look at the most modern and effective ways to get
+emergency warnings to our citizenry.
+ Consider, for example, these statistics. There are 169
+million cell phone users in the United States. There are 28
+million high-speed Internet lines always on. There are 107
+million households, well over 90 percent of those in the
+country, that have telephone service, and there are over 11
+million paging units in service. More and more, technology is
+becoming ubiquitous, and it would be foolish not to capitalize
+on these potential conduits for informing Americans about what
+to do in an emergency so that they can make an educated
+decision about how best to protect themselves.
+ Think about a potential release, for example, of a bio-
+agent or a dirty bomb. Based on global positioning technology,
+GPS technology, a cell phone user could receive a text message
+based on which cell towers he was closest to advising him of
+the event. Linked with plume modeling technology, an individual
+could be advised further as to whether to shelter where they
+are in place or to evacuate. And this sort of technology is
+already put into place.
+ For example, the States of Washington and my home State of
+Arizona have launched a multi-State AMBER alert web portal
+which has the ability to notify thousands of subscribers
+through e-mail, cell phones, pagers, and other devices that a
+child has been abducted. Fourteen additional States are set to
+join, including the State of Mississippi. This is a partnership
+of State, law enforcement, private companies, and the broadcast
+media.
+ But there are also questions when we start discussing
+notification systems. Keep in mind, for example, that the
+Emergency Alert System was never activated on September 11th.
+We need to consider who will control the content of the
+message? How will we know that it is completely accurate? Will
+it be nimble enough in order to take action in a timely manner?
+Will local law enforcement be willing to share information with
+the media? Will there be information overload? And, what
+happens if electricity is lost?
+ An efficient and effective all hazards alert system must
+bring together all available information in an accessible and
+reliable manner and disseminated to Americans in a timely
+manner via multiple technologies. In our examination, it is
+likely that we will learn that no single solution exists.
+Rather, we will have to rely on multiple modes and built-in
+redundancy.
+ Today, we will hear from Federal officials from the
+Department of Homeland Security as well as the FCC, the Federal
+Communications Commission; and we will be particularly
+interested in what the Department is doing to coordinate and
+build upon the message from seven different warnings systems
+that currently exist for all hazards and emergency notice and
+its latest emergency communication demonstration project in the
+National Capital Region.
+ Our FCC witness will provide perspective on the
+Commission's latest notice of proposed rulemaking on changes to
+the Emergency Alert System as well as the role of the media. Do
+local broadcasters have enough guidance from local, State, and
+Federal Government to operate an effective warning system?
+ And our second panel will provide insight on what
+technologies are available and other issues that should be
+addressed when considering emergency communications systems.
+ I would now call upon the Ranking Member, Mr. Thompson, for
+his opening statement.
+ Mr. Thompson. Thank you, Mr. Chairman.
+ I join the Chairman in welcoming the witnesses to this
+hearing, and I look forward to hearing your testimony on this
+important topic.
+ When our hearing concludes today, I think it will be very
+clear that our Nation does not have an effective warning
+system. More than 3 years after the attacks of September 11th,
+we still depend on a warning system that was created by
+President Truman in the 1950s. And while it is true that this
+system's technology has been upgraded over the years, the
+simple facts are these: We are still dependent upon the
+broadcast industry to distribute warnings; State and local
+governments do not have the authority to require broadcasters
+to distribute warning messages; and the current warning system
+reaches only the limited audience that is listening to
+broadcast radio or watching broadcasts on cable television at
+the exact time that emergency announcement is made.
+ It seems to me when we face the very real threat of more
+terrorist attacks within our homeland that this warning system
+is wholly unsatisfactory and demonstrates a huge gap in the
+administration's preparedness strategy. We can provide our
+first responders with all the training and equipment they need,
+but if we do not have an effective way to warn the public and
+provide them with the information that will help them to
+protect themselves and their families, we will fail in our
+duties to save lives in the aftermath of the next attack.
+ This is not a new problem created by the September 11th
+attacks. Numerous studies and reports have demonstrated that
+our warning system is not adequate. Yet, even after 9/11,
+nothing has been done to change the system.
+ Based on prior recommendations of several of today's
+witnesses, we know what an effective warning system should do.
+First, the system must distribute warnings through as many
+communication channels as practicable, including telephone,
+cell phone, and pagers. Second, the actual warning message must
+be a single, consistent, and easily understood language that
+can be used as a standard across all hazards and situations.
+Finally, ownership of and accountability for the system must be
+clear. Today, no one government agency is in charge of the
+system, resulting in outdated warning plans, missing
+communication links, and a lack of training and equipment for
+emergency managers.
+ The administration must devote the resources to implement
+these changes. We cannot wait for the next attack to
+demonstrate the shortfalls of our warning systems. The Federal
+Communications Commission has initiated this process by issuing
+a notice of proposed rulemaking on the Emergency Alert System.
+This notice raises some very important questions about the
+adequacy of the current system and the alternative systems that
+we should be considering. I hope the Commission uses this
+opportunity to make real changes in the alert system and does
+not simply patch an outdated approach to public warning.
+ Again, I thank the witnesses for appearing before this
+subcommittee, and I look forward to your testimony.
+ Mr. Shadegg. I thank the gentleman.
+ The Chairman of the full committee, Mr. Cox, is now
+recognized for his opening statement.
+ Mr. Cox. Thank you, Mr. Chairman; and thank you to the
+Ranking Member.
+ Good morning to our witnesses. Let me, too, commend you for
+your prepared testimony which you provided and for the wisdom
+that I know you are about to share with us.
+ I will be brief. I agree with my colleagues that it is
+imperative that our Nation address the question of how to
+upgrade and modernize our emergency communication systems.
+There are a lot of questions that attend to that. Of course, I
+will always, forever have stuck in my mind the emergency
+broadcast system test that we grew up with that puzzled us all.
+What the hell is that thing for? Because it has never been
+used. It is supposed to transmit Presidential messages to the
+Nation in time of emergency, never used.
+ We can do a lot better than that. We are doing a lot better
+than that. That system has been modernized and updated itself
+several times. Now it is known as the Emergency Alert System.
+But its origins are certainly reminders of another time and
+another place when we didn't have anything like wireless or
+digital or the Internet.
+ There are flaws in our current system. The Emergency Alert
+System itself, as I mentioned, hasn't been used. So in addition
+to upgrading the technology, we have got to ask ourselves, what
+are the circumstances precisely under which we are going to use
+these systems? Only half of the Nation's 14,000 broadcasters
+are voluntarily carrying warnings and alerts through this
+system. On September 11th, 2001, it wasn't activated, it wasn't
+used. One wonders what kind of emergency is necessary before we
+would find any use for that system. My home, California, has
+never used the system to warn people when their lives and their
+property are threatened by fires that are, if not predictable
+entirely, that are certainly frequent occurrences.
+ This Emergency Alert System is probably the best known, but
+there are seven distinct Federal warning and alert systems that
+I hope we will discuss here this morning.
+ The national warning system operated by FEMA disseminates
+emergency information to 22,000 national and regional State and
+local emergency management offices. The National Weather
+Service has several systems, weather alert systems, designed to
+report through the news media. The AMBER alert web portal
+provides actionable intelligence on a geographic basis to 32
+States, two thirds of the country, to help them identify and
+track missing children. Each of these systems is designed for
+its own specific purpose, and I am quite certain that some
+overlap and some redundancy is not only unavoidable but
+desirable.
+ No single warning alert system is guaranteed to reach
+everyone, and so we can ask this morning how much overlap ought
+we to have in these systems. When we deploy them, are we
+properly focused on questions such as what if the telephone
+lines were done? What if the power lines are down? What if the
+cable TV is disabled? What about people with disabilities? What
+if you are hearing impaired? What if you are blind? How should
+the alerts be tailored to avoid unnecessary panic?
+ We have discussed this in other hearings, in other ways,
+with the national color coded warning system. Will frequent
+warnings desensitize the public to actual danger? How should
+instructions on what to do be effectively conveyed to the
+public? When precisely should an alert be transmitted? Will the
+Federal system provide more meaningful information than is
+available through the 24/7 news media? And, if not, are we
+wasting a lot of resources on some of these systems? What role
+should the Department of Homeland Security play?
+ I know we are about to make some progress in answering
+these questions at this morning's hearing, so let me close as I
+began, by thanking you all for being here; and thank you, Mr.
+Chairman and Mr. Thompson, for being here.
+ Mr. Shadegg. I thank the gentleman for his statement.
+ The Ranking Member of the full committee, Mr. Turner, is
+not with us at the moment. Should he join us, I will be happy
+to afford him an opportunity to make an opening statement.
+ At this point, I would like to introduce our first panel so
+we can begin the testimony and proceed.
+ Our first witness, Mr. Reynold Hoover, is the Director of
+the Office of National Security Coordination and the Emergency
+Preparedness and Response Directorate within the Department of
+Homeland Security; our second witness, Mr. Jim Dailey, is the
+Homeland Security Director for the Federal Communications
+Commission; and our third witness, Ms. Kathleen Henning, is a
+Certified Emergency Manager and a member of the International
+Association of Emergency Management.
+ You will each have 5 minutes to make your opening
+statement. We won't hold you strictly to that. Your entire
+written statement will be made a part of the record, and so you
+will know that your full statement is in the record if you
+choose to just summarize it in your oral statement.
+ Mr. Shadegg. With that, Mr. Hoover, would you begin?
+
+ STATEMENT OF REYNOLD N. HOOVER, DIRECTOR OF NATIONAL SECURITY
+ COORDINATION, DEPARTMENT OF HOMELAND SECURITY
+
+ Mr. Hoover. Good morning. Thank you, Mr. Chairman.
+ Good morning, Chairman Shadegg and members of the
+committee. My name is Reynold Hoover. I am the Director of the
+Office of National Security Coordination within the Federal
+Emergency Management Agency, FEMA. Thank you for the
+opportunity to appear before you today to discuss the role and
+activities of the Department of Homeland Security and FEMA to
+support the important mission of public alert and warnings.
+ I would like to ask, as you mentioned, Mr. Chairman, that
+my full written statement be included in the record.
+ FEMA, through our office, serves as the lead agent for the
+Federal Government's Executive Branch Continuity of Operations
+and Continuity of Government Programs. We also serve as the
+executive agent for the development, operations, and
+maintenance of the national-level Emergency Alert System known
+as EAS and are responsible for implementation of the national
+level activation of EAS tests and exercises. To carry out that
+function, we serve as the EAS program manager within FEMA and
+work in close cooperation with the Information Analysis and
+Infrastructure Protection, the IAIP, Directorate for All
+Hazards Alert and Warning. I should also note that we work
+closely with the Federal Communications Commission, the FCC,
+and the National Oceanic and Atmospheric Administration, NOAA,
+which is a primary EAS user.
+ The Department is grateful for the alert and warning funds
+Congress provided to IAIP this year and look forward to passage
+of the President's 2005 budget which provides $2 million
+additional dollars for EAS. Your funding will help provide
+Americans with critical and timely information alerts and
+warnings that will save lives and property.
+ This morning I would like to take a few moments to tell you
+about EAS and the Department's efforts toward improving and
+building our capability to provide a nationwide alert and
+warning system.
+ The current EAS was established in 1994 and is essentially
+a cascade, trickle-down distribution system from the FEMA
+operations centers to 34 designated primary entry point, or
+PEP, radio broadcast stations. At the request of the President,
+we distribute a Presidential level message to the PEP stations,
+which in turn rebroadcast the signal to monitoring stations
+downstream which then broadcast the message over TV and radio.
+This Presidential message is mandatory and must take priority
+over other messages and must preempt other messages already in
+progress. All other broadcasts of emergency messages are
+voluntary. Nevertheless, State and local emergency managers
+can, and do, activate the EAS for State and local alert and
+warning messages such as AMBER alerts, hazardous material
+incidents and weather warnings. NOAA and the National Weather
+Service serve as the originator of emergency weather
+information and play a significant role in the implementation
+of EAS at the State and local levels.
+ But as efficient and useful as EAS has been, we in FEMA and
+the Department of Homeland Security realize that the alert and
+warning system that so many millions of people depend upon is
+not everything to everyone all of the time. With the alert and
+warning funding provided this year, FEMA and IAIP are making
+great progress in our ability to reach more of the people more
+of the time.
+ For example, we look forward to signing a cooperative
+agreement with the Association of Public Television Stations to
+launch a digital emergency alert system pilot project in the
+National Capital Region. This pilot will demonstrate how the
+capabilities of America's public broadcasters can be utilized
+to dramatically enhance the ability to provide the American
+people with critical and lifesaving information. This project
+will also provide the Department with an improved mechanism for
+distributing EAS and alert warning messaging via digital
+television and satellite to an expanded range of retransmission
+media such as cell phone service providers, computers, PDAs,
+and other wireless devices.
+ Through the use of a geo-targeted alerting system which
+uses reverse 911 technology, we will also test the ability to
+provide targeted warning down to the individual household or
+business. This proven technology will be conducted in the
+National Capital Region in cooperation with NOAA's Forecast
+Systems Laboratory and the Department of Homeland Security's
+National Capital Region Office.
+ But while conducting proof of concept pilots, we are
+simultaneously beginning to upgrade and expand the primary
+entry point broadcast stations from a ground-based dial-up
+system to satellite transmissions. This upgrade will ensure
+their survivability in the event of a catastrophic attack on
+the homeland.
+ We recognize that there is no single solution set that will
+meet everyone's alert and warning requirements. That is why
+FEMA, IAIP, and the Department has teamed up with NOAA, the
+FCC, and the private sector to find the most appropriate
+interoperable solutions to develop an Integrated Public Alert
+and Warning System that we are calling IPAWS. We believe that
+IPAWS, using digital technology in combination with upgraded
+primary entry point EAS capabilities, will provide Federal,
+State, and local emergency managers and leaders with the tools
+they need to protect America from both manmade and natural
+disasters.
+ Mr. Chairman, these are just a few of the examples of how
+FEMA and the Department of Homeland Security have taken
+seriously its responsibility to provide quick and accurate
+dissemination of alert and warning information to our homeland
+security partners and the American public. Thank you for your
+invitation to speak, for your support of the Department's
+mission, and for your interest in the Emergency Alert System;
+and I will be pleased to answer what questions you may have.
+ Mr. Shadegg. Thank you very much.
+ [The statement of Mr. Hoover follows:]
+
+ Prepared Statement of Reynold N. Hoover
+
+ Good afternoon, Chairman Shadegg and members of the Committee. I am
+Reynold N. Hoover, the Director of the Office of National Security
+Coordination (ONSC) within the Federal Emergency Management Agency
+(FEMA). Thank you for the opportunity to appear before you today to
+discuss the role and activities of the Department of Homeland Security
+and FEMA to support the important mission of public alert and warning.
+ FEMA, through my office, serves as the Lead Agent for the Federal
+Executive Branch's Continuity of Operations (COOP) and Continuity of
+Government (COG) programs, in accordance with Presidential Decision
+Directive (PDD) 67, Enduring Constitutional Government and Continuity
+of Government Operations. We also serve as the Executive Agent for the
+development, operations and maintenance of the national--level
+Emergency Alert System (EAS) and are responsible for implementation of
+the national level activation of EAS tests and exercises. To carry out
+that function, we serve as the EAS Program Manager within FEMA and work
+in close cooperation with the Information Analysis and Infrastructure
+Protection (IAIP) Directorate for All Hazards Alert and Warning. I
+should also note that we work closely with the Federal Communications
+Commission (FCC) which generally prescribes EAS technical standards,
+procedures and protocols, and the National Oceanic & Atmospheric
+Administration (NOAA) which is a primary EAS user.
+ The Department is grateful for the Alert and Warning funds Congress
+provided to IAIP this year and look forward to passage of the
+President's 2005 budget which provides 2 million additional dollars for
+EAS. Your funding will help to provide Americans with critical and
+timely information alerts and warning that will save lives and
+property. This morning I would like to take a few moments to tell you
+about the EAS and the Department's efforts toward improving and
+building our capability to provide nationwide alert and warning.
+ The current EAS was established in 1994 and is essentially a
+cascade, trickle down, distribution system from the FEMA Operations
+Centers to 34 designated Primary Entry Point (PEP) radio broadcast
+stations. At the request of the President, we distribute a Presidential
+level message to the PEP stations, which in turn re-broadcast the
+signal to monitoring stations down stream which then broadcast the
+message over TV and radios. The system is designed to provide the
+President the capability to transmit within ten minutes from any
+location at any time. This Presidential message is mandatory, must take
+priority over any other message and must preempt other messages in
+progress. All other broadcasts of emergency messages are voluntary.
+Nevertheless, State and local emergency managers can, and do, activate
+the EAS for state and local public alert and warning messages--such as
+AMBER alerts, hazardous material incidents and weather warnings. NOAA,
+and the National Weather Service, serve as the originator of emergency
+weather information, and play a significant role in the implementation
+of EAS at the state and local level. While FEMA tests on a weekly basis
+the connectivity to the 34 PEP stations, the national level EAS has
+never been fully activated.
+ As you are well aware, the tragic events three years ago on
+September 11th caused a paradigm shift in how we think about homeland
+security and, in particular, alert and warning. As efficient and useful
+as the EAS has been, we in FEMA and the Department of Homeland Security
+realize that the alert and warning system that so many millions of
+people depend upon is not everything to everyone all of the time. With
+the alert and warning funding provided this year, FEMA and IAIP are
+making great progress in our ability to reach more of the people, more
+of the time. We believe in a very short period, using existing digital
+and other cutting edge technologies, the Department will be able to
+provide All Hazards alerts and warning to the greatest number of
+people, all of the time. This includes persons with disabilities and
+individuals for whom English is a second language.
+ For example, we look forward to signing a cooperative agreement
+with the Association of Public Television Stations to launch a digital
+emergency alert system pilot project in the National Capital Region.
+This pilot will demonstrate how the capabilities of America's public
+broadcasters can be utilized to dramatically enhance our ability to
+provide the American people with critical, and lifesaving, information.
+Utilizing open, non-proprietary architectures and applications, this
+project will provide the Department with an improved mechanism for
+distributing EAS and alert and warning messaging via digital television
+and satellite to an expanded range of re-transmission media such as
+cell phone service providers, computers, PDAs and other wireless
+devices.
+ Through the use of a Geo-Targeted Alerting System (GTAS), which
+uses reverse 911 technology, we will also test the ability to provide
+targeted warning down to the individual household or business. This
+proven technology will be conducted in the National Capital Region in
+cooperation with NOAA's Forecast Systems Laboratory and DHS's National
+Capitol Region Office.
+ While conducting proof of concept pilots for improving alert and
+warning capabilities, we are simultaneously beginning to upgrade and
+expand the Primary Entry Point broadcast stations from a ground-based
+dial-up system to satellite transmission. This upgrade will expand the
+location of entry point receiver stations and will ensure their
+survivability in the event of a catastrophic attack on the homeland.
+ We recognize that there is no single solution set that will meet
+everyone's alert and warning requirements, that is why FEMA, IAIP and
+the Department has teamed up with NOAA, the FCC, and the private sector
+to find the most appropriate interoperable solutions to develop an
+Integrated Public Alert and Warning System (IPAWS). We believe that
+IPAWS, using digital technology in combination with upgraded Primary
+Entry Point EAS capabilities, will provide Federal, state and local
+emergency managers and leaders with the tools they need to protect
+America from both man--made and natural disasters. At the same time we
+are aware of the concerns of our state partners who have invested in
+their own alert and warning systems. With that in mind, IPAWS is
+intended to be fully interoperable with those systems using common
+alerting protocols
+ Mr. Chairman, these are just some examples of how FEMA and the
+Department of Homeland Security has taken seriously its responsibility
+to ensure the quick and accurate dissemination of alert and warning
+information to our homeland security partners and the American public.
+ Thank you again for the invitation to speak, for your support of
+the Department's mission, and for your interest in the Emergency Alert
+System. I will be pleased to answer any questions you may have.
+
+ Mr. Shadegg. Mr. Dailey.
+
+ STATEMENT OF JAMES DAILEY, DIRECTOR OF HOMELAND SECURITY,
+ FEDERAL COMMUNICATIONS COMMISSION
+
+ Mr. Dailey. Good morning, Mr. Chairman and distinguished
+members of the subcommittee. I am James Dailey, Director of the
+Enforcement Bureau's Office of Homeland Security at the Federal
+Communications Commission, and I appreciate the opportunity to
+come before you today to talk about the Emergency Alert System.
+ For over 50 years, the United States has had a mechanism in
+place for the President to communicate with the public in the
+event of a national emergency. Throughout this time, it has
+been the FCC's responsibility to ensure that the broadcast
+media had the capability to deliver Presidential emergency
+notification. That mechanism is the Emergency Alert System.
+ In general, the Commission's rules prescribe technical
+standards for EAS, procedures for radio and television stations
+and cable systems to follow in the event EAS is activated, and
+the EAS testing protocols. The current Emergency Alert System
+requires radio, television, and cable systems to deliver a
+Presidential activation of EAS, but their use of EAS and in
+response to State and local emergencies, while encouraged, is
+only voluntary.
+ Though the Cold War is behind us, we face a new homeland
+security threat, and the Commission is acutely aware of the
+importance to the American public of timely and effective
+emergency warnings. Exciting changes are occurring in all
+communications medium as the digital migration continues to
+sweep across the technological landscape. As a result of these
+changes, EAS has recently been the subject of extensive
+examination. A broad range of issues have been raised by
+citizens, the Commission's own Federal Advisory Committee, the
+Media Security and Reliability Council, public and private
+partnerships such as the Partnership of Public Warning, and our
+Federal and State partners.
+ To ensure that we do our part to contribute an efficient
+and up-to-date public alert and warning system, last month the
+Commission released a Notice of Proposed Rulemaking. The NPRM
+seeks comment on whether EAS is the most effective way to warn
+the American public of an emergency and, if not, how the system
+can be improved.
+ In the NPRM, the Commission raises broad questions about
+whether the technical capabilities of EAS are consistent with
+the Commission's mission to ensure that public warning take
+full advantage of current and emerging technologies. The NPRN
+also addresses the issue of the permissive nature of EAS at the
+State and local level and seeks comment on whether the
+voluntary nature of State and local EAS participation is
+appropriate in today's world.
+ Additionally, there are other various issues upon which the
+Commission seeks comment. For example, what the respective
+roles of the Federal departments and agencies involved in the
+implementation of EAS should be, how the delivery pipeline for
+public warning can be made more secure and how it can be
+tested, how both emergency managers and the public can utilize
+a public warning system in the most effective manner, and how a
+public warning system can most effectively provide warnings to
+the disabled community and communities for whom English is a
+second language. Indeed, a key focus is how to reach each and
+every citizen with the right emergency alert and warning
+information at the right time.
+ The FCC has and will continue through the NPRM proceeding
+to coordinate with DHS, FEMA, NOAA, and others. We anticipate
+that our Federal partners will be active participants in the
+proceedings. In addition to seeking comments from all
+interested individuals and Federal entities, we specifically
+seek the participation of State and local emergency management
+agencies and other interested parties; and, finally, we seek
+input from all elements of the communications sector interested
+in developing a more effective alert and warning
+infrastructure.
+ As Chairman Powell noted in his statement supporting the
+EAS Notice of Proposed Rulemaking, the NPRN is, quote, one of
+many vehicles by which we collectively explore the most
+effective mechanism for warning the American public of an
+emergency and the role of EAS as we move further into our
+digital future, unquote.
+ We look forward to working with Congress, Federal, State,
+and local emergency managers, industry, the public, and others
+to ensure that we can provide such a warning system to the
+American people. I thank you, Mr. Chairman, for the opportunity
+to appear before you today, and I will pleased to answer any
+questions you and the members may have.
+ Mr. Shadegg. Thank you very much, Mr. Dailey.
+ [The statement of Mr. Dailey follows:]
+
+ Prepared Statement of James A. Dailey
+
+ EXECUTIVE SUMMARY OF JAMES DAILEY'S STATEMENT
+
+ Since the Cold War era, the United States has had a mechanism in
+place for the President to communicate with the public in the event of
+a national emergency. Throughout this time it has been the FCC's role
+to ensure that our licensees have the capability to deliver a
+Presidential level activation. Under the current Emergency Alert
+System, (known as EAS) all analog broadcast radio, television and cable
+systems are required to deliver a Presidential level activation of EAS,
+but their use of EAS in response to State and local emergencies, while
+encouraged, is voluntary.
+ Though the cold war is behind us, we still face homeland security
+threats and are acutely aware of the importance of timely and effective
+warnings. In addition, there are exciting changes in our communications
+medium as the digital migration continues to sweep across our country.
+As a result of these changes, EAS has recently been the subject of much
+examination. A broad range of issues have been raised by citizens, the
+Commission's federal advisory group the Media Security and Reliability
+Council, public/private partnerships such as the Partnership for Public
+Warning, and our federal and state partners. To ensure that we do our
+part to contribute to an efficient and technologically current public
+alert and warning system that can alert each and every citizen the
+Commission recently released a Notice of Proposed Rulemaking (NPRM)
+that seeks comment on whether the current EAS is the most effective way
+to warn the American public of an emergency and, if not, how the system
+can be improved.
+ In the NPRM, the Commission raises broad questions about whether
+the technical capabilities of EAS are consistent with the Commission's
+mission to ensure that public warning take full advantage of current
+and emerging technologies, particularly digital broadcast media. In the
+NPRM, the Commission also addresses the issue of the permissive nature
+of EAS at the state and local level and seeks comment on whether the
+voluntary nature of the state and local EAS structure is appropriate in
+today's world. Additionally, there are various miscellaneous issues
+upon which the Commission seeks comment. For example, what the
+respective roles of the federal government departments and agencies
+involved in the implementation of EAS should be, how the delivery
+pipeline for public warning can be made more secure and how it can be
+tested, how both emergency managers and the public can use and respond
+to a public warning system in the most effective manner, and how a
+public warning system can most effectively provide emergency warnings
+to the disabled community and communities for whom English is a second
+language. Indeed, a key focus is how to reach each and every citizen.
+ The issues addressed in the NPRM have been coordinated with the
+Department of Homeland Security (DHS) and its component, the Federal
+Emergency Management Agency, (FEMA), and with the National Oceanic and
+Atmospheric Administration (NOAA) and its component, the National
+Weather Service (NWS). The Commission values these agencies' continued
+participation in our review of EAS.
+ As Chairman Powell noted in his statement supporting the EAS Notice
+of Proposed Rulemaking, the EAS NPRM is ``one of many vehicles by which
+we collectively explore the most effective mechanism for warning the
+American public of an emergency and the role of EAS as we move further
+into our digital future.'' We look forward to working with Congress,
+our colleagues at other Federal and State agencies, and the public to
+ensure that we can provide such a warning system to our citizens.
+Written Statement of James A. Dailey
+
+INTRODUCTION
+ Mr. Chairman, Ranking Member, and Members of the Subcommittee:
+ Good morning. I am James A. Dailey, Director of the Enforcement
+Bureau's Office of Homeland Security at the Federal Communications
+Commission. I welcome this opportunity to appear before you to discuss
+the Emergency Alert System (known as EAS).
+ As Chairman Powell recently testified before the Senate Committee
+on Commerce, Science and Transportation, the FCC is committed to play
+our part in protecting our homeland and has designated Homeland
+Security as one of the Commission's six strategic goals, with
+particular attention to public safety and private sector readiness. The
+Commission is well aware that an effective public alert and warning
+system is an essential element of emergency preparedness, and that such
+a system is impossible without effective private sector participation.
+Accordingly, the Commission has been working with other Federal
+agencies and the private sector to ensure that the American public is
+provided with a robust, efficient and technologically current alert and
+warning system. This morning, I will provide you with a brief history
+of EAS and review the Commission's recent efforts to enhance and
+improve the system.
+
+BACKGROUND
+ Since the early days of the Cold War, it has been the policy of the
+United States to ensure a mechanism exists whereby the President can
+notify the American Public in the event of a national emergency. This
+mechanism began in 1951 when President Truman established CONELRAD,
+which stands for Control of Electromagnetic Radiation. This early
+system had a two-fold purpose: one, to warn the public of an imminent
+attack; and two, to limit broadcasting and thus restrict the ability of
+enemy missiles to use broadcasters as targeting beacons. Subsequent
+systems, such as CONELRAD's replacement, the Emergency Broadcast
+System, established in 1963 by President Kennedy, and the current
+Emergency Alert System were not designed to thwart attack, but were
+still based on the perceived need to have a sole, last resort method
+for the President to contact the American public in time of emergency,
+when other communication channels may be unavailable. The national
+Presidential message that is the foundation of EAS relies on delivery
+through analog radio and television broadcast stations and wired and
+wireless cable systems, and when activated, would override all other
+broadcasts or cable transmissions, national and local, to deliver an
+audio message from the White House. This system, mandatory at the
+national level, is also available on a voluntary basis for states and
+localities to deliver local emergency notification.
+
+CURRENT OPERATION OF THE EAS SYSTEM
+ The Federal Communications Commission, in conjunction with the
+Federal Emergency Management Agency (FEMA) and the National Weather
+Service (NWS), implements EAS at the federal level. The respective
+roles currently are based on a 1981 Memorandum of Understanding between
+FEMA, NWS, and the Commission, on a 1984 Executive Order, and on a 1995
+Presidential Statement of Requirements.
+ EAS mandates only delivery of a ``Presidential message'' and the
+Commission's EAS rules primarily are concerned with the implementation
+of EAS in this national role. In general, the Commission's rules
+prescribe: (1) technical standards for EAS; (2) procedures for radio
+and television broadcast stations and cable systems to follow in the
+event EAS is activated; and (3) EAS testing protocols. Under the rules,
+national activation of EAS for a Presidential message is designed to
+provide the President the capability to transmit within ten minutes
+from any location at any time, and must take priority over any other
+message and preempt other messages in progress. Commission rules
+mandate EAS obligations only for analog radio and television stations,
+and wired and wireless cable television systems. Other systems,
+including, for example, low earth orbit satellite systems, paging,
+direct broadcast satellite (DBS), digital television (DTV), satellite
+Digital Audio Radio service (satellite DARS), and In-Band-On-Channel
+Digital Audio Broadcasting (IBOC DAB) currently have no EAS
+requirements.
+ Activation of the national-level EAS rests solely with the
+President. The Robert T. Stafford Disaster Relief and Emergency
+Assistance Act authorizes the President to make provisions for
+emergency preparedness communications and dissemination of warnings to
+governmental authorities and the civilian population in areas
+endangered by disasters. This authority has been delegated to the
+Department of Homeland Security's (DHS) Undersecretary for Emergency
+Preparedness and Response as director of FEMA. FEMA acts as the White
+House's executive agent for the development, operations, and
+maintenance of the national level EAS and is responsible for
+implementation of the national level activation of EAS, as well as EAS
+tests and exercises. Further, the National Oceanic and Atmospheric
+Administration, through the National Weather Service, makes extensive
+use of EAS to report weather and other emergencies.
+ EAS is essentially a hierarchal distribution system. FEMA has
+designated 34 radio broadcast stations as Primary Entry Point (PEP)
+stations. At the request of the President, FEMA distributes
+``Presidential Level'' messages to these PEP stations. As the entry
+point for national level EAS messages, the PEP stations are monitored
+in turn by other stations in the hierarchical chain. Broadcast stations
+and cable systems are required to monitor at least two EAS sources for
+Presidential alerts, as specified in their state EAS plans. Initiating
+an EAS message, whether at the national, state, or local level, is
+accomplished via dedicated EAS equipment. The EAS equipment provides a
+method for automatic interruption of regular programming and is capable
+of providing warnings in the primary language that is used by the
+station or cable system.
+ State Emergency Communications Committees and Local Emergency
+Communications Committees, comprised of emergency management personnel
+and volunteers from industry, may be established in each state and
+territory to prepare coordinated emergency communications systems and
+to develop state and local emergency communications plans and
+procedures making use of the EAS protocol and other Public Alert and
+Warning systems the state may use in combination with EAS. These
+committees also establish authentication procedures and the date and
+time of the required monthly EAS tests. FCC rules accommodate these
+state and local alert codes--such as the Amber alert code adopted by
+the FCC in 2002.
+ Along with its primary role as a national public warning system,
+EAS--and other emergency notification mechanisms--are part of an
+overall public alert and warning system, over which FEMA exercises
+jurisdiction. EAS use as part of such a public warning system at the
+state and local levels, while encouraged, is merely voluntary. Thus,
+although Federal, state, and local governments, and the consumer
+electronics industry are taking steps to ensure that alert and warning
+messages can be delivered by a responsive, robust and redundant system,
+at the state and local level the voluntary nature of EAS has resulted
+in an inconsistent application of EAS as a component of an overall
+public alert and warning system for the American public. The public
+receive most of their alert and warning information through the
+broadcaster's and cable systems' voluntary activations of the EAS
+system on behalf of state and local emergency managers.
+
+CURRENT ISSUES
+ The communications landscape is now drastically different from the
+Cold War era when EAS and its predecessors were originally conceived.
+Thus, the top down, one size fits all EAS approach may no longer be
+appropriate. Also, the introduction of wireless and digital
+technologies has broadened significantly the media through which public
+alert and warning can be delivered.
+ Under Chairman Powell's leadership in the period after the tragic
+events of 9/11, the Commission, through the Homeland Security Policy
+Council, and more recently, the Enforcement Bureau's Office of Homeland
+Security, has worked to provide leadership to the industries the
+Commission regulates to evaluate and strengthen the Communications
+infrastructure. One of the most visible results of this effort is the
+Media Security and Reliability Council (known as MSRC), a Federal
+Advisory Committee created by the Commission in March 2002, and
+comprised of leaders from the radio, television, multi-channel video,
+public safety and disabled communities.
+ In March 2004, the MSRC's Public Communications and Safety Working
+Group reported on the efficacy of EAS as a public warning mechanism.
+The Partnership for Public Warning (known as PPW), a not-for-profit,
+public-private partnership incorporated in January 2002, with the goal
+of promoting and enhancing effective, integrated dissemination of
+public warnings, provided another analysis. Both MSRC's Working Group
+and PPW advocate upgrading, not replacing, EAS. In particular, PPW
+asserts that any new public warning system design should take advantage
+of the existing EAS infrastructure and should be able to accommodate
+existing EAS equipment, noting that it would be difficult to replace or
+rebuild such a capability today at a reasonable cost.
+
+RULEMAKING PROCEEDING
+ Based in large part on the recommendations of the MSRC Working
+Group and PPW, the Commission, on August 4, 2004 adopted a Notice of
+Proposed Rulemaking (NRPM) to treat, in a comprehensive fashion, the
+efficacy of EAS and the role of EAS as part of an overall public alert
+and warning structure. The NPRM seeks comment on whether EAS as
+currently constituted is the most effective and efficient public
+warning system that best takes advantage of appropriate technological
+advances and best responds to the public's need to obtain timely
+emergency information. The NPRM also seeks comment on rules the
+Commission may adopt to enhance the effectiveness of EAS. The
+Commission encourages commenters to take into account MSRC's and PPW's
+recommendations.
+ One of the central issues on which the Commission seeks comment is
+the current role of EAS in an age when the communications landscape has
+evolved from what it was when EAS predecessors--and EAS itself--were
+originally conceived. In the NPRM, the Commission also seeks comment on
+the future roles of the federal government departments and agencies
+involved in the implementation of EAS.
+ The NPRM asks questions about the technical capabilities of EAS.
+New technologies, such as digital television, cellular technology, and
+personal digital assistants are rapidly redefining the communication
+and broadcast landscape, making available to the public warning
+technologies that are far more flexible and effective than the analog
+mechanism currently employed by EAS. Because EAS relies almost
+exclusively on delivery through analog radio and television broadcast
+stations and cable systems, the NPRM asks whether EAS is outdated, how
+it could be made more efficient, and whether it should it be phased out
+in favor of a new model. Further, the Notice queries: If a new model
+were to be adopted, what legal and practical barriers must be overcome
+to ensure its implementation and effectiveness? What technologies
+should serve as the basis for such a model? Alternatively, should EAS
+requirements be extended to other services, such as digital TV, digital
+audio broadcast, digital audio radio, or cellular telephones? The NPRM
+also seeks comment on security issues relevant to EAS and on the
+important question of how best to supply an effective public warning
+system to the disabled community and non-English speakers.
+ The FCC already has begun--and will continue throughout this
+proceeding--to coordinate with DHS and its component, FEMA, and the
+Department of Commerce and its component, the National Oceanic and
+Atmospheric Administration's National Weather Service. We anticipate
+these federal partners will be active participants in the proceeding.
+In addition to seeking comments from all interested individuals and
+federal entities on the issues raised in the NPRM, we specifically seek
+the participation of state and local emergency planning organizations
+and solicit their views. Finally, we seek input from all
+telecommunications industries concerned about developing a more
+effective EAS. Comments are due October 29, 2004; reply comments are
+due November 29, 2004.
+
+CONCLUSION
+ As Chairman Powell noted in his statement the EAS NPRM is ``one of
+many vehicles by which we collectively explore the most effective
+mechanism for warning the American public of an emergency and the role
+of EAS as we move further into our digital future.'' We look forward to
+working with Congress, our colleagues at other Federal and State
+agencies, and the public to ensure that we can provide such a warning
+system to our citizens.
+ The FCC is also aware that the Congress is taking an active
+interest in the issue of public alert and warning, and would welcome
+Congressional guidance in this area that would bring added certainty to
+the industry. The Commission stands ready to provide whatever technical
+assistance that the Congress would find helpful in this regard.
+ I thank you, Mr. Chairman, for the opportunity to appear before you
+today. This concludes my testimony and I would be pleased to answer any
+questions you or the other members may have.
+
+ Mr. Shadegg. Ms. Henning.
+
+ STATEMENT OF KATHLEEN HENNING, CERTIFIED EMERGENCY MANAGEMENT
+ INTERNATIONAL ASSOCIATION OF EMERGENCY MANAGEMENT
+
+ Ms. Henning. Thank you. Thank you, Chairman Shadegg, and
+Ranking Member Thompson and the distinguished members of the
+committee for allowing me the opportunity to testify on
+emergency warning for public responders and the public from the
+perspective of emergency managers.
+ I am Kathleen Henning. I am President of K.G. Henning &
+Associates. I am a board certified emergency manager. I have
+recently retired from Montgomery County Maryland after 29 and a
+half years of service as the emergency manager; and I am here
+today to testify on behalf of the International Association of
+Emergency Managers, Daryl Spiewak, our President, and the 2,800
+city and county emergency managers that make up our
+association. I appreciate your holding this hearing on what is
+a very important issue to us, and I would like for my full
+statement to be made a part of the record.
+ As they say, life is very short, and we should eat dessert
+first, so I am going to actually begin my statement with some
+of the things that I have put in my summary document.
+ There is clearly a role for the media, for government, for
+private and public partnerships when it comes to emergency
+warning, and we need to employ a comprehensive system, but we
+also need to make sure that it is integrated and that it is
+coordinated with State and local officials. While there are
+sirens that may work for some communities around nuclear power
+plants or chemical facilities, sirens are not going to be very
+effective in other jurisdictions, in large communities with
+multi-hazards. Weather radios--the NOAA weather radios work
+very well in most of the country, but the problem is that the
+citizens are not really using these radios to the best
+advantage. We really need to have a concerted national effort
+to get these important tools into vulnerable institutions such
+as hospitals and nursing homes and our schools and essential
+government facilities.
+ The EAS system clearly needs some work and has not been
+effectively utilized across the country. We need to have
+improved coordination with State and local officials, and we
+need to have mandatory capabilities for overriding and putting
+in emergency messages.
+ We are also challenged by the mobility of our communities
+today. People move across jurisdictional lines. As responders,
+we have to go across jurisdictional lines. So it is very
+important that we take advantage of all the technologies that
+are out there--the cell phones, the telephones, the reverse 911
+systems, the automated notification systems, the blackberries
+and other technologies that are out there and must be made
+available on a 24/7 basis. We need to look at all of these
+systems, but the systems, in order to be effective, have to be
+reliable, effective, redundant, and appropriate to our
+community needs.
+ Some of the things that we would like to emphasize in
+looking at these systems are to make sure that we use an all
+hazards approach and that we stay connected. After September
+11th, we as a community looked at homeland security issues. We
+need to stay connected with our Federal officials, need to stay
+connected with our State officials, need to stay connected with
+our local officials, need to stay connected, most importantly,
+with the clients we serve, who are the citizens. We have to not
+say ``what if'' but anticipate that there will be major
+disruptions to power and have systems that can work despite
+that.
+ We are facing new challenges. I was part of the EOC that
+responded to the sniper attacks that affected Washington, D.C.,
+and one of the things that was very important to us and that
+was successful was getting messages out to the schools to make
+sure that they could lock down quickly.
+ We have already experienced the problems of bioterrorism,
+the anthrax attacks, for example. There were public health
+officials who couldn't talk to other public health officials
+directly across lines. And that is one of the areas, for
+example, where you are not going to be very effective if you
+are only using sound bites. You really are going to need to put
+out more detailed information to be able to share that
+information.
+ I have mentioned the mobility of our citizens and that FEMA
+is asking us to look at warning issues through mutual aid
+agreements and other plans. I think we need to improve our
+public partnerships.
+ The State Director of Emergency Management in Florida,
+Craig Fugate, said last year, you can purchase a lot of
+equipment, you can train your emergency managers, but if you
+can't reach the people at 3:00 in the morning, you are just not
+going to effectively improve the outcome. And that is what we
+need to do. We need to have a system that can reach our people
+24 hours a day and that is integrated with State and local
+officials.
+ I want to thank you very much for the opportunity to come
+and testify today, and I am glad to answer any questions that
+you have at the end of our statements. Thank you very much.
+ Mr. Shadegg. Thank you very much for your opening
+statement.
+ [The statement of Ms. Henning follows:]
+
+ Prepared Statement of Kathleen Henning
+
+Introduction
+ Thank you Chairman Shadegg and Ranking Member Thompson, and
+distinguished members of the Committee for allowing me the opportunity
+to provide you with testimony on Emergency Warning Systems, and ways to
+notify the public from the perspective of the Emergency Management
+community.
+ I am Kathleen Henning, President of K.G.Henning & Associates, a
+certified emergency manager, and retired Program Coordinator of
+Montgomery County, Maryland Office of Emergency Management. I retired
+last February as the Emergency Manager after 29 1/2 years of service to
+the County. I am here today representing IAEM President Daryl Spiewak
+of Waco, Texas, and the International Association of Emergency Managers
+(IAEM). Currently, I am a member of the IAEM Governmental Affairs
+Committee and I come before you today to represent the 2800 city and
+county emergency management professionals in the 50 states and the U.S.
+territories who are its core members. IAEM's members are responsible
+for emergency preparedness, mitigation, response and recovery
+activities and report to elected officials to ensure the public is
+warned in times of emergency. We appreciate your holding this hearing
+and focusing attention on this important issue.
+
+All Hazards Approach
+ The International Association of Emergency Managers takes the
+position that the focus for public alerts and warnings must maintain an
+All-Hazards Approach. We have all been reminded of the importance of
+warnings for hurricanes, floods, and tornadoes by Hurricanes Charley,
+Francis, and Ivan. IAEM President Daryl Spiewak, CEM, reminds us that
+in addition to dealing with these deadly and destructive storms, our
+emergency managers continue to deal with other all hazard issues such
+as extreme summer heat, wildland fires, power losses, early winter
+storms, hazardous materials events, transportation and utility
+disruptions, as well as terrorist threats and activities.
+
+Need to Stay Connected
+ In a post September 11th world, where citizen populations and
+public infrastructure may increasingly be targets for acts of violence,
+it is critically important to remain connected to both federal and
+local sources of information.
+ Disruptions to power and utilities, whether from severe weather--or
+from threats to homeland security--require redundant emergency alert
+and warning systems.
+
+New Era of Homeland Security
+ Citizens are facing new challenges on the home front. During the
+Sniper Attacks in the National Capital Region, Montgomery County,
+Maryland, relied on a number of means to alert its citizens. The
+Emergency Operations Center was activated as information was collected
+and evaluated from Police and Fire officials. Especially important was
+the existing emergency management partnership with the schools which
+allowed rapid dissemination of alert information to school officials to
+warn elementary and secondary schools to lock down. Federal Bureau of
+Investigation officials and County Police held televised joint press
+conferences to ensure information was shared among agencies and
+consistent information was given to citizens. Citizens and government
+officials relied on the broadcast industry for detailed coverage of the
+unfolding event. In addition government officials used the media to
+convey warnings about potential suspects and important safety
+information. The Sniper Attacks demonstrated how coordination would be
+handled across jurisdictional lines.
+
+Bioterrorist Event
+ Similarly, in the event of a bioterrorist attack there would need
+to coordination among health officials and various governmental
+organizations. Quarantine and isolation measures might need to be
+quickly implemented to stop the rapid spread of diseases such as
+smallpox. Specific and detailed information would need to be promptly
+delivered to millions of individuals for certain public strategies such
+as quarantines to be effective.
+
+Mobility and Interoperability Challenges
+ Warning information is important not only to the individuals in
+harm's way, but also to their families, employers, and others who
+travel through the area. Our citizens are highly mobile and often move
+between jurisdictions. Information about what is happening in other
+jurisdictions is also important to local responders. The efforts of the
+Department of Homeland Security and the Federal Emergency Management
+Agency to increase the use of mutual aid agreements make it critically
+important that there be a broader and more rapid sharing of emergency
+information among the jurisdictions which may be involved. The need to
+maintain readiness without compromising our capability to respond to
+threats of terrorism means this information may need to be rapidly and
+effectively exchanged in a secure environment among emergency
+management organizations. Some communities have the capability to
+provide warnings to their citizens from a broad range of hazards. But
+statewide warning systems are often incomplete or non-existent. Part of
+the warning system must include the ability of counties and large
+cities to provide rapid information to smaller municipalities and
+townships where appropriate. We need to expand our capability to
+activate cell phones, pagers, Blackberries, and call telephones on a
+twenty-four hour basis. As noted before, it is time to look to new
+technologies to meet the needs of our citizens.
+
+Tools of the Trade
+ Local governments through their Offices of Emergency Management are
+accountable for warning the public of imminent danger and should have
+the tools to do the job. These tools vary and may include: partnerships
+with the National Weather Service and local broadcast stations; use of
+the Internet and World Wide Web access alert systems; automated
+notification systems; outdoor warning systems like sirens; and. when
+needed--door-to-door notifications by Police, Fire and other public
+safety officials. While sirens may work in some communities well versed
+in a single hazard such as a nuclear power plant, a chemical plant, or
+tornadoes, they are not effective for multiple hazards. A high degree
+of public awareness is vital to the success of sirens. It is time to
+look to new technologies to meet the needs of our citizens. Warning
+systems need to be reliable, effective, redundant, and appropriate to
+local needs with clearly devised messages. An integration of several
+systems is still the most effective overall strategy for warning
+systems.
+
+NOAA Weather Radios and Vulnerable Groups
+ IAEM supports the partnership of NWS and the Emergency Alerting
+System (EAS), but encourages improvements to the current system. NOAA
+Weather Radio remains the NWS's primary input to EAS. The NWS provides
+weather, hydrologic and climate forecasts and warnings for the United
+States and its territories. Because we are linked so closely together
+as a country, our economy is impacted by weather and events that happen
+across state lines and on opposite sides of the country, and as such,
+it is important to maintain this national information source. State and
+local authorities want the ability to input messages for all types of
+hazardous events on EAS and be able to remotely access the equipment at
+all hours of the day. Craig Fugate, Director of Emergency Management
+for the State of Florida has said ``You can purchase a lot of equipment
+and do a lot of training for first responders, but if you can't warn
+the public at 3:00AM, you haven't really improved the outcome of the
+event.'' To support state and local officials, there is an immediate
+need for mitigation and prevention funds to support the purchase of
+NOAA Weather Radios for elementary and secondary schools, vulnerable
+facilities, and for essential governmental buildings. Some communities
+have used FEMA mitigation funds to purchase radios for schools
+throughout their district while others, such as the State of Maryland,
+used the FEMA mitigation funds to provide radios for schools throughout
+the state. In Kansas City, Project Community Alert partnered with a
+major grocery chain to sell over 30,000 radios to the community and
+used mitigation funds for three Kansas and five Missouri counties to
+purchase the radios for high risk facilities. We would like to see
+these types of programs expanded with partnerships with private
+industry to encourage the use of NOAA radios in all schools, day cares,
+nursing homes, hospitals, public safety buildings, and general public
+facilities. A concerted national commitment is needed to expand the use
+of these radios in all occupied structures but especially in vulnerable
+institutions and essential government buildings.
+
+NOAA for Homeland Security Events
+ We would like to see the use of NOAA Weather Alert Radios as a
+major method of alerting the public on homeland security events. The
+Department of Homeland Security has been working with NOAA to designate
+them as a means of public warning and we would encourage the expansion
+and support of that project. Reaching vulnerable populations is
+critically important. NOAA radios provide the added protection of round
+the clock 24/7 immediate notice.
+
+EAS
+ Emergency Managers need a fast, reliable way to inject messages
+into the Emergency Alert System (EAS). At this time no single technical
+solution has been federally mandated or funded to do this. Local
+jurisdictions adopt warning systems customized to meet their own needs.
+Decentralization has resulted in a lack of standardization of messages
+and confusion in public awareness. But there can be benefits to
+multiple interfaces. For example, using multiple interfaces with the
+NWS's Weather Forecast Offices? Advanced Weather Interactive Processing
+System (AWIPS) provides redundancy if a primary system goes down due to
+hurricanes or other severe weather. Having multiple centers on
+different servers can also provide a degree of protection from computer
+viruses and hackers. Another issue for EAS is the need for improved
+coordination and integration with state and local resources. While
+Homeland Security would clearly dictate the need to activate the
+system, there are numerous smaller events that warrant its use. Without
+more frequent use and testing, the system's inadequacies will not be
+corrected for use with homeland security. Improvements are needed for
+Emergency Operations Center and Public Safety Dispatch center
+installations, as well as training of personnel on its use.
+
+Internet Access
+ Use of the Internet and World Wide Web is especially valuable in
+the preparedness phase of an emergency to advise citizens to update
+family emergency notification lists, restock disaster kits, and ensure
+special needs are handled. More importantly state and local emergency
+management and government websites provide specific and more detailed
+information customized for local needs. This includes evacuation and
+egress routes, site-specific data about environmental conditions, road
+closings, or hazardous conditions. The Internet provides access to
+Doppler Weather Radar, satellite imagery, and hazardous weather
+conditions critical to the safety of first responders, if the
+information can get to the responders in a timely fashion.
+
+Media Role and Evacuations
+ There is a role for media broadcasters, especially in helping to
+educate the public. A positive role is providing pre-event storm
+messages to the public on the differences in meaning from weather
+advisories, watches, and warnings. Similarly they can assist in
+encouraging preparedness measures. However, during emergencies it is
+critically important that the media carefully coordinate with local
+officials for announcements about protective actions. This coordination
+is vital to avoid confusing the public with contradictory messages on
+important issues. In addition, images of newscasters standing on
+beaches during high winds may send conflicting messages about the
+safety of seeking shelter or following evacuation orders. Studies have
+indicated that people consider a wide variety of factors in making
+their evacuation decision. According to a study by Dr. Kirstin Dow
+``the media--especially the Weather Channel--is viewed as the most
+reliable information source? and is highly influential in making
+evacuation decisions. This points out how important the partnership
+must be between the media and city and county officials who are issuing
+evacuation orders.
+
+NWS IT Interface
+ Among the diverse strategies available for warning is the National
+Weather Service's effort to implement a centralized point of collection
+for non-weather related emergency messages. These would be broadcast
+over existing NWS dissemination systems. The NWS is working on an All-
+Hazards Emergency Message Collection System called HazCollect IT
+system, expected to be released in the fall of 2005. HazCollect will
+provide an IT interface between state and local systems such as EMnet
+and the NWS Advanced Weather Interactive Processing System (AWIPS)
+through FEMA's Disaster Management Interoperability Services.
+
+Cable Access
+ Due the changes in viewing habits, more and more citizens now watch
+cable and direct satellite programming, and it is equally important to
+reach this audience with EAS messages. In the past IAEM has objected to
+the practice of cable systems overriding broadcaster's programming of
+state and local Emergency Alert System messages. Mandatory messages
+would improve the early warning system.
+
+Rural Communities
+ A great many communities across this country are sparsely
+populated, rural, and with limited financial resources. Among the
+resources they lack is a full-time dedicated emergency management
+agency director and emergency alert systems capable of reaching
+isolated populations. IAEM supports increases to the Emergency
+Management Performance Grants (EMPG)--the only source of all hazard
+federal funding supporting state and local government emergency
+management personnel and organizations.
+
+StormReady Program
+ The International Association of Emergency Managers supports the
+NWS StormReady program, promoting adequate warning and alert systems,
+effective Emergency Operations Centers, and prompt dispatch of public
+safety resources. Encouraging communities to strive for StormReady
+designation is a partnership which will help communities be better
+prepared to save lives through emergency planning, effective warnings,
+education, and awareness of severe weather conditions.
+
+FCC
+ IAEM has not yet taken a position on the new regulations introduced
+by FCC last month, but our members are reviewing the proposals.
+
+Research and Development
+ There has always been a need for enhanced funding for research and
+development for public warning capability. We believe it has to be
+multi-faceted to be effective. We support research and development in
+the various phases and elements of warning systems, but we do not want
+it limited to promoting a single technology. Warnings need to be
+reliable, effective, redundant, and appropriate to local needs and
+flexible and adaptable to new technologies. We believe that having the
+ability to integrate several systems is still the most effective
+overall strategy, and research and development should look at the
+integration issues as well.
+
+Summary
+ There is clearly a role for the media, private sector, and
+government, but those roles need to be coordinated and integrated.
+While sirens may work in some areas, they would not be effective in
+many other areas. Weather radios work well in most areas, but their use
+by citizens is limited at best. A concerted national commitment is
+needed to expand the use of NOAA radios in all schools, hospitals,
+nursing homes, day and elder cares and other vulnerable institutions.
+The EAS system needs work and improved integration with state and local
+governmental entities. Today we are challenged by the mobility of our
+population that moves across jurisdictions for homes, work, and
+schools. We need to expand our capability to activate cell phones,
+pagers, Blackberries, and call telephones on a twenty-four hour basis.
+As noted before, it is time to look to new technologies to meet the
+needs of our citizens. Warning systems need to be reliable, effective,
+redundant, and appropriate to local needs with clearly devised
+messages. IAEM supports an integration of several systems, in
+coordination with state and local governments and organizations, as the
+most effective overall strategy for warning systems.
+ Thank you again for the opportunity to participate in this
+important hearing. I would be pleased to answer any question you have
+and are available for any questions that you may have regarding this
+presentation.
+
+ Mr. Shadegg. Mr. Hoover, let me begin with you.
+ I don't know if you referred to all of these, but I
+understand FEMA has four pilot projects going on. I know you
+mentioned the digital EAS pilot project in the Capitol region
+with public television. There are three others, as I
+understand: the Integrated Public Alert and Warning System
+study, some $350,000; the EAS primary entry point satellite
+network upgrade; and the Geo-Targeted Telephone Alert and
+Warning System.
+ For consumers of this kind of information, how soon can we
+expect these pilot projects to take us to the next step, that
+is, the implementation of an improved warning system? As the
+Ranking Member said, we are still dealing with somewhat of an
+outdated, outmoded system, and it seems to me the American
+people deserve to know not only that we are making progress but
+what the time line for that progress is.
+ Mr. Hoover. Thank you, Mr. Chairman, for that question. And
+we are making great progress, and I think you summed up
+actually the four projects that we are doing.
+ There are two very critical things going on at the same
+time. The first is this digital pilot that we are doing with
+public television here in the National Capital Region. That is
+a 6-month pilot; and we expect that the success of that pilot
+will then be able to take it nationwide. So within the next 6
+months we ought to be looking at is that system working to
+provide us the digital backbone that the APTS has offered to
+the Federal Government and to the Department of Homeland
+Security basically free of charge to be good partners with us
+in Homeland Security. That can then form the backbone of a
+national digital system that is interoperable.
+ The other piece that is going on and is one of the findings
+that the MSRC and also PPW, Partnership for Public Warning,
+came up with was that we needed to improve and enhance the
+current EAS system, that is, those 34 primary entry point
+stations that I mentioned in my remarks. All of those folks
+have said we don't need to create a new system, we need to
+upgrade what we are doing. So with one of the four projects
+that you mentioned is to start the upgrade from the dial-up
+capability that we have now to a satellite-based system, and we
+believe we will have that in place by the end of next year.
+ Mr. Shadegg. You mentioned in your testimony reverse 911.
+Can you explain reverse 911 for the committee and the public?
+ Mr. Hoover. No.
+ Mr. Shadegg. That was the answer my staff gave me when I
+asked that.
+ Mr. Hoover. Mr. Chairman, my understanding of the reverse
+911, it builds on the capability to dial back to you from your
+home, from your home phone number, similar to the caller ID.
+And with my technical folks, maybe we can get you a much better
+explanation.
+ But the specifics of what we are doing with this geo-
+targeting capability takes the reverse 911 capability kind of
+to the next level that we have--they have basically geo-coded
+down to the individual household and business all of the phone
+numbers in the area, and so we will be able to pinpoint
+exactly, using plume modeling or any other model that is out
+there, a telephone call back to somebody and give them a
+particular warning or alert message. So we are very excited
+about the technology that has already been proven and NOAA has
+been demonstrating--I think in Houston is where they have used
+it--and now we want to take that and try to integrate that into
+the overall structure of the Integrated Public Alert and
+Warning System.
+ Mr. Shadegg. AMBER alert has appeared to demonstrate pretty
+stunning success so far. There have been 150 children
+successfully recovered. Is AMBER alert the model for the future
+in terms of these warning systems, or are there things that
+should be taken from AMBER alert and expanded beyond that?
+ Mr. Hoover. I think the second part of your answer, Mr.
+Chairman. AMBER alert is certainly one solution set that is out
+there. And what we need, and I think the members have pointed
+out, is we need to have a common alerting protocol so that as
+whatever the messages are that are common across the board from
+the State, from the local, and from the Federal Government as
+we use the system, the model that the AMBER alert folks have
+put forward, and certainly your State in Arizona with the AMBER
+alert portal, certainly seems to be something we are interested
+in; and we want to try to integrate a portal-like look to the
+digital pilot that we are doing here in the National Capital
+Region.
+ Mr. Shadegg. Mr. Dailey, is your role limited to setting up
+the structure or are you active participants in creating the
+system? And I guess I am thinking of specifically the ability
+to use pagers, the ability to use this kind of a device for
+notification, the ability to use cell phones for notification.
+ Mr. Dailey. We have multiple roles. The current system that
+is mandated for the Presidential delivery is in the FCC rules.
+The broadcasters must participate. They must install the
+equipment. We inspect the broadcast stations on a random basis
+to make sure the equipment is there and functional so that it
+can be used by the President when needed. And, as you said, it
+has never been used for that function. So when not used by the
+President, it can be used on a voluntary basis. But the
+equipment, the infrastructure is there.
+ So the questions that we ask in our Notice of Proposed
+Rulemaking is, fundamentally, what do we need to do to mandate
+or should we mandate participation in alert and warning at
+various levels or can the marketplace forces and the community
+forces be sufficient to provide an appropriate alert and
+warning system?
+ Because we are really talking about several layers of alert
+and warning. We have the Presidential or national alert warning
+or, for the command structure of the country, a system whereby
+the Secretary of the Department of Homeland Security can
+address the Nation. Then you want an alert and warning system
+that permits the governor the same option, and you want a
+system that permits the mayor or the county emergency manager
+or the county executive director to have that same option. So
+you are talking about a layered system, and how we would
+implement that and whether it needs to be mandated or not is
+really the broad question.
+ Mr. Shadegg. Ms. Henning, although my time has expired, I
+will try to get you in the second round. You are the consumer
+on this panel who can tell us how these other gentlemen are
+doing their jobs.
+ I would now call on Mr. Thompson, the Ranking Member, for
+his questions.
+ Mr. Thompson. Thank you, Mr. Chairman.
+ And I would--Mr. Hoover, Mr. Dailey, you can choose which
+one would want to go first, but since a lot of what we are
+talking about came about because of 9/11, can you tell me why
+we didn't have a Presidential alert on 9/11?
+ Mr. Hoover. The current EAS system was designed during the
+Cold War; and I think, as one of the members pointed out, in
+the 1950s it was designed to warn the Nation of an impending
+nuclear strike on the country. It was designed to put the
+President on a nationwide message to the country to tell them,
+you know, that missiles are inbound or perhaps the missiles
+have already struck and give critical information to the Nation
+in time of emergency.
+ This September 11th attack--and I was not in the government
+at the time. But the September 11th attack was not something
+that the system was necessarily designed to use at the national
+level but certainly could have been used at the State and local
+level. There are provisions, as Mr. Dailey pointed out, for
+State and local emergency managers to activate and use the
+system, as well as the State governors could use the system if
+they wanted to.
+ Mr. Thompson. Well, you know, some of us were directly
+involved in it; and we saw no warning of any kind. And if
+members of Congress didn't get any warning, you know, the
+public is assuming that this system should work. And I guess
+the question been answered.
+ The other part is, how many people actually got notified by
+our emergency warning system on 9/11?
+ Mr. Hoover. Mr. Thompson, I don't know the answer to that,
+but we can try to find the answer for you.
+ Mr. Thompson. Well, then I will take it another step. How
+many could potentially have been warned under the existing
+system?
+ Mr. Hoover. Mr. Thompson, under the existing system we
+believe that we can reach at least 95 percent of the Nation.
+ Mr. Thompson. At 9/11.
+ Mr. Hoover. At 9/11, when the system that we currently
+have, which is the system that we had in place on 9/11, the
+system is designed through the 34 primary entry point stations
+to reach 95 percent of the American public.
+ Mr. Thompson. But it is your testimony today that we didn't
+use it.
+ Mr. Hoover. That is correct. We did not use it on September
+11th at the national level.
+ Mr. Thompson. Well, that is kind of startling to have it
+and not use it, and the public would assume--but we will go
+forward. I understand that we put a working group together to
+start looking at some of these issues around our emergency
+warning system, and the White House report recommended that
+this group be put together to do a single, consistent, easily
+understood terminology, biohazards and situations. Had we put
+that group together?
+ Mr. Hoover. I am not sure which group you are referring to,
+but there have been a number of groups. The FCC has put
+together a Media Security and Reliability Council that we have
+been a part of to look at all of the issues surrounding
+improving the EAS. And perhaps Mr. Dailey can talk a little bit
+more on that.
+ I can tell you, from our perspective, we have brought
+together members of the State and local government, we have met
+with members of the media and our other partners within the
+government, NOAA and IAIP, to develop what we believe is a very
+useful and great potential solution to improving the current
+state of the--
+ Mr. Thompson. Well, the specific report was a White House
+report issued in 2000 that recommended a working group be
+established. And my question is whether or not, to your
+knowledge, was it ever established?
+ Mr. Hoover. No, I don't think so. But I will go back, and
+we can check back on that.
+ Mr. Thompson. Okay. The report was entitled Effective
+Disaster Warnings, and it was quite clear that certain things
+ought to be handled.
+ The other issue speaks to the same White House report,
+recommended that warnings should be delivered through as many
+communication channels as practical so that the users who had
+risks, inside or outside, at work, home, school, or shopping,
+or in transportation--have we done that today?
+ Mr. Hoover. Yes, sir, we have. We are moving forward with
+funding that was provided in the President's 2004 budget that
+was $10 million dollars to IAIP. We have now developed the
+capability to do that. We have not deployed that capability,
+and we believe that using the digital backbone that the public
+television service stations are offering to us, that we will be
+able to do it.
+ Mr. Thompson. Just to follow up. How far are we from having
+the system?
+ Mr. Hoover. We are within weeks of deploying a digital EAS
+capability here in the National Capital Region, which will then
+be able to reach the re-transmission medium. And I should point
+out that we have also engaged the cell phone service providers
+to be involved in that project so that we can not only talk to
+folks or send messages out over the TV and radio but also call
+you on your cell phone, your pager, your PDA.
+ Mr. Thompson. I understand. Capital Region. But what about
+Mr. Cox in California?
+ Mr. Hoover. Mr. Cox in California does not yet have the
+capability that we have--we are going to demonstrate here in
+the National Capital Region. We believe that it will be
+successful and that by the end of next year we will be able to
+take that digital backbone and go nationwide with it.
+ Mr. Shadegg. By unanimous consent, the Ranking Member of
+the full committee was to be afforded an opportunity to make an
+opening statement. He has now arrived.
+ Mr. Turner, would you like to make any opening comments?
+ Mr. Turner. I am fine. Thank you, Mr. Chairman.
+ Mr. Shadegg. The Chair would call upon the chairman of the
+full committee, Mr. Cox, for questions.
+ Mr. Cox. Thank you.
+ I would just like to continue with Mr. Thompson's inquiry.
+The digital capability that we are exploring is aimed in the
+pilot project here in Washington at cell phones?
+ Mr. Hoover. Yes. Mr. Cox, what we are doing with the
+Association for Public Television Stations and the public and
+the digital capability that they are offering us is we are
+trying to have an open architecture, non-proprietary system
+that will be interoperable with State and local government and
+other systems that States have already invested in.
+ Mr. Cox. Did you say 60 days is the length of the pilot?
+ Mr. Hoover. The pilot? Six months.
+ Mr. Cox. Six months. And will you demonstrate within a 6-
+month period cell phone capability?
+ Mr. Hoover. Yes. We have been in active discussions with T-
+Mobile, with Verizon and Nextel to be involved in and engaged
+in the pilot project with us.
+ Mr. Cox. And do you know what happens if I am on a call?
+ Mr. Hoover. I do not.
+ Mr. Cox. Is this digital capability going to reach e-mail
+devices?
+ Mr. Hoover. Yes.
+ Mr. Cox. And will the capability be demonstrated, for
+example, on a Blackberry or on e-mail-equipped cell phones?
+ Mr. Hoover. Yes. And I should point out as well, we have
+been in discussion with the Weather Channel, which has been a
+great partner with FEMA over the years, in using some of their
+capability. Because they also have that capability and have
+demonstrated a nationwide capability to alert you on your cell
+phone, on your pager, on your telephone of weather warnings in
+your area. That is a subscription service, and we are very
+interested in--next month in October--meeting with the Weather
+Channel as a follow-up to integrate them into this as well.
+ Mr. Cox. How does the digital backbone open architecture
+pilot address Ms. Henning's main point, that you have got to
+reach people at 3:00 in the morning when they are asleep?
+ Mr. Hoover. Well, that is certainly one of the challenges.
+And there are manufacturers that we are aware of that have
+developed some capability--maybe Mr. Dailey can address that--
+where that will turn on your television or turn on your radio
+or shake the bed. And there is other technologies.
+ Mr. Cox. I was trying to make this an easy question. Most
+people in America have telephones. Isn't that the good news?
+ Mr. Hoover. Yes, sir.
+ Mr. Cox. Can't we just call them?
+ Mr. Hoover. We can. And that is the reverse 911, that geo-
+targeting technology.
+ Mr. Cox. Is that going to be part of this demonstration?
+ Mr. Hoover. Yes, it is.
+ Mr. Cox. So somebody can get a call at 3:00 in the morning
+as part of this pilot?
+ Mr. Hoover. Potentially, yes, sir.
+ Mr. Cox. Hopefully not potentially, or we haven't
+demonstrated much.
+ Now, on the existing system that was designed for the
+President, my understanding is that legally, even though other
+people can use this system, only the President can make it
+mandatory. Is that right?
+ Mr. Hoover. Yes, that is correct. The Presidential message
+is the only mandatory message that is required to be carried
+over the system. But there are four priority messages. The
+State governor has the capability to send a message as well.
+But the Presidential message will always take priority.
+ Mr. Cox. When the governor decides to send a message, does
+that also--is that also command and control? So it is not
+discretionary for broadcasters?
+ Mr. Hoover. It is discretionary. Only the President's
+message is a mandatory message.
+ Mr. Cox. I am just now thinking about a real emergency; and
+if the ability to command the system is limited to the
+President or his constitutionally designated successor and
+there is something that happened to the President or the
+President just happens to be carried someplace where he can't
+access this, then we can't use it.
+ It is also limited to only 2 minutes. Isn't that right?
+ Mr. Hoover. No, the Presidential message, Mr. Cox, is an
+unlimited message, and we do have the capability to reach
+either the President or the statutory successor President from
+anyplace to get that system activated.
+ Mr. Cox. Well, provided there is nothing wrong with him.
+ Mr. Hoover. Provided there is nothing wrong with the
+President?
+ Mr. Cox. I mean, what you have got to operate here is
+either the statutory succession process or you have got to have
+the President constitutionally disabled. But anything short of
+that and just that system is not going to work.
+ What I want to ask you is how much of that is a regulation
+and how much of that can we clarify through executive action
+and how much of it needs to be fixed by Congress?
+ Mr. Hoover. I would defer to Mr. Dailey to answer that
+question.
+ Mr. Dailey. The short answer is I don't know. The basis of
+the Emergency Alert System is a Presidential statement of
+requirements that has been renewed over the years in which the
+President requests to have the capability to address the public
+within 10 minutes, and so the system is designed to do that.
+Whether or not it will take legislation or changes in the
+Presidential statement requirements to implement a more
+enhanced or expanded service--
+ Mr. Cox. If you can get back to us, that is fine.
+ Mr. Dailey. Okay.
+ Mr. Cox. Now, the system is capable of being used
+regionally. Under existing law and regulations, can the
+President decide to use it regionally? Can we have a mandatory
+use of the system that does not operate nationwide?
+ Mr. Hoover. I don't know the mechanics of that, Mr. Cox,
+but we can find the answer--and maybe you do. I don't know, if
+we turn it on at the national level, if that automatically
+every station has to carry or if it can be regionalized.
+ Mr. Cox. My time has expired. I appreciate your answer and
+look forward to the follow-up information.
+ Mr. Chairman, I think it is very important that the
+President not be the only person in extremis who might be able
+to issue these warnings, that there ought to be a process that
+the President is comfortable with for this to operate without
+interruption.
+ I also think it is very important, as we have found in so
+many other hearings in this committee, that such a system be
+able to operate regionally and that it not be a discretionary
+system in that situation.
+ Mr. Shadegg. I think the regional operation is very, very
+important.
+ Mr. Hoover, you mentioned the ability to remotely turn on
+the television, and you actually touched on a topic that is
+very sensitive. Whenever I want to reach my wife, she has her
+cell phone off. And I have warned her that I am going to invent
+a cell phone that I can turn on remotely so that when I need to
+reach her I can remotely turn on her cell phone and reach her.
+And, apparently, somebody is already working on that, so I need
+to talk to those people.
+ Mr. Hoover. Mr. Chairman, if I may, my technical folks and
+the guy that really runs the system tells me that the signal
+can be--the EAS message can be regionalized when we turn it on.
+ Mr. Shadegg. I think most husbands in America would buy
+this cell phone and give it to their wives to turn it on
+remotely, because I am not the only husband who has this
+problem.
+ The Chair would call on the gentleman from North Carolina,
+Mr. Etheridge, for questions.
+ Mr. Etheridge. Thank you, Mr. Chairman. I am not going to
+turn the test the cell phone, turning it off or on. I have
+enough trouble keeping mine off.
+ Thank you, and thank you all for being here.
+ Let me follow up on some of the questioning as it relates
+to notification. Because we had a system in the 1950s that
+hasn't been upgraded. It is quite obvious you wouldn't want to
+drive a car--there aren't many on the road--built in the 1950s,
+truthfully. My question is this. Because, as we deal with--our
+country has changed dramatically since the 1950s. Languages
+have changed, the ability to--are we looking at how we can send
+this signal out in more than English, especially regionally,
+where areas are changing dramatically in terms of patterns of
+language?
+ Mr. Dailey. Yes, sir. That is one of the questions
+specifically that we ask in our Notice of Proposed Rulemaking,
+is how we can address that.
+ Mr. Etheridge. Is that now being done currently, in the
+current warning system?
+ Mr. Dailey. In the current warning system, the broadcast
+stations--our rules permit them to broadcast alerts and
+warnings in the primary language of the station. So we--
+previously, it was--the anticipation was that everything would
+be done in English. But we changed our rules years ago to
+permit a primarily Spanish language station--to permit it to
+carry its warnings in Spanish for its constituents.
+ Mr. Etheridge. Well, it seems to me, having had a radio
+station at one time, it is very simple just to say to them when
+they send the message out, because it is broadcast by the
+Federal Government on emergencies--it seems to me to be a very
+simple matter. When you send it in English, repeat it in
+Spanish. That doesn't cost any money, right?
+ Mr. Dailey. Well, there has to be the capability to do that
+conversion, which costs--I mean, you are talking about the
+staff time to do it.
+ Mr. Etheridge. No, you misunderstand it. When you send it
+out to the radio and media markets, when you send one signal
+and you turn that signal on, the signal can be in English and
+it can be in Spanish, if that be the language that is
+predominant. That is not a problem, right?
+ Mr. Dailey. That is correct.
+ Mr. Etheridge. So why aren't we doing it?
+ Mr. Dailey. The primary alert warning system input is
+spoken language, and so the simultaneous translation becomes
+the technology issue.
+ Mr. Etheridge. That was not the issue. You can give it in
+English, and then you can give it in Spanish. It seems to me
+that is pretty simple. Would you agree?
+ Mr. Dailey. Yes, sir.
+ Mr. Etheridge. Who do we need to contact to get that done?
+ Mr. Dailey. I think we have to talk to the Emergency
+Management Association. Ms. Henning may be able to comment on
+that. Because the people who have the information and who have
+the alert and warning are the people who can make that
+conversion, control the content.
+ Mr. Etheridge. We are talking about apples and oranges
+here. What I am talking about, when the message comes out to
+the radio stations, the TV stations, the other media activate--
+it is activated somewhere. You test it on a monthly basis.
+ Mr. Dailey. Yes.
+ Mr. Etheridge. It seems to me it is very simple. When they
+read it, we could read it in English, and then we could read it
+in Spanish. Could someone help me with that? I mean, I really
+don't understand why that can't be done, because I have been on
+the receiving end when it was activated.
+ Mr. Cox. Would the gentleman yield? I have a question.
+ If these are interruptions to normal programming, isn't it
+a fair assumption that somebody who doesn't speak Chinese isn't
+listening to a Chinese language station, or somebody who
+doesn't speak Spanish isn't listening to that Spanish language
+station? So that the approach, Mr. Dailey, I thought I heard
+you say you were taking already, would make more sense, which
+is that those messages get broadcast in the language that the
+person was just listening to before you interrupted.
+ Mr. Etheridge. Reclaiming my time.
+ Mr. Chairman, I can agree with that. But when you are
+watching TV, in many cases--TV is a different medium than
+radio, because I would assume it would be on radio. But, on TV,
+that may be the only one you have. And it is a very simple
+matter, I think, to add it; and I hope you will check into that
+and get back to me in writing. I will settle for that.
+ Ms. Henning, let me ask you a question. Because when the
+Montgomery, Maryland, emergency problems were going on as it
+was with the sniper, you were there and involved in that. Let
+me give a couple questions and give you a chance to respond
+before my time runs out.
+ During the attack, would you describe some of the obstacles
+you had to overcome to get fast, accurate information to the
+schools and to the parents? Because the whole community was
+involved, but this was a group that was really on the edge. And
+what did you do to overcome them?
+ And, secondly, what recommendations do you have to counties
+and municipalities to change the communication you are sending
+out that would really help make a difference? I think this is
+one of those areas we tend to forget sometimes, and you have a
+lot of people in an area that really don't get the information.
+ Ms. Henning. Thank you, sir.
+ On that day, it was a very difficult and very challenging
+situation. The information came very quickly into our 911
+center, and so we were able to put it out to the emergency fire
+department, to police, and other public safety agencies into
+the emergency operation center and through networks out to the
+schools, so that the schools and the administrators were
+getting the information.
+ But when you begin to talk about the information out to the
+public, that was an entirely different issue. We were not able
+to use the Emergency Alert System. It was not set up. The
+equipment was not in full operation at the time. We made calls
+from our public information office immediately to the broadcast
+industries who started putting the information out, and we got
+scrolls across the TV, and then the story was picked up. We
+were able to utilize the ability of having frequent press
+conferences to get the information out to the public and to
+advise the public to take the protective measures.
+ It would have been extremely helpful had we had the ability
+to put information out to pagers PDA devices cell phones, and
+others devices, but we didn't have that capability coming out
+of our 911 center, and we had to rely on what was going on in
+the standard broadcast industry. It also meant that people who
+were watching on the cable stations or who had the satellite TV
+were not getting those messages, because a lot of that was not
+being put out. So one of the things that we look for as State
+and local emergency managers is to have the mandatory messaging
+that will go out on a broad spectrum of media to help us out.
+ Mr. Shadegg. The time of the gentleman has expired.
+ The Chair would now call on the gentleman from
+Pennsylvania, Mr. Weldon, for questions.
+ Mr. Weldon. I thank the Chairman.
+ I am going to take a different approach to my line of
+questions, because the focus by my colleagues is on the
+emergency warnings to public, and my line is going to deal with
+two specific initiatives that have caused me a great deal of
+frustration over the past dozen years that go to the first
+responder community and then directly to the public.
+ The first deals with forest fires in America, a major
+concern to our homeland. We spend a billion dollars a year in
+responding to wild lands and forest fires--on average, we spend
+$3 to $5 billion--and we lose the--loss of life, both
+civilians, significant property, as well as to firefighters
+themselves.
+ It was 8 years ago when I chaired the Defense R&D
+Subcommittee that I led the reallocation of money to create a
+program that used our classified and unclassified satellites
+that are used to detect rocket launches to detect the immediate
+start of a wild land forest fire the size of a quarter of an
+acre. That program developed and was tested and became known as
+FIRESAT. The Raytheon Corporation became a prime contractor. It
+involved multi-agencies: Geological Survey, the Forestry
+Service, Interior, NOAA.
+ In 2000, after the test was done on the program, the
+Geological Survey abandoned the program for lack of funds.
+America is still burning each year, billions of dollars going
+up in smoke, requests for emergency appropriation measures
+after the fact when, for a few million dollars, we could have
+done the refined software to put the program in place.
+ I went to Joe Allbaugh when he headed FEMA 2 years ago and
+said, Joe, NOAA is not moving on this. Neither is the
+geological survey. He said, transfer the program to FEMA. I did
+that legislatively. FEMA, despite tremendous opposition from
+NOAA, took over the FIRESAT program.
+ Today, to my understanding, we still do not have the
+program that was first designed 8 years ago to detect the start
+of forest and wild lands fires which cost the taxpayers of this
+country between $3 and $5 billion a year. My understanding
+further is the software is sitting in boxes in Crystal City in
+Raytheon's offices.
+ So my question to all of you and the second panel--and I
+may not be here for that panel. I have, Mr. Chairman, the 20-
+some page brief on this program which I will enter into the
+record discussing both the strengths and the reforms necessary.
+ [Information is in the committee file.]
+ Mr. Weldon. If we are really concerned about notification
+of emergency response, why have we still not put into place a
+program that we have tested, that we know works, to give that
+information when a satellite detects a fire the size of a
+quarter of an acre to the first responder community to go put
+it out and save the taxpayers billions of dollars? Why has that
+not been done? Because a secondary benefit of that is, when you
+notify the responder community, you could also notify the
+public in that area. They can evacuate their homes. So it has a
+secondary benefit.
+ My frustration is we talk a good game in this city, but
+when it comes down to the substance of putting programs in
+place, it just falls apart. It is like sand. It goes through a
+screen, and no one wants to be held accountable for it. So that
+is my first question.
+ The second one results from an experience I had with an
+earthquake about 12 years ago, walking the freeway with the
+chiefs of San Francisco and Oakland, and they were looking for
+people that were allegedly still caught in cars and vehicles
+between the freeways, and they were talking about the use of
+dogs to detect people that were alive. And I said, why aren't
+you using thermal imagers that you could shoot through the
+crevices of the freeways? And the chiefs of Oakland and San
+Francisco said to me, Congressman, what are thermal imagers? I
+said, well, the Navy developed them 15 years ago to use to
+detect bodies on our ships. Now they are in every fire
+department in America. The chiefs of two of our largest
+departments in America weren't even aware that technology
+existed. So I came back and introduced legislation 12 years ago
+to have FEMA create a program to give the incident command
+officer a computerized ability to let the State and Federal
+agency network know what needs he had or she had on the scene.
+ Chief Morris could have used that in Oklahoma city when he
+came and faced an exposed rebar concrete structure, had a
+massive rescue and didn't know where to go to get the engineers
+to assist him.
+ To my knowledge, we still do not have a computerized
+inventory that an incident commander on the scene of a disaster
+can punch into with a PalmPilot or a laptop at the scene to
+know where to go to get some kind of specialized equipment or
+resources or consultation, that he doesn't know where to go.
+ So my question in both of these cases is this: Why haven't
+we followed through on either of these and why aren't they in
+place today? And I am not aiming this at this administration,
+because the previous administration was just as derelict.
+ Mr. Hoover. Mr. Weldon, I think the only thing I can say to
+you is I am familiar with the FIRESAT initiative. I was Chief
+of Staff to Director Allbaugh when you came over and offered
+that to us.
+ With regard to the thermal imaging, you know, I don't think
+I have an answer for you on that one.
+ Mr. Weldon. Well, it is not just thermal imaging. It is any
+kind of technology.
+ Well, what is the status of FIRESAT?
+ Mr. Hoover. I don't know. That is not something I deal with
+anymore. And what I would like to tell you is that, with plume
+modeling capabilities, with digital EAS and alert and warning
+capabilities that we have and the reverse 911 technology, using
+this geo-targeting, we think we can use that technology to warn
+homeowners of impending wild land fires.
+ Mr. Weldon. Mr. Chairman, with all due respect, the plume
+modeling program was developed by Lawrence Livermore
+Laboratories. I have seen it 8 years ago. Other labs have done
+the same. You can't do plume modeling until you know where the
+incident is. The plume modeling is helpful for the first
+responder and for the incident commander, but the most
+important thing is not to know where it is going to go, it is
+to know when it starts. And that is a whole different topic.
+What good is a plume model if you don't know where the fire is
+when it occurs?
+ And so my answer, Mr. Chairman, is this subcommittee and
+this committee ought to be holding the FEMA and the Homeland
+Security agency accountable. We have the technology. It has
+been developed. It has been tested. I put the document in the
+record. And my question is, we are spending billions of dollars
+after the fact and paying for these incidents. Why aren't we
+providing a couple of million dollars to put into place in
+front? Which is what Joe Allbaugh wanted to do when he headed
+up FEMA. Thank you.
+ Mr. Shadegg. The time of the gentleman has expired.
+ The Chair would call upon the Ranking Member of the full
+committee, Mr. Turner, for questions.
+ Mr. Turner. Thank you, Mr. Chairman.
+ Let me ask both Mr. Dailey and Mr. Hoover to give us a
+description of how much money is being applied in your agencies
+to carrying out the paths that we are talking about here today.
+What number of personnel, what kind of budget do you have, and
+how much are you going to accomplish in fiscal year 2005?
+ Mr. Hoover. Mr. Chairman, within our office, within FEMA,
+we are the program office for EAS, for the national level EAS.
+I have a division that is--one of their primary functions is
+the upgrade of the EAS and the PEP stations. We are using--
+currently, we have allocated just over $4 million for several
+projects that Chairman Shadegg outlined to upgrade and improve
+the EAS system as well as, as I mentioned in my testimony, the
+IPAWS, the Integrated Public Alert and Warning System. There is
+an additional $2 million that is in the President's 2005 budget
+that is specifically earmarked for EAS upgrades. And I am not
+sure what IAIP additional funding they in the 2005 budget for
+alert and warning, but I understand there is some funding
+there, and we can get you those numbers.
+ Mr. Dailey. Mr. Turner, as the regulatory agency we do not
+do grant programs and we do not supply equipment, so there is
+no specific funding for EAS enhancement. My office is a staff
+of 18 people. One of our primary responsibilities is the EAS
+program management, and so we are responsible for the rules and
+regulations implementing EAS, but we have no particular grant
+programs or any funding sources for implementation of EAS.
+ Mr. Turner. I was looking at a survey that was done by this
+Media Security and Reliability Council, and I thought it was
+interesting because the results of the survey seem to indicate
+that our State activities in conveying the emergency messages
+doesn't seem to work very well. I was reading a comment by the
+State of New York State Communications Committee and they said
+that when a test is done of the EAS system, that the message,
+and I am quoting here, the message never made it more than 50
+to 70 miles from Albany. Encoders were set incorrectly. The
+control room was not manned. Broadcasters just weren't passing
+the message along. The tests at the local level don't indicate
+success at the State level. In theory there is a statewide
+system, but in reality there is not.
+ Do you think that is a fair comment, Mr. Hoover?
+ Mr. Hoover. I think there are issues regarding the
+reception capability of the EAS and I think we have known that
+for some time, and we are now correcting that as we move from a
+dial-up capability to satellite capability. And what we are
+also doing is we are expanding the 34 primary entry point
+stations so that there is a PEP station in every State, and we
+would also like to expand it to having an entry point at the
+emergency operation centers in all the States and Territories
+as well.
+ Mr. Turner. But where are you going to get the funding to
+do that? The budget numbers you shared with me, I believe you
+said $4 million, doesn't seem like anywhere near the funding
+necessary to accomplish what you just described.
+ Mr. Hoover. Well, for example, Mr. Turner, the upgrade to
+the existing 34 primary entry point stations to a satellite
+system is only costing us just over a million dollars, and that
+is part of that initial $4 million. And as I mentioned, there
+is another $2 million in the President's budget to continue
+that upgrade, and we think we can do that with that $2 million
+as well as the additional funding that IAIP has.
+ Mr. Turner. So you are saying that you can accomplish
+everything you think we need to accomplish within the budget
+that you have for 2005?
+ Mr. Hoover. Yes, I sure do.
+ Mr. Turner. And the system will be up and running?
+ Mr. Hoover. I would hope to have it up and running by the
+end of 2005, and I think the key there is we are not building
+any brand new infrastructure. We are building out, we are
+improving and upgrading existing infrastructure, whether it is
+EAS or using the digital backbone that public television is
+offering us. So we are not having to build from scratch an
+infrastructure. And once we get the signal in a digital format
+into satellite the reception capabilities, and I am not a
+technical guy, but the reception capabilities are endless for a
+very small amount of investments.
+ Mr. Turner. I might ask, Ms. Henning, if you would comment
+on the report that I referenced, and the quote I read from the
+New York State Emergency Communications Committee.
+ Ms. Henning. Thank you, Congressman. In fact, tomorrow, as
+I understand it, New York is having a press conference to talk
+about EAS. I haven't had a chance to talk with the director
+about the subject on that, but I understand that they have some
+concerns. One of the things that we are most concerned about is
+for the equipment to be able to reach out to all the various
+areas, to urban and rural areas. And once we have the
+capability and FEMA does provide the installation, there must
+be training of the personnel for this, and there must be a very
+simple installation process. Am I answering the question,
+Congressman?
+ Mr. Turner. I mean are you saying there is needs at the
+local level in order to implement this?
+ Ms. Henning. Absolutely, it is not going to end simply by
+providing this equipment to the States. In order for this to
+work to effectively, for the State to be able to talk to the
+counties, to be able to talk to the cities, we are going to
+have to look at improvements to the emergency operations
+centers and the equipment that is there, and that means a
+follow-up not only to the installation, but to providing the
+training and other needs.
+ Mr. Shadegg. The time of the gentleman has expired.
+ Mr. Turner. Thank you.
+ Mr. Shadegg. Having made it just under the wire to question
+this panel, the Chair would now call upon the gentlelady from
+New York, Ms. Lowey.
+ Mrs. Lowey. And thank you, Mr. Chairman. I do apologize to
+the panel for being delayed in another important event.
+ In its February 2004 report on emergency alert systems the
+Partnership for Public Warning noted that no government agency
+is in charge of the current EAS and recommended that the
+Department of Homeland Security take the lead in creating an
+effective national warning capability. Now, I am a New Yorker.
+It is 3 years after 9/11, 3 years after 9/11 and we are still
+asking these questions.
+ Why hasn't the Department played a greater role in
+coordinating and advancing efforts to create a working and
+useable national alert system? What is the Department in
+conjunction with other relevant Federal agencies and
+stakeholders doing to encourage the creation or updating of
+State and local EAS plans? And what kind of enforcement exists
+at the Federal level to ensure the development of State and
+local EAS plans? Are there any Federal guidelines or standards
+that exist to help State and local governments develop these
+plans?
+ I must say, if my question is asked with a wide eyed glaze,
+it is because I find this, as many other issues, extraordinary,
+and my neighbors are absolutely concerned. They are worried. In
+fact the messages from the administration are, as you know,
+this could happen again, it could happen any day. We were lucky
+that we got by the convention in New York, thank God, safely.
+But perhaps you can answer this. I mean, why is it 3 years
+later and we are still talking about standards? When are we
+going to develop this. A lot of people walking around looking
+very important, but who is doing it?
+ Mr. Hoover. Thank you for that question, and I would share
+your concern in terms of a lot of folks were walking around
+saying, you know, we need this, we need this, we need this. And
+a lot of folks--it was talk and we weren't doing anything. I
+can tell you that in the two and a half years that I have been
+involved with EAS we have done a lot of things and we have made
+some great progress in terms of upgrading and recognizing the
+deficiencies.
+ Certainly the Partnership For Public Warning's report came
+out and made a number of recommendations, and we think that we
+are implementing a number of those recommendations with regard
+to using digital technology, with regard to upgrading the
+existing EAS capability in the PEP stations. We have active
+involvement with the partner in the Media Security and
+Reliability Council of the FCC. Our office, in answer to your
+question who is responsible, I would say the Department of
+Homeland Security is responsible, and more specifically my
+office serves at the executive agent for the national level EAS
+and we take responsibility for that and we take it very
+seriously. And in fact last week I was in New York at Channel
+13 and talked to the public television station folks up there
+about a pilot that they are doing, along with the National
+Geospatial-Intelligence Agency--it used to be the old NIMA--the
+NGA folks where they are using some spectrums specifically for
+two-way communications to first responders and looking at ways
+that we might be able to integrate that in this digital pilot.
+So specifically to New York we are looking and have been in
+talks with Channel 13 in New York as part of this public
+broadcasting initiative, and our office is responsible and we
+think we are making some great progress.
+ Mrs. Lowey. If I could follow up, you said you have been in
+this position two and a half years.
+ Mr. Hoover. Yes, ma'am.
+ Mrs. Lowey. I feel a real sense of urgency. Can you give me
+an idea how long it will take to develop an efficient national
+warning capability, or will it be like interoperability? We
+still don't have the standards. The RFP still didn't go out.
+The police, all the first responders, firefighters, still don't
+have an adequate interoperable communications system. When will
+this get done with your best estimation?
+ Mr. Hoover. Well, first of all, we already have in place a
+national level emergency alert and warning system and that is
+through the 34 primary entry point radio stations and we
+believe that system works and is operational. The upgrades to
+that are beginning within weeks in terms of upgrading the PEPs,
+the primary entry point stations, and as well as demonstrating
+the capability of using the digital broadcast capabilities that
+public television brings to the table, and I would hope to see
+great progress in that by the end of next year.
+ Mrs. Lowey. Is it correct that the system has never been
+used?
+ Mr. Hoover. The national level EAS system has never been
+activated, however--
+ Mrs. Lowey. How do you know it works?
+ Mr. Hoover. Because we test it every week from the FEMA
+operations center to the primary entry point radio stations,
+which is the first point of entry to the system. We test that
+on a weekly basis.
+ Mrs. Lowey. Okay. Could you tell me what kind of
+enforcement there is at the Federal level to ensure the
+development of State and local EAS plans? Are there Federal
+guidelines, standards, directives?
+ Mr. Dailey. The Commission's rules anticipate the
+development of the State and local plans for the implementation
+of EAS and when those plans are developed they are sent to me
+personally and my staff reviews them and we sign off on the
+plans and make sure that they comply with the national level of
+requirements.
+ Mrs. Lowey. Excuse me. Are there requirements that the
+States do it?
+ Mr. Shadegg. The time of the gentlelady has expired, so if
+you could finish your question.
+ Mr. Dailey. They are not required.
+ Mrs. Lowey. Why not?
+ Mr. Shadegg. Maybe she didn't hear. The time of the
+gentlelady has expired quite some time ago, more than a
+question ago. So the Chair would call upon the gentlelady from
+the District of Columbia, Ms. Norton, for questioning.
+ Ms. Norton. Thank you, Mr. Chairman, and I appreciate this
+hearing, regret that other business in the Capitol kept me from
+being here earlier. This is an especially important issue all
+across the country, but none--but there is no place much more
+important than in this region with its tunnels, with its subway
+systems, with the entire Federal presence here, for that
+reason. An amendment that I sponsored was elaborated in the
+Senate that requires the Department of Homeland Security to
+have a special coordinator for the National Capital Region, and
+that person is in place. I must say that that coordination was
+deeply called into question--has been deeply called into
+question, although I don't lay it at the feet of the
+coordinator himself. It is clear that when checkpoints were put
+in place along Pennsylvania Avenue and Constitution avenue
+there was no coordination within the city, much less this
+region, there was not even consultation with the local police
+department, which has all the cops, by the way. So I am not at
+all satisfied with the coordination aspect nor is the committee
+that has jurisdiction over the Capitol Police, which is going
+to have a hearing next week. I have called for a citywide
+coordination plan so that the various sectors who have
+independent control can know what one hand or the other is
+doing. I think we are at terrible risk in the Nation's capital
+because there is no coordination of all the security officials.
+ In light of that I am particularly interested in a pilot
+project, a 6-month pilot, for a digital emergency alert system.
+That obviously would help with the coordination problem that is
+so plain in this region. I wonder if--I understand that it may
+have been mentioned before I came in by Mr. Hoover. I would
+like more details on that project. When will it start? If it is
+6 months when does month one start? What technologies will be
+demonstrated? I would like to know who specifically is involved
+in--who are we talking about in this 6-month project? And I
+would like to know whether they will be working with the
+private sector, with State and local government. In other
+words, how in the world does this work?
+ Mr. Hoover. Thank you, Ms. Norton, for the question, and
+perhaps we can give you a more detailed briefing and I can give
+you the kind of 30,000-foot view at this moment on--
+ Ms. Norton. Yeah. Just give me the 2-foot.
+ Mr. Hoover. Right. It is with--the pilot and we expect to
+start within weeks, within the next couple of weeks. We are
+just down to the final transfer of the funds actually to the
+Association For Public Television Station, who is the primary
+focus of our effort. We have through APTS brought in the
+private sector. We have had some active discussions with T-
+mobile, with Verizon and with Nextel in terms of having the
+cell phone service providers involved. Our office that is
+actually doing the coordination has worked with Ken Wall in the
+National Capital Region Coordinating Office within the
+Department to make sure that the Council of Governments is
+involved and the emergency managers in the area involved, and
+we are planning actually in October to have a kind of an
+umbrella session to bring all of the players together to be
+able to do that. I should also mention that the local public
+television station is involved. Channel 4, the network
+affiliate, and we have been in discussion with NBC to also be
+involved in the pilot project as well.
+ So it is taking in a broad spectrum of the population of
+not only the providers of but also the users because we want to
+be able to reach you and to be able to test the capability on
+as many retransmission mediums as possible.
+ Ms. Norton. Thank you very much. Thank you, Mr. Chairman.
+ Mr. Shadegg. I want to thank this panel, both for your
+written statements and also for your testimony here this
+morning. It is very, very helpful. Obviously we could continue
+this discussion at length. There is a lot of work to be done,
+though I think it is very encouraging to see how many different
+technologies are out there and are being explored to improve
+the current notification system and the possibilities that lie
+ahead, and I am glad we are making progress on those. And with
+that this panel is excused, and I will invite our second panel
+to join us.
+ That panel is composed of Dr. Peter Ward, the Founding
+Chairman of the Partnership for Public Warning and a retired
+member of the U.S. Geological Survey; Mr. Frank Lucia, Vice
+Chairman of the Washington, D.C. Emergency Alert System
+Committee and a member of the Public Communications and Safety
+Working Group for the Media Security and Reliability Council;
+and Ms. Patricia McGinnis, President and CEO of the Council for
+Excellence in Government.
+ Welcome and thank you very much for your testimony here
+today. We appreciate your input. Several of your organizations
+have already been mentioned for their work in this area in the
+questioning on the first panel. Now we get to talk to the
+experts directly. So with that, Mr. Ward, Dr. Ward, would you
+begin?
+
+STATEMENT OF DR. PETER L. WARD, FOUNDING CHAIRMAN, PARTNERSHIP
+ FOR PUBLIC WARNING, U.S. GEOLOGICAL SURVEY (RETIRED)
+
+ Mr. Ward. I would like to thank the committee and
+especially Congressman Shadegg for calling us together to talk
+about public warning, an issue of really key importance during
+these troubled times. Warnings save lives. If you get people
+information about what is happening or what is likely to happen
+they can take action that will save lives, reduce loss, speed
+recovery.
+ One of the problems we have, as you have gotten to earlier
+here today, is the current warning systems, you put them all
+together, are pretty ineffective. You can do different
+estimates, but today if we needed to warn of a dirty nuclear
+device being exploded right now on the Mall, we could only
+reach at best maybe 30 percent of the people directly that
+needed to know. And we would probably reach a lot of people
+that didn't need to know. At night when there is a tornado
+coming down on a community we can only reach perhaps a few
+percent of those who need to know that that is in their path.
+And again, we may wake up a lot of people who really don't need
+to know.
+ So the problem is we don't have an adequate warning system
+and it is not well focused. Now, my name is Dr. Peter Ward. I
+have worked on warnings issues for more than 41 years of my
+career, mostly 27 years as a Federal Government employee for
+the United States Geological Survey, working on earthquakes and
+volcano issues. I have also had the pleasure and opportunity to
+work with a wide number of people, especially in the last few
+years, on committees looking at warning issues.
+ The executive summaries of two of the critical reports are
+in my written testimony and have already been mentioned today.
+This red book, Effective Disaster Warnings, was written by
+Federal employees from all the different Federal agencies and I
+had the chance to chair that committee. And this was released
+in 2000, after being approved by all of the Federal agencies
+involved, and it is considered the foundation upon which to
+build modern warning systems. Out of this has already come a
+common alerting protocol and several other major steps forward
+in developing warning systems and improvement to warning
+systems.
+ Another major report is the National Strategy For
+Integrated Public Warning Policy and Capability that came out
+of the Partnership for Public Warning. It was put together by
+experts from across the country to say what do we need to do to
+go forward with this? How soon can we make changes?
+ All of these reports and many more come up with four
+principle conclusions. First, we need to involve all the
+stakeholders. There are many stakeholders in Federal, State,
+local government in emergency planning and emergency response,
+and in fact every one of us is a stakeholder when we are at
+risk.
+ The second major requirement is we need to have national
+standards, not only so we can communicate with each other, but
+so that industry can build new pieces or build into existing
+pieces of electronics the ability to receive those warnings.
+Once we have those standards there are all kinds of
+opportunities for industry to compete to do all kinds of new
+things to deliver those warnings the last mile.
+ Third major conclusion is that technology is not the issue
+here. It is not the problem. We are technology enabled. There
+are all kinds of technologies out there that when properly
+mobilized can get the warnings to the people at risk no matter
+where they are, no matter what they are doing.
+ The fourth conclusion is the most important. The weakest
+link currently in warning systems is the link between the
+people who have warnings to issue, the officials with warnings
+to issue, and the companies, organizations, groups that operate
+systems that can deliver those warnings directly to the people
+at risk.
+ What is needed here is a pipeline or a backbone, a place
+where the warnings can be put in by the officials and that will
+immediately disseminate those throughout, to all the different
+dissemination groups. This pipeline or backbone needs to
+consist of four key elements:
+ First a secure, reliable input from all official sources.
+Obviously, we don't want the system to be misused by terrorists
+or others.
+ Secondly, it needs a common alerting protocol, and the good
+news is that one already exists under the OASIS standards. It
+has been widely tested. It will need to be tested more, but
+there is a digital protocol into which we can put the warning
+information so it will go out in a standard way.
+ The third thing needed in this backbone or pipeline is a
+multi-stranded pipeline that can actually get information out.
+In the AMBER alert program I will talk about in a minute we are
+using Internet. For All Hazard alert we have to be able to deal
+with major catastrophic loss, and so the same information could
+be sent out by State emergency operation communication
+networks, by the Association of Public Television Stations, by
+all these different groups. There are many ships of opportunity
+in the communication world where without spending extra
+government money we can distribute the warnings, the
+information, and make sure that it is redundant enough that
+during the worst catastrophes information is still getting out.
+ And finally, we need a wide variety of delivery mechanisms
+that can take the warning from this pipeline and deliver it the
+last mile to the users. Believe me, industry is teeming with
+ideas. They say we need a standard and we need to have a
+pipeline of information that we know is official and that we
+have no liability in transferring that information to the
+public. Once that exists industry will wow us. Already RCA
+Television and other groups have televisions that will turn
+themselves on when they receive a signal that there is a
+warning that applies to that particular county where the
+television is located, and will wake someone up in the middle
+of the night if necessary.
+ This is just the tip of the iceberg. There are many other
+devices out there, digital watches, for example, on the market
+now that could easily warn you with that information.
+ Now, over the past 20 months we have developed a pipeline,
+an example of this, how this pipeline could work that is for
+AMBER alerts. It is operational in the State of Arizona and in
+Washington State. Thirteen more States are being brought up in
+the near future and 20 others are expressing a strong interest.
+We simply say that this is a consortium of, many, many
+different people, the State police, State broadcaster
+associations, media, major corporations, emergency managers,
+departments of transportation, border control. ESRI has offered
+mapping software, Hewlett Packard, Intel, hardware and funds,
+Symantech security to make sure it works right, Limelight
+Networks and Proteus Digital Communications.
+ The capabilities are there and we have demonstrated we
+could do it. So I am really here today to ask the help of
+Federal people to not only work in your district and in your
+State to improve warning, but that by working together we can
+make very significant changes in public warnings in a very
+short time.
+ Thank you.
+ [The statement of Mr. Ward follows:]
+
+ Prepared Statement of Dr. Peter L. Ward,
+
+ I wish to thank the subcommittee and specifically Congressman
+Shadegg for calling this hearing to discuss public warning, an issue of
+great importance to public safety and Homeland Security in America
+today.
+ I personally have worked on public warning issues for 41 years and
+was a senior leader at the United States Geological Survey for 27
+years. I chaired a Committee of Federal government employees under the
+Office of Science and Technology on warning and was founding Chairman
+of the Partnership for Public Warning. I am convinced we can improve
+current warning capability significantly in a very short time if we
+work together.
+ Hundreds of very knowledgeable and talented people throughout our
+society have sought ways to improve public warning over many years.
+Their work has come to focus on what I will discuss today. The
+fundamental problem is the need for teamwork among the wide variety of
+stakeholders and I sincerely hope this Committee can help bring the
+American people what they deserve and expect--timely, accurate,
+official information to help them deal with natural and manmade
+disasters. While the country has been fixated on terrorism since 9/11,
+recent events remind us that Homeland Security also involves responding
+to major, frequent, tragic natural disasters.
+ Warnings save lives. They empower citizens with knowledge of what
+is happening or what is about to happen. People at risk can then make
+wise decisions about what to do to reduce loss of life and property and
+how to best deal with adversity. First responders can then decide on
+the most effective ways to respond. The Media can provide more detail
+from a basis of up-to-date knowledge.
+ Today, if we needed to warn people that a dirty nuclear device had
+just been detonated on the Mall and that they should avoid downtown
+Washington, we could only reach directly perhaps 30% of those who need
+to know using all means of warning currently implemented. And the time
+delay could be many minutes when every second counts. If we needed to
+warn of a tornado in the middle of the night, we might only reach a few
+percent of the people directly at risk. Also current warning systems
+tend to warn more people not at risk than those directly at risk,
+dulling their response to future warnings.
+ We live in the midst of a digital revolution where tens of millions
+of our citizens carry cellular telephones and other devices that could
+warn them no matter where they are or what they are doing. Many types
+of electronic signals are being broadcast locally and from space that
+could trigger a wide variety of electronic devices to warn people when
+they are directly at risk. We are technology enabled. Technology is not
+the problem.
+ It is a severe national problem that we are not using modern
+technology effectively to save lives and reduce losses from natural and
+manmade disasters in America. While I know there is a desire to do so,
+I believe it is frustrating for all involved that collectively we have
+not been able to make the simple fixes needed to solve this serious
+problem.
+ So what is the problem? Simply put, the problem is teamwork--
+getting the major stakeholders to work together. The need for teamwork
+or ``unity of effort'' related to Homeland Security were highlighted
+over and over in the recent 9/11 report.
+ An effective warning system involves most Federal Agencies,
+thousands of State and local agencies, dozens of industries, thousands
+of companies. An effective warning system sooner or later involves
+every person and organization across the country that is at risk.
+ I am sure each of you has been visited by companies who have THE
+solution for public warning. As founding Chairman of the Partnership
+for Public Warning, I received many telephone calls from company
+Presidents who said that we were irrelevant because they had already
+solved the problem. It usually took only a few minutes to help them
+realize that they had an important solution but that it was a small
+part of the larger problem.
+ There are hundreds if not thousands of American entrepreneurs who
+have developed impressive techniques for warning people. Technology is
+not the problem. The problem is the lack of a national warning
+infrastructure and the teamwork to implement it. When industry has a
+place from which to received official warnings securely and reliably,
+they can deliver those warnings in an impressive number of ways. You
+will unleash the immense imagination and capabilities of American
+industry when they can clearly see a market and when they can relay
+real-time warnings with no liability for warning content.
+ In just a few years we could reach the point where your car radio
+suddenly is interrupted or turns on to say:
+ ``Major traffic accident 5 miles ahead at intersection of 495
+ and 50.'' Or
+ ``Tornado 10 miles west heading toward you.'' Or
+ ``Chemical explosion at 9:02 am near Metro Central. Stay at
+ least 5 miles away.''
+ This is not science fiction. This is all readily possible with
+current technology, with good old American marketplace competition, and
+with a national warning infrastructure.
+ What do I mean by a national warning infrastructure? This does not
+need to be some big government program. This does not need to be some
+massive pile of hardware built specifically for warning. We simply need
+to utilize better public and private systems we already have. We need
+to create a logical framework that will enable future systems being
+built and maintained for other reasons to provide warning capability.
+ Warning messages are very low bandwidth. They require very few bits
+and bytes of information. They can easily be multiplexed within digital
+signals broadcast for quite different purposes. For example, the public
+television stations of the Association of Public Television Stations
+(APTS) are implementing a fully digital television broadcasting network
+across the country. When finished, more than 95% of the American
+population will be able to receive these signals. APTS has made many
+presentations here on the Hill detailing its stations? offer to use a
+small piece of their digital spectrum not only to carry warnings, but
+to broadcast more detailed information about imminent disasters and
+disasters under way. These signals could be received by much more than
+televisions. These signals could be received by any type of electronics
+in your pocket, on your wrist, in your home, in your car, at work, at
+play. And this is just one example of a major national infrastructure
+built and maintained for other reasons that can provide a national
+warning infrastructure at no additional cost to Federal, State, or
+Local governments or to the American people.
+ A national warning infrastructure needs to consist of four critical
+components:
+ 1. Secure reliable input from all official sources of warning
+ information.
+ 2. Encoding of messages into a standard digital format or
+ protocol that can be readily distributed and processed by small
+ computers.
+ 3. A multi-stranded pipeline or backbone that can instantly and
+ reliably send these messages to all types of delivery systems.
+ 4. Wide varieties of delivery systems that can automatically
+ re-broadcast or address these messages to those directly at
+ risk and to others who need to know.
+ Many of these elements exist and a prototype national warning
+infrastructure is already operating in the States of Arizona and
+Washington and will soon be operating in a majority of States.
+ With cross-jurisdictional confusion on the Federal side, many
+concerned people, local government organizations, and private companies
+have banded together in a Consortium to implement an AMBER Alert Web
+Portal that exponentially improves delivery of warnings of abducted
+children and demonstrates clearly how each of the four critical
+components for a warning infrastructure can be implemented and can work
+together to improve warning systems immediately.
+ This consortium grew out of a pilot project led by the state of
+Washington in partnership with several other states including Arizona.
+It was started over 20 months ago with a combined investment in
+technology and development of $4 million dollars. What is remarkable is
+that all the key stakeholders State and local Police, the State
+Broadcasters Associations, media, major corporations, Emergency
+Managers, Departments of Transportation, Border Control agencies and
+many others openly agreed to participate and all contributed
+significant insight and have taken important leadership and ownership
+in its development and now its success. (You have a recent Press
+Release noting the successful activation and homecoming of a missing
+child.).
+ Major corporations like ESRI have contributed dynamic mapping
+software that plots in real time the region in which the abductor and
+child could be located. Symantec has contributed the security software
+and procedures to assure the system is not misused. Hewlett Packard and
+Intel have contributed hardware and financial support. Limelight
+Networks and Protus have contributed digital communications capability
+that demonstrates capacity to manage a national alert network. The
+AMBER Alert Consortium is based on a variety of agreements signed by
+all parties on who is responsible for what and how the various pieces
+all fit together. It has been very successful at building teamwork
+among a large number of companies and organizations that have and
+continue to contribute time, money and expertise. This has been done in
+a way where all software and hardware is in the public domain and
+controlled by the States.
+ The AMBER Alert Web Portal Consortium has been unanimously
+supported by the National Alliance of State Broadcaster Associations
+and is operational in both Arizona and Washington State. Final training
+and implementation is underway in 12 additional States and many more
+have expressed a desire to join. Most importantly, a number of States
+and stakeholders in the process have expressed publicly that they are
+looking forward to the expansion of the AMBER Alert Web Portal
+Consortium to respond to other alerting needs since all the major
+stakeholders are in place and the Portal was designed by its founders
+to be scalable. This Consortium demonstrates clearly how technology and
+teamwork locally and nationally can be combined successfully to
+implement a National All-Alert Warning Infrastructure.
+ While I greatly admire what the AMBER Alert Web Portal Consortium
+has done, I am not here today to promote any one system, I am here to
+assist you in crafting a vision of how a public warning capability in
+this country can be improved very rapidly with some leadership and with
+contributions from a broad spectrum of players. The methods
+demonstrated with AMBER Alerts can readily be scaled up to all-alert.
+ If we go back to the four critical components of a national warning
+infrastructure:
+ 1. Inputs: All-hazard public warning requires secure reliable
+ inputs from police, fire, emergency managers, Homeland
+ Security, the National Weather Service, the U.S. Geological
+ Survey, the U.S. Coast Guard, critical facilities such as
+ chemical or nuclear plants, and many other sources. The AMBER
+ Alert Consortium has demonstrated a secure format that enables
+ the official to initiate an alert directly from the incident or
+ information source.
+ 2. Standard format: The Common Alerting Protocol (CAP) has been
+ developed under the OASIS standards process specifically for
+ transmitting all types of warning information. CAP is
+ implemented in Internet Protocol, the common communication
+ protocol used by nearly all digital electronics. The AMBER
+ Alert Consortium is CAP compliant.
+ 3. Pipeline or backbone: This has been implemented over wired,
+ wireless, and satellite-based public Internet and private
+ networks. It can easily be implemented over State Emergency
+ Communication Networks, NOAA Weather Wire, NOAA Weather Radio,
+ the Emergency Managers Weather Information Network (EMWIN),
+ etc. The AMBER Alert Consortium has demonstrated that such a
+ digital signal sent via Internet or any land or satellite-based
+ digital network, can be used to directly trigger all Emergency
+ Alert System (EAS) encoders across the country and thus be
+ broadcast on all land-based radio and television transmitters
+ or by cable television. A national presidential message of
+ unlimited length can also be streamed in this way. The AMBER
+ Alert Consortium has tested such a network using Internet and
+ is pursuing the use of a satellite system used by most
+ commercial broadcasters to disseminate alerts.
+ 4. Delivery Systems: These are already being provided by
+ numerous vendors including email, pagers, fax, auto-dial
+ telephone calls, auto-dial Short Message Service to cellular
+ telephones, digital signs along highways and in other
+ locations, websites, etc. Some NOAA Weather Radio receivers and
+ some new televisions can turn themselves on and set the volume
+ to announce warnings. New technologies such as wrist-watches
+ and pocket computers are being introduced that can relay
+ warning messages. Cell broadcast that can transmit warnings to
+ all cellular telephones within one or many cells is being
+ introduced in many states in 2004. All modern digital
+ electronics such as radios, televisions, portable music
+ players, computers, automobile navigation systems and such
+ could easily turn themselves on and announce warning
+ information specifically to those at risk once a standard
+ signal is available across the country. The AMBER Alert
+ Consortium has built this interconnectivity with these re-
+ broadcasters and is providing them live feeds for all their
+ different modes of communication. Industry is now beginning to
+ see a market and how they can receive a secure official stream
+ of warning information that they can relay without liability
+ for content.
+ Thus a National All-Alert Warning Infrastructure can rapidly
+improve public warning and provide a smooth path to modernize the EAS
+and other existing national warning capabilities.
+ The purpose of an alert or warning is to get the attention of
+people at risk so that they can seek more detailed information and
+decide on appropriate action. The AMBER Alert Consortium demonstrates a
+web portal that contains all detailed information instantly after it is
+available to officials. This information shows up not only on an
+official website for each state, but is fed directly and automatically
+onto the website of media and others who request the links as well as
+news desks, emergency operation centers, etc. Thus a National All-Alert
+Warning Infrastructure can not only improve delivery of warnings, but
+can provide a continuing stream of official information as the crisis
+develops. Different delivery systems could offer different levels of
+detail as required by the user.
+ There is another very important function a National All-Alert
+Warning Infrastructure could provide: instant notification of officials
+nationwide or in any region. The system could address telephones,
+pagers, faxes, email, etc. to any list of government officials. An
+encrypted message could be broadcast nationally and as new receivers
+are being developed, could be received and released only to authorized
+officials within certain affinity groups. Many government agencies are
+buying such service now, but the services are typically not compatible
+between agencies. A National All-Alert Warning Infrastructure could
+feed the information to these service providers for dissemination. With
+appropriate planning, this means that in the future when most pieces of
+electronics are capable of receiving and announcing warnings, these
+same pieces of equipment when owned by legislators, first responders,
+emergency managers, health officials, and such could announce to them
+official messages not released to the general public.
+ Consider a scenario where terrorists planted a person infected with
+smallpox on a major international airliner and infected people were
+quickly scattered across the country. When the presence of the Small
+Pox virus was identified, all appropriate officials across the country
+could be notified instantly no matter whether at work, at home,
+traveling, or enjoying recreation.
+ A warning distributed in standard digital format can readily be
+used to trigger devices to warn the hearing or sight impaired. As new
+receivers are built, they could easily turn the digital codes into any
+language.
+ The options are many. The intent of the National All-Alert Warning
+Infrastructure is to deliver official information instantly to service
+providers who could disseminate the information to the people at risk.
+Public warning can be improved exponentially if we work together
+adopting some basic standards.
+ Finally, I would like to give you some background for what I have
+explained today. This comes from a long history of studies and pilot
+efforts by a wide variety of people. As I stated earlier, I personally
+have worked on warning issues for 41 years and was a leader in the
+United States Geological Survey for 27 years.
+ In the 1970's there was considerable scientific evidence that
+earthquakes might be predictable and Congress established the National
+Earthquake Hazard Reduction Program. I was fortunate to be able to do
+much of the staff work in developing and implementing that program. As
+Chief of the Branch of Earthquake Mechanics and Prediction, we worried
+in considerable detail on how do you tell people that an earthquake
+could occur soon that may kill 3,000 people, but we are only 5%
+certain? What happens if you had warning information but failed to
+release it? What happens if you release it, no earthquake occurs, but
+significant loss resulted? These questions are quite similar to some
+issues we face today with respect to terrorism. Physical and social
+scientists worked intently on these issues. Many studies were done.
+Since World War II, a vast body of knowledge and experience has been
+developed on how to warn people in ways that they will take the most
+appropriate action. Unfortunately little of this expertise has been
+applied to Homeland Security issues.
+ In 1997 and 1998, I was fortunate to chair a working group under
+the Subcommittee on Natural Disaster Reduction within the Office of
+Science and Technology. We included the Federal government employees
+most involved with and experienced with warnings in each of the
+relevant Federal agencies. Our report ``Effective Disaster Warnings''
+was reviewed by all relevant Federal Agencies before release. This
+report has been widely acclaimed. It explains what exists and what
+could exist. It is considered as the foundation upon which to build a
+modern national warning system. Chapter 6 (The Universally Encoded
+Digital Warning) was the basis for the Common Alerting Protocol, now a
+national warning standard under the OASIS Standards Process.
+ The primary recommendation of this Federal working group was the
+need for a Public/Private Partnership to move warning forward. In late
+2001, after I had retired from Federal service, I heard of a group
+interested in forming such a partnership. I ended up being the founding
+Chairman of the Partnership for Public Warning. MITRE Corporation
+contributed start-up money. I volunteered 60-80 hours of labor a week
+for 18 months, and FEMA finally contributed some funds. Thus I
+personally funded about one third of the effort. We established a board
+of 16 trustees from leaders in warning in government, industry, and
+academia. We met regularly and held several multi-day workshops
+bringing together the people from across the country who were most
+experienced in warning issues. We interfaced with the Office of
+Homeland Security and all of the Federal Agencies with responsibilities
+for warning. We talked with many on Capitol Hill and worked with the
+Natural Hazards Caucus to put on a very well attended informational
+luncheon on warning. We published several reports that have been well
+received and that help us all focus on the key issues.
+ What I have presented today is a logical result of all of this
+effort and much more on the part of those across the country who are
+concerned with and experienced with public warning. There are thousands
+who work hard to keep current systems working as best as possible, who
+have worked on many committees to seek ways to improve current systems,
+and who are eager to make our homeland safer through effective
+warnings. Teamwork is not easy to build, but we all fervently hope you
+will join us in this effort to save lives, reduce losses, and reduce
+trauma from natural and manmade disasters throughout America.
+ ADDENDA:
+Effective Disaster Warnings
+ Report by the Working Group on Natural Disaster Information
+ Systems
+ Subcommittee on Natural Disaster Reduction
+ National Science and Technology Council Committee on
+ Environment and Natural Resources
+ November 2000 (www.sdr.gov/NDIS_rev_Oct27.pdf)
+
+Working Group on Natural Disaster Information Systems
+ Peter Ward -Chairman, Seismologist and Volcanologist,
+U.S.Geological Survey
+ Rodney Becker -Dissemination Services Manager, National Weather
+Service
+ Don Bennett -Deputy Director for Emergency Planning, Office of the
+Secretary of Defense
+ Andrew Bruzewich -CRREL, U.S. Army Corps of Engineers
+ Bob Everett -Office of Engineering, Voice of America, International
+Broadcasting Bureau, U.S. Information Agency
+ Michael Freitas -Department of Transportation/Federal Highway
+Administration
+ Karl Kensinger -Federal Communications Commission, Satellite and
+Radio Communications Division
+ Frank Lucia -Director, Emergency Communications, Compliance and
+Information Bureau, Federal Communications Commission
+ Josephine Malilay -National Center for Environmental Health,
+Centers for Disease Control and Prevention
+ John O'Connor -National Communications System
+ Elaine Padovani -National Science and Technology Council, Office of
+Science and Technology Policy, Executive Office of the President
+ John Porco -Office of Emergency Transportation, Department of
+Transportation
+ Ken Putkovich -Chief, Dissemination Systems, National Weather
+Service
+ Tim Putprush -Federal Emergency Management Agency
+ Carl P. Staton -National Oceanic and Atmospheric Administration,
+NESDIS
+ David Sturdivant -Federal Communications Commission
+ Jay Thietten -Bureau of Land Management
+ Bill Turnbull -National Oceanic and Atmospheric Administration
+ John Winston -Federal Communications Commission
+
+ Executive Summary and Recommendations
+
+ People at risk from disasters, whether natural or human in origin,
+can take actions that save lives, reduce losses, speed response, and
+reduce human suffering when they receive accurate warnings in a timely
+manner. Scientists are developing more accurate and more numerous
+warnings as they deploy better sensors to measure key variables, employ
+better dynamic models, and expand their understanding of the causes of
+disasters. Warnings can now be made months in advance, in the case of
+El Nin, to seconds in advance of the arrival of earthquake waves at
+some distance from the earthquake. Computers are being programmed to
+respond to warnings automatically, shutting down or appropriately
+modifying transportation systems, lifelines, manufacturing processes,
+and such. Warnings are becoming much more useful to society as leadtime
+and reliability are improved and as society devises ways to respond
+effectively. Effective dissemination of warnings provides a way to
+reduce disaster losses that have been increasing in the United States
+as people move into areas at risk and as our infrastructure becomes
+more complex and more valuable.
+ This report addresses the problems of delivering warnings reliably
+to only those people at risk and to systems that have been
+preprogrammed to respond to early warnings. Further, the report makes
+recommendations on how substantial improvement can be made if the
+providers of warnings can become better coordinated and if they can
+better utilize the opportunities provided by existing and new
+technologies. Current warnings can target those at risk at the county
+and sub-county level. The technology presently exists to build smart
+receivers to customize warnings to the users'; local situation, whether
+at home, at work, outdoors, or in their cars. It should also be
+possible to customize the information for trucks, trains, boats, and
+airplanes. The problem is to agree on standards and dissemination
+systems.
+
+Disaster Warnings: Technologies and Systems
+ Disaster warning is a public/private partnership. Most warnings,
+including all official warnings, are issued by government agencies.
+Most dissemination and distribution systems are owned and operated by
+private companies. Liability issues make it problematic for private
+entities to originate warnings. Public entities typically cannot afford
+to duplicate private dissemination and distribution systems.
+ Effective warnings should reach, in a timely fashion, every person
+at risk who needs and wants to be warned, no matter what they are doing
+or where they are located. Such broad distribution means utilizing not
+only government-owned systems such as NOAA Weather Radio and local
+sirens, but all privately owned systems such as radio, television,
+pagers, telephones, the Internet, and printed media. If warnings can be
+provided efficiently and reliably as input to private dissemination
+systems, and if the public perceives a value and desire to receive
+these warnings, then private enterprise has a clear mandate to justify
+the development of new distribution systems or modification of existing
+systems. What if a warning-receiving capability were simply an added
+feature available on all radios, televisions, pagers, telephones, and
+such? The technology exists not only to add such a feature, but to have
+the local receiver personalize the warnings to say, for example,
+``Tornado two miles southwest of you. Take cover.'' What does not exist
+is a public/private partnership that can work out the details to
+deliver such disaster warnings effectively.
+ The Emergency Alert System (EAS) is the national warning system
+designed primarily to allow the President to address the nation
+reliably during major national disasters. All radio and television
+stations (and soon all cable systems) are mandated by the Federal
+Communications Commission (FCC) to have EAS equipment and to issue
+national alerts. The stations and cable systems may choose whether they
+wish to transmit local warnings and they may also delay transmission
+for many minutes. The warnings consist of a digital packet of
+information and a verbal warning of up to two minutes in length. The
+EAS interrupts normal programming or at least adds a ``crawl'' to the
+margin of the television screen. Program producers and advertisers want
+to minimize unnecessary interruptions. As a result, only a modest
+percent of severe weather warnings issued by the National Weather
+Service are relayed to citizens by available stations. The warnings
+that are relayed may only apply to a small part of the total listening
+area but are received by all listeners. When people receive many
+warnings that are not followed by the anticipated events, they tend to
+ignore such warnings in the future.
+ The information and technology revolutions now underway provide a
+multitude of ways to deliver effective disaster warnings. Digital
+television, digital AM radio, and FM radio offer the capability to
+relay warnings without interrupting programming for those not at risk.
+Techniques exist to broadcast warnings to all wireless or wired
+telephones or pagers within small regions. Existing and planned
+satellites can broadcast throughout the country and the world. The
+Global Positioning Satellite (GPS) systems are providing inexpensive
+ways to know the location of receivers. The technology exists. The
+problem is to implement standards and procedures that private industry
+can rely on to justify development and widespread distribution of a
+wide variety of receivers.
+
+Recommendations
+ This report provides the background information to justify the
+following recommendations:
+ 1. A public/private partnership is needed that can leverage
+government and industry needs, capabilities, and resources in order to
+deliver effective disaster warnings. The Disaster Information Task
+Force (1997) that examined the feasibility of a global disaster
+information network has also recommended such a partnership. The
+partnership might be in the form of a not-for-profit corporation that
+brings all stakeholders together, perhaps through a series of working
+groups, to build consensus on specific issues for implementation and to
+provide clear recommendations to government and industry.
+ 2. One or more working groups, with representatives from providers
+of different types of warnings in many different agencies, people who
+study the effectiveness of warnings, users of warnings, equipment
+manufacturers, network operators, and broadcasters, should develop and
+review on an ongoing basis:
+ A single, consistent, easily-understood terminology
+ that can be used as a standard across all hazards
+ andsituations. Consistency with systems used in other countries
+ should be explored.
+ A single, consistent suite of variables to be included
+ in a general digital message. Consistency withsystems used in
+ other countries should be explored.
+ The mutual needs for precise area-specific locating
+ systems for Intelligent Transportation Systems andEmergency
+ Alert Systems to determine where resources can be leveraged to
+ mutual benefit.
+ The potential for widespread use of the Radio
+ Broadcast Data System (RBDS) and other technologies thatdo not
+ interrupt commercial programs for transmitting emergency
+ alerts.
+ Cost effective ways to augment existing broadcast and
+ communication systems to monitor warninginformation
+ continuously and to report appropriate warnings to the people
+ near the receiver.
+ 3. A standard method should be developed to collect and relay
+instantaneously and automatically all types of hazard warnings and
+reports locally, regionally, and nationally for input into a wide
+variety of dissemination systems. The National Weather Service (NWS)
+has the most advanced system of this type that could be expanded to
+fill the need. Proper attribution of the warning to the agency that
+issues it needs to be assured.
+ 4. Warnings should be delivered through as many communication
+channels as practicable so that those users who are at risk can receive
+them whether inside or outside, in transportation systems, or at home,
+work, school, or shopping, and such. Delivery of the warning should
+have minimal effect on the normal use of such communication channels,
+especially for users who will not be affected.
+ The greatest potential for new consumer items in the near future is
+development of a wide variety of smart receivers as well as the
+inclusion of such circuits within standard receivers. A smart receiver
+would be able to turn itself on or interrupt current programming and
+issue a warning only when the potential hazard will occur near the
+particular receiver. Some communication channels where immediate
+expansion of coverage and systems would be most effective include NOAA
+Weather Radio, pagers, telephone broadcast systems, systems being
+developed to broadcast high-definition digital television (HDTV), and
+the current and Next Generation Internet.
+
+A National Strategy for Integrated Public Warning Policy and Capability
+
+ Partnership for Public Warning, May 16, 2003
+
+ (ppw.us/ppw/docs/nationalstrategyfinal.pdf)
+
+ Executive Summary
+
+ Public warning empowers people at risk to take actions to reduce
+losses from natural hazards, accidents, and acts of terrorism. Public
+warning saves lives, reduces fear, and speeds recovery. Its success is
+measured by the actions people take.
+ Warning is an important element of providing for public safety.
+Public safety is a fundamental duty of municipal, county, and tribal
+government and, for larger hazards, of state and Federal government.
+Public safety is also the responsibility of citizens to take action not
+only to protect themselves and their loved ones, but also to make
+society safer through their jobs and community activity.
+ The American people believe that a public warning system exists.
+While current warning systems are saving lives, they are not as
+effective as they can be or should be. This document explains the
+inadequacies of our national warning capability and charts a course for
+improving current warning capability to provide what the American
+people need and expect.
+ The National Weather Service issues the majority of public warnings
+in the United States and has developed sophisticated warning procedures
+and systems. The National Oceanic and Atmospheric Administration (NOAA)
+Weather Wire System operated by the Weather Service and the National
+Warning System operated by the Federal Emergency Management Agency
+(FEMA) provide ways to collect and distribute warning information to
+emergency managers and other key personnel nationwide. The Emergency
+Alert System and NOAA Weather Radio provide ways to deliver warnings to
+some of the people at risk. A wide variety of other warning systems
+reach people at risk around critical facilities such as dams, chemical
+plants, oil refineries, and nuclear facilities. Many private businesses
+will deliver warnings to subscribers through telephones, wireless
+devices, and email.
+ A basic concern with current public warning systems is that they do
+not reach enough of the people at risk and often reach many people not
+at risk. Few local emergency managers or first responders have
+effective ways to input information and warnings directly into these
+systems. Warnings from different sources are rarely available to all
+warning systems in a given region. Many of the systems are not
+interoperable. There are very few standards, protocols, or procedures
+for developing and issuing effective and interoperable warnings.
+Warnings from different sources use different terminology to express
+the same issues of risk and recommended action. Even the national
+Emergency Alert System has increasing inconsistencies and increasing
+potential points of failure due to decreased funding, failure in some
+localities to develop state and local plans for proper utilization, and
+recent introduction of new codes in a non-standard manner.
+ All stakeholders involved in public warning should be represented
+in developing an effective national public warning capability. The
+Federal government needs to provide leadership, but cannot do it alone.
+The primary responsibility for warning resides with county, municipal,
+and tribal government, but they often need state and Federal
+assistance. Scientists, intelligence experts, and other authorities
+develop warning information on regional, national, and even
+international scales. The news media relay and explain warnings, and
+the broadcasters and cable operators operate the Emergency Alert
+System. Industry plays a key role in developing, building, refining,
+and operating warning systems. Certain industries also provide public
+warnings around critical facilities. Many professional and trade
+associations as well as nonprofit organizations and volunteers
+represent the needs of various groups involved in delivery or
+utilization of warnings.
+ Our national warning capability needs to be focused on the people
+at risk at any location and at any hour, be universally accessible,
+safe, easy to use, resilient, reliable, and timely. Numerous
+technologies exist to do this and in many ways technology is the
+easiest part of the solution. The bigger challenges are to provide
+accurate, understandable, specific, and informative warnings and to
+develop procedures and processes for collecting and disseminating those
+warnings in standard and secure ways.
+ For warnings to be readily available to all people at risk, no
+matter where they are or what they are doing, the warning capability
+should be ubiquitous, but in an unobtrusive manner that respects
+privacy and individual choice. This requires partnership and teamwork
+among all the different stakeholders. An effective warning strategy
+must enable industry to develop a wide range of market-based solutions.
+Industry needs a clear statement of government intent and clearly
+articulated standards that specify required interoperability for a
+national warning capability. Industry will be naturally motivated to
+augment basic interoperability with competitive capabilities and
+refinements. Industry also needs an official stream of all-hazard
+warnings that industry can deliver without liability for the content.
+An effective warning strategy must also integrate efforts by government
+not only to issue warnings but also to deliver them..
+ States, counties and municipalities have developed disparate alert
+networks at a cost of hundreds of millions of dollars; these networks
+are not particularly effective, are not interoperable, and will be
+difficult to consolidate. To alleviate this unduly expensive and
+massive duplication of effort, national policy should be adopted
+calling for partnership in linking all stakeholders and the public with
+critical community-specific information that can be used to save lives
+and reduce losses. A public/private partnership is needed to develop
+the policies for and implementation of a national warning backbone that
+will deliver a stream of all-hazard warning information using standard
+terminology and procedures to a wide variety of warning delivery
+systems for any region. Such a capability should leverage existing and
+developing public and private network capabilities.
+ The President and Congress need to make public warning a national
+priority, assign lead responsibility to the Secretary of Homeland
+Security, appropriate the necessary funds to engage the suitable
+stakeholders effectively to develop national standards and protocols,
+and set deadlines for implementation. Public warning should also be
+made a priority for other federal programs so that information is
+gathered in a manner that will support this endeavor.
+ Working together in partnership, the stakeholders should assess
+current warning capability, carry out appropriate research, and develop
+the following:
+ A common terminology for natural and man-made hazards
+ A standard message protocol
+ National metrics and standards
+ National backbone systems for securely collecting and
+ disseminating warnings from all available official sources
+ Pilot projects to test concepts and approaches
+ Training and event simulation programs
+ A national multi-media education and outreach campaign
+ If we the stakeholders act now, each and every American at imminent
+risk can have immediate access to warnings, knowledge of how to take
+appropriate action, and a choice on selecting what information is
+delivered and under what circumstances. Although this document deals
+with national strategy, the authors of this draft feel it is important
+to estimate initial costs required to bring it to fruition. A
+significantly improved national public warning capability can be up and
+running within two years, at a Federal outlay of no more than $15
+million annually. The majority of initial Federal funding should be
+used to initiate and support stakeholder involvement in developing
+interoperable standards and procedures for an all-hazard warning
+capability. Then state and local money can help in developing specific
+details of local warning input and industry can play a major role in
+developing consumer products for delivery of the warnings. Large
+amounts of additional Federal funding should not be required. Thus the
+strategy is that most federal government costs are up front. . .to
+prime the pump.
+ Many key stakeholders are already making an investment and effort
+and have laid the groundwork for a federal authority to step up to the
+challenge. All stakeholders have a shared duty and obligation to act.
+September 11th taught us that the unthinkable is no longer an excuse
+for delay. Future tragedies--whether natural or man-made--are not a
+matter of if, but when. Lives can be saved and losses reduced through
+effective public warning. Americans expect their government to protect
+them and believe an effective warning capability exists. However, an
+effective warning capability does not exist, and it is only as matter
+of time before our nation will come to wish it did.
+
+ Mr. Shadegg. Thank you very much. Mr. Lucia.
+
+ STATEMENT OF FRANK LUCIA, VICE CHAIRMAN, WASHINGTON, D.C.
+EMERGENCY ALERT SYSTEM COMMITTEE MEMBER, PUBLIC COMMUNICATIONS
+ & SAFETY WORKING GROUP, MEDIA SECURITY AND RELIABILITY COUNCIL
+
+ Mr. Lucia. I thank the subcommittee and Congressman Shadegg
+for the opportunity to participate in this hearing.
+ I retired from the FCC in January 2001, after a 36-year
+career. My last 25 years were spent on public warning issues
+and Federal Government preparedness. At the FCC I served as
+Director of Emergency Communications and Senior Adviser, EAS. I
+oversaw the technical operations of EBS and EAS and
+participated in EAS State and local planning workshops across
+the country. I was one of the government employees on the OSTP
+committee and recently chaired the PPW committee that developed
+the EAS assessment report.
+ Presently, I volunteer as a member of the Public
+Communications and Safety Working Group of the FCC advisory
+committee, the MSRC, as the EAS representative to PPW, and as
+the Vice Chair of the Washington, D.C. EAS committee.
+ The key points of both the MSRC and PPW reports are that a
+single Federal entity should be responsible for assuring that
+public communications capabilities and procedures exist, are
+effective, and are deployed for distribution of warnings to the
+public by appropriate Federal, State and local government
+personnel agencies and authorities; that lead responsibilities
+are established at the Federal, State and local levels within
+the overall discipline of emergency management; and that a
+national uniform All Hazard risk communications warning process
+is implemented from a public and private consensus on what best
+meets the needs of the public, including people of diverse
+language and/or with disabilities.
+ MSRC and PPW assert that effective delivery of emergency
+information to the public should be achieved through a public-
+private partnership that makes coordinated use of mass media
+and other dissemination systems.
+ My written statement contains the specific recommendations
+that were developed by MSRC and PPW.
+ My main concern is that EAS and the warning structure in
+general are in need of resources so that they can become truly
+effective to warn our citizens. Through the years, volunteers
+have carried the load in developing EAS emergency plans.
+However, no one has taken responsibility to see that emergency
+management officials or other first responders know EAS is in
+place and available to deliver emergency messages. We know of
+no one who used EAS on 9/11, even though it was available. Very
+few emergency managers are connected to EAS. They need to be
+trained to use it. Some frustrated broadcasters set up the
+AMBER program and persuaded local law enforcement to use the
+idle EAS equipment to save abducted children. The remarkable
+and near instant success of the AMBER alerts is clear evidence
+about the efficacy of the EAS and the astonishing impact
+broadcasters and cable operators offer by making their
+audiences available.
+ Emergency personnel need tools to convey emergency messages
+to the populace at risk. EAS, NOAA and all weather radio, the
+common alerting protocol, the AMBER portal and other industry
+systems need to be at their disposal to distribute warnings.
+ Presently the President's EAS message is transmitted by 34
+primary entry point radio stations. These 34 radio stations can
+reach only portions of the public. On air tests need to be
+conducted to ensure that the message reaches every State and
+local area.
+ Early warning has been proven to reduce the loss of life
+and property. The National Weather Service provides excellent
+service by transmitting early warning messages over their
+communications assets. We need to extend similar capabilities
+to all emergency managers at the State and local levels.
+ When EAS was established the Internet and cell phone usage
+did not have a significant market share of the populace. These
+and other new distribution systems can now provide access to
+millions of our citizens. They all need to be connected to form
+a total warning structure.
+ After the end of the Cold War, government resources in the
+planning and warning area began to dwindle. The volunteer State
+EAS chairs need assistance to hold workshops, to update their
+plans, train industry personnel, refine test procedures and
+ensure that EAS is integrated with other warning capabilities
+at the State and local levels. States and localities need
+assistance with emergency plan development, equipment and
+training.
+ In today's environment the government at all levels must
+have immediate and reliable communications with the public. It
+is an important part of our Nation's defense.
+ [The statement of Mr. Lucia follows:]
+
+ Prepared Statement of Frank Lucia
+
+ I thank the Subcommittee and Congressman Shadegg for the
+opportunity to participate in this hearing.
+ I retired from the FCC in January 2001, after a 36-year career. My
+last 25 years were spent on public warning issues and Federal
+government preparedness. At the FCC, I served as Director of Emergency
+Communications and Senior Advisor Emergency Alert System (EAS). I
+oversaw the technical operations of Emergency Broadcast System (EBS)
+and EAS and participated in EAS state and local planning workshops
+across the country. I was one of the government employees on the OSTP
+committee and recently chaired the Partnership for Public Warning (PPW)
+committee that developed the EAS Assessment Report.
+ Presently, I volunteer as a member of the Public Communications and
+Safety Working Group of the FCC Media Security and Reliability Council
+(MSRC), as the EAS Representative to PPW, and as the Vice-Chair of the
+Washington DC EAS Committee.
+ The key points of both the MSRC and PPW reports are that a single
+federal entity should be responsible for assuring;
+ That public communications capabilities and procedures exist, are
+effective, and are deployed for distribution of warnings to the public
+by appropriate federal, state and local government personnel, agencies
+and authorities,
+ That lead responsibilities are established at the federal, state
+and local levels within the overall discipline of emergency management,
+ And that a national, uniform, all-hazard risk communication warning
+process is implemented from a public and private consensus on what best
+meets the needs of the public, including people of diverse language
+and/or with disabilities.
+ MSRC and PPW assert that effective delivery of emergency
+information to the public should be achieved through a public/private
+partnership that makes coordinated use of mass media and other
+dissemination systems. My written statement contains the specific
+recommendations that were developed by MSRC and PPW.
+ My main concern is that EAS and the warning structure in general
+are in need of resources so they can become truly effective to warn our
+citizens. Through the years volunteers have carried the load in
+developing EAS emergency plans. In establishing EAS, the broadcast and
+cable industries complied with the FCC rules to install and test EAS
+equipment at a cost of millions of dollars. They installed EAS and
+special equipment at every broadcast station and cable system to make
+possible instantaneous communication to the public about any critical
+emergency. However, no one has taken responsibility to see that
+emergency management officials or other first responders know the
+system is in place and available to deliver emergency messages.
+ We know of no one who used EAS on 9-11 even though the EAS was
+available. Very few emergency managers are connected to EAS and trained
+to communicate the information that can save lives and property.
+ Some frustrated broadcasters set up the Amber program and persuaded
+local law enforcement to use the idle EAS equipment to save abducted
+children. The markable and near instant success of the Amber alerts is
+clear evidence about the efficacy of the EAS system and the astonishing
+impact broadcasters and cable operators offer by making their audiences
+available.
+ Understandably, resources are needed to equip emergency personnel
+with the tools needed to respond to a terrorist attack and other
+disasters. However, they also need tools to convey emergency messages
+to the populace at risk. EAS, NOAA Weather Radio, the Common Alerting
+Protocol (CAP), the Amber Portal and other industry systems need to be
+at their disposal to distribute warnings.
+ EAS was created to allow the President of the United States to
+communicate with the public in an emergency. Because of the failure to
+coordinate EAS at the state and local level, the efficacy of the system
+to disseminate the President's message is undermined. Presently, the
+President's message is disseminated by 34 Primary Entry Point (PEP)
+radio stations. Those 34 radio stations can reach only portions of the
+public; so the plan anticipates that other broadcasters and cable
+operators will relay the president's message. Yet no on air tests have
+been performed to insure that the message reaches every state and local
+area.
+ Early warning has been proven to reduce the loss of life and
+property. Casualties and property losses were greatly reduced as a
+result of early warnings prior to the arrival of the recent hurricanes
+and tornadoes. The National Weather Service provides excellent service
+by transmitting early warning messages over their communications
+assets. We need to extend similar capabilities to all emergency
+managers at the state and local levels.
+ When EAS was established, the Internet and cell phone usage did not
+have a significant market share of the populace. These and other new
+distribution systems can now provide access to millions of our
+citizens. They all need to be connected to form a total warning
+structure.
+ After the end of the cold war, government resources in the planning
+and warning area began to dwindle. The volunteer state EAS Chairs who
+have been working developing EAS plans need assistance to hold
+workshops to update their plans, train industry personnel, refine test
+procedures, and insure that EAS is integrated with other warning
+capabilities at the state and local level. States and localities need
+assistance with emergency plan development, equipment and training.
+ In today's environment, government at all levels must have
+immediate and reliable communications with the public. It is an
+important part of out nation's defense.
+
+MSRC Public Communications and Safety Committee Recommendations
+ 1. A single Federal entity should be responsible for assuring:
+ public communications capabilities and procedures
+ exist, are effective, and are deployed for distribution of risk
+ communication and warnings to the public by appropriate
+ federal, state and local government personnel, agencies and
+ authorities.
+ lead responsibilities and actions under various
+ circumstances are established at Federal, State and Local
+ levels within the overall discipline of emergency management
+ a national, uniform, all-hazard risk communication
+ warning process is implemented from a public and private
+ consensus on what best meets the needs of the public, including
+ people of diverse language and/or with disabilities, including
+ sensory disabilities.
+ Effective delivery of emergency information to the public should be
+achieved through a public/private partnership that makes coordinated
+use of mass media and other dissemination systems to quickly reach
+large numbers and diverse groups of the public at risk to deliver
+emergency information to the public.
+ 2. Consistent with best practices in emergency management and
+business continuity planning, local and State governments and the media
+should cooperate to create, review and update emergency communications
+procedures, such as EAS, Amber plans and their components, to quickly
+disseminate critical information to the largest possible audience.
+ Effective use should be made of current, emerging, and
+ legacy systems, including television, radio and weather radio
+ that includes EAS.
+ Local media must be included in the creation of the
+ communications and warning plan and understand their key role
+ in its successful implementation.
+ The skill set of both federal and local agency
+ participants should include training and process knowledge of
+ how to work with and the benefits of utilizing the media to
+ inform the public in a timely fashion during emergencies.
+ Emergency managers should have a working knowledge of how to
+ access EAS and other public warning systems.
+ Local media should assist government to create and
+ deliver more effective public education about emergencies and
+ preparedness.
+ Local Media should assist State and Local
+ government to develop a public education program that
+ includes actions that the public can take (and refrain
+ from) that will assist in the response to and recovery
+ from disasters.
+ State and Local public education programs
+ should be coordinated with Federal government programs
+ of public information and education.
+ Local media should agree to develop consistent
+ presentation guidelines to ensure that all emergency delivery
+ systems work well together to accurately deliver emergency
+ information to the entire community.
+ Government and local media should conduct regular
+ testing and rehearsals of emergency communications plans.
+ Appropriate policies for the judicious use of
+ Emergency Communications should be created to preserve public
+ confidence and the integrity and urgency of such
+ communications.
+ 3. All local media should form emergency jurisdiction / market
+cooperatives to assure delivery of local government emergency messages
+in a coordinated way to all constituencies in the community.
+ Local media in each market should be encouraged to
+ create media pools for risk communication and warning; in
+ markets where pools exist, a working committee should take the
+ pool to the higher level of security, isolating it from the
+ traditional news coverage pool concerns.
+ Local media should consider the creation of an
+ Emergency Communications Coordinator position to serve as
+ single media point of contact for government and develop a
+ cooperative relationship with the local government lead agency.
+ State and Local government should consider equipping
+ their Emergency Operating Centers (EOCs) with the basic audio
+ and/or video equipment that allows them to provide feeds of
+ local government officials to the local media
+ Government and Media representatives from their technical staffs
+should meet regularly to ensure that joint plans and procedures have
+been implemented properly and that the supporting infrastructure is
+maintained in good working condition.
+ Media and government jurisdictions should agree to
+ take pre-planned actions upon authenticated notice from
+ authorized government agencies, and incorporate these pre-
+ planned actions in overall emergency management training
+ exercises.
+ Local media and appropriate public safety and
+ other government agencies should establish local and
+ state emergency communication committees to plan well-
+ coordinated community responses for disasters.
+ Local media should engage in coordinated
+ activities to assure the flow of emergency information
+ using multiple languages and means to make this
+ information available to persons with disabilities in
+ their communities.
+ Pre-planned coordinated activities / roles appropriate
+ to local conditions for each media under various scenarios
+ (e.g. the type & number of delivery systems continuing to
+ function) should be created, developed, rehearsed and tested.
+ In particular, emergency communications plans
+ must take into account the probability of widespread
+ power outages when AM and FM radio is the only way to
+ communicate to battery powered receivers in the
+ community.
+ 4. As the nation's current means to issue timely warnings through
+mass media, the Emergency Alert System should be periodically tested,
+upgraded as necessary, implemented and maintained at the local, state,
+and national levels.
+ EAS equipment should be uniformly implemented to make
+ use of the latest EAS codes approved by the FCC.
+ Written State and local EAS plans should be brought up
+ to date with close participation by broadcasters and cable
+ operators.
+ Wired and wireless paths to EAS entry points from
+ warning sources designated in State and local EAS plans should
+ be in good working order.
+ State and Local EAS plans should consider the use of
+ the FM radio sub-carriers as a means of providing additional
+ entry points on a cost effective basis.
+ The Primary Entry Point system that gives the
+ President the ability to address the Nation through EAS should
+ be in good working order and be regularly reviewed and improved
+ if necessary in terms of reliability, reach and robustness.
+ Ongoing development of Presidential emergency
+ communication systems and procedures should be coordinated with
+ the ongoing development of new and legacy state emergency
+ communication systems and procedures, including EAS.
+ 5. Research into development of alternative, redundant and/or
+supplemental means of communicating emergency information to the public
+should be accelerated.
+ An expanded government partnership with the media,
+ consumer electronics and computer industries should harness
+ free market innovation, foster competition, and enhance
+ interoperability to meet changing national warning needs.
+ The partnership should explore the use of
+ emerging new technologies to improve and / or
+ complement existing infrastructures and to leverage
+ emerging new infrastructures.
+ 6. Local jurisdiction / market cooperatives should be encouraged to
+share their locally developed best practices for coordinating their
+efforts, delivering risk communications and warnings to their diverse
+public constituencies, and joint continuity planning to maintain
+communications under crisis conditions.
+
+PPW EAS Assessment Report Recommendations
+ Based upon this assessment, the Partnership for Public Warning
+makes the following recommendations regarding the future of the
+Emergency Alert System:
+ The Department of Homeland Security should assume a leadership role
+for creating an effective national public warning capability. DHS, in
+concert with other appropriate federal agencies, should strengthen the
+Emergency Alert System by doing the following:
+ 1. Provide leadership and oversight as necessary to manage the EAS
+system.
+ Evaluate and support the implementation of new and
+ emerging technologies, which provide greater bandwidth
+ capabilities and reach large segments of the population.
+ Ensure that any new technologies are backward
+ compatible with the existing EAS/SAME equipment at 15,000
+ broadcast stations, 10,000 cable head ends and 1,000 NWR
+ transmitters.
+ Integrate the EAS and NWR systems with the emergency
+ management community, by providing a cost effective, reliable,
+ and secure method of activating the EAS system by state and
+ local emergency management agencies.
+ Institute reporting requirements for system
+ activations to allow for the development of effective after
+ action and service assessment reports.
+ Develop and administer procedures and standards for
+ the requirement, analysis, evaluation, and approval of state
+ and local plans and a needs assessment of system equipment and
+ connectivity.
+ Require mandated compliance with EAS system upgrades
+ within 180 days of official notice or regulation adoption date.
+ Provide training resources for all EAS stakeholders
+ designed to insure that the EAS system is maintained in an
+ operational status, and that all participants are trained and
+ qualified as necessary to perform their role in the use of the
+ system.
+ Distribute and promote these resources through
+ course offerings at FEMA's Emergency Management
+ Institute, and by providing regional, state, and local
+ training workshops as necessary, including on-site
+ assistance.
+ Involve strategic partners in this training
+ effort such as NEMA. IAEM, SBE, NAB, SCTE, NCTA, and
+ state broadcaster associations.
+ Attend and participate in broadcast and cable
+ industry events and conventions to form a closer
+ alliance with the broadcast and cable communities.
+ Develop and administer an education initiative using
+ public service announcements to raise public awareness of the
+ role of the EAS system in public warning.
+ 2. Strengthen and improve the PEP system.
+ Improve delivery methods to enhance system security,
+ reliability, and robustness.
+ Increase testing (to include on air tests as
+ necessary) to ensure that the PEP system is maintained in a
+ ready state.
+ Expand the reach of the system by adding PEP stations
+ and including major broadcast networks, national cable program
+ suppliers, and satellite based media outlets.
+ Implement policies and procedures at the activation
+ points to allow the use of the PEP system for the purpose of
+ public warning.
+ 3. Update the existing Memorandum of Understanding that defines a
+framework for a cooperative effort for developing and evaluating state
+and local plans, to more accurately reflect current EAS capabilities
+and to clearly delineate management and oversight responsibilities. As
+appropriate, the MOU should also incorporate other federal and non-
+federal agencies participating in the EAS.
+ 4. Find avenues to provide appropriate federal government funding
+and resources to support and operate the EAS and ensure that the
+federal government does not impose un-funded mandates on state and
+local governments, or the broadcast and cable communities. Study
+incentives for industry to participate voluntarily.
+ 5. Support a public private partnership to develop the standards,
+policies and procedures to integrate the EAS into a comprehensive
+national public warning capability.
+
+ Mr. Shadegg. I thank you very much, Mr. Lucia, for your
+testimony. And now Ms. McGinnis.
+
+STATEMENT OF PATRICIA McGINNIS, PRESIDENT AND CEO, COUNCIL FOR
+ EXCELLENCE IN GOVERNMENT
+
+ Ms. McGinnis. Thank you very much, Mr. Chairman, and
+members of the subcommittee for including me in this hearing. I
+want to congratulate you on focusing on this important issue--
+really getting to the heart of the matter to think about and
+look at what would actually happen if we had to mobilize the
+public in real time in an emergency. I think that is a great
+test of our Homeland Security enterprise.
+ The Council for Excellence in Government is a nonprofit
+organization which for 20 years has focused on two goals,
+improving the performance of government and engaging citizens.
+I think those are your goals in this hearing and in this
+subcommittee.
+ Last fall we launched a very ambitious effort called
+Homeland Security from the Citizens' Perspective. We looked at
+the whole enterprise, Federal, State and local, public-private,
+the volunteer and civic community from the bottom up, through
+the eyes of ordinary citizens, and we did that by holding a
+series of seven town hall meetings across the country in St.
+Louis, Miami, San Diego, Houston, Fairfax Boston and Seattle.
+ In addition to having those conversations with hundreds,
+actually thousands of citizens across the country, we conducted
+a national poll based on what we heard from citizens to test
+their ideas and gauge their concerns in terms of whether they
+were representative of the whole country. We had experts from
+the public and private sector in working groups looking at
+citizens' concerns and ideas to help us produce this report,
+which you have a copy of, called ``We the People: Homeland
+Security from the Citizens' Perspective.''
+ The major finding of this work is very pertinent to what we
+are talking about today, and that is that there is a tremendous
+communications gap between government and citizens in homeland
+security, and we think that citizens, the public, ultimately is
+the most important and most untapped resource not only in an
+emergency response situation, but also to help prevent and
+prepare for emergencies. Repeatedly in the town halls, and this
+was so powerful, we had State and local and Federal officials
+together in conversations with the public, representatives from
+both parties, very--this was a very constructive conversation.
+They were very proud of the plans that they have come up with,
+particularly at the local level, and the hard work that has
+been done bringing different agencies together. And then when
+we asked the people in the audience and in our polling in the
+local areas if they were aware of these plans, if they had any
+idea of what to do in an emergency, if they knew where to get
+the information, and the answer is a resounding no. And that is
+a huge issue.
+ And the thing that was striking in the moment of these
+discussions was that the officials in charge were surprised by
+that because the plans are on their Web sites. There is
+information out there. A lot of information has been mailed to
+people. But it is simply not user friendly. Everyone is not
+going to a Web site. We have a huge communications gap. We
+asked people how they would get their information in the
+absence of knowing or thinking ahead of time about what to do,
+and they say they would turn on the television first, and the
+Internet for guidance. But if power is shut down, what would
+they do, and how many people have battery powered radios and
+who knows what stations to turn to if we need information
+immediately. And, as we talked about before, how many of our
+televisions, radios and other equipment can receive these
+digital signals in the kind of emergency alert system that we
+envision that would get information out in a very broad way in
+real time?
+ Information sharing emerged as the top concern in every
+single town hall meeting and the top recommendation of the
+public. People want the government to have the tools necessary
+to share information and communicate with them, and this gets
+to both the issues of interoperability in terms of sharing and
+analyzing the information and making decisions before you get
+to a point where you can issue an instruction, an emergency
+instruction. That has to be right because the information has
+to be reliable. It has to be geographically specific. And then
+you have to be able to get it out to everyone regardless of
+language or location or disability.
+ We made a number of recommendations in four areas, and I
+think they can serve as principles for your work. Collaborative
+leadership, information sharing, engaging citizens in the
+process and measuring readiness. And I am not going to go
+through all those recommendations. You can read them. But I am
+going to highlight a few.
+ We need an updated National Strategy for Homeland Security.
+The National Strategy for Homeland Security was prepared in
+2002. It is excellent but it has not been updated and needs to
+be updated to provide a framework for State and local plans,
+for workplace, school, hospital, other kinds of plans, and it
+needs to be very specific in terms of goals, assignments of
+responsibilities, performance measures, and the vulnerability
+assessments which have to be part of that planning should
+include examining emergency alert systems. The critical
+infrastructure owned mostly by the private sector, should
+definitely include private broadcasters and we should be
+focused on their plans and coordinating them with the national
+strategy. We need plans and we need to practice them.
+ In terms of information sharing, we have talked a lot, and
+we absolutely agree that we need the standards and protocols so
+that decisions can be made and communications with the public
+can take place. We absolutely agree and made some
+recommendations that information should be shared through many
+channels. You really need to think from the perspective of a
+citizen in terms of how they are going to get their
+information. And so all the channels that we have talked about
+from radio to television, to the Internet, to cell phones to
+personal computers and--we need to have all of that.
+ In terms of engaging citizens, and this is a point I will
+make generally and we have a lot of specific recommendations,
+we think that citizens need to be part of building this,
+understanding it and practicing it, because right now if you
+have an emergency the response is likely to be quite chaotic
+regardless of how effective even a digital emergency alert
+system is if people aren't aware of what they are supposed to
+be listening for and what they should do under a variety of
+scenarios.
+ We suggested that local government should provide people
+with information that is really boiled down, maybe to an index
+card that gives them an idea of what they have to have and what
+they should do and where they should turn in different
+scenarios of emergencies. In some cases you would shelter in
+place. In some cases you would evacuate. And if you think that
+through ahead of time and talk with your family about it,
+practice it in your schools, workplaces, et cetera, there is
+going to be a lot more calm, ability to tune in, get the
+instructions and follow them.
+ The readiness measure--
+ Mr. Shadegg. If you could wrap up as quickly as you can.
+ Ms. McGinnis. I will wrap up. I will just say that what we
+are working on now is the notion of measuring readiness and
+creating scorecards for a variety of institutions and actually
+having a readiness index for the public.
+ Thank you.
+ [The statement of Ms. McGinnis follows:]
+
+ Prepared Statement of Patricia McGinnis
+
+ Thank you Mr. Chairman and members of the Subcommittee for inviting
+me here today to participate in this important discussion about
+emergency warning systems and communicating with the public in this new
+era of homeland security. I congratulate you on getting to the heart of
+the matter--to look at what would actually happen--or not happen--in
+the real time mobilization of the public as an emergency unfolds.
+ As a nonprofit organization, which for 20 years has focused on
+improving the performance of government and engaging citizens, the
+Council for Excellence in Government shares your concern about the
+timely and effective communications with the public in emergency
+situations.
+ In the fall of 2003, the Council launched an ambitious effort
+called Homeland Security from the Citizens' Perspective. We looked at
+the entire homeland security enterprise from the bottom up--through the
+eyes of ordinary citizens. Our goals were to solicit ideas and
+articulate a vision of safe and secure communities across the country,
+and to identify the communications and actions necessary to get us
+there.
+ To foster dialogue between citizens and leaders, we organized seven
+town hall meetings across the country in St. Louis, Miami, San Diego,
+Houston, Fairfax, Boston and Seattle. In doing so, we reinvented the
+traditional town hall by adding interactive polling technology and the
+internet to gauge citizens' views and encourage questions, feedback and
+participation. We arranged to have many of the town hall meetings
+broadcast live on radio and television, allowing countless others to
+participate from home.
+ In tandem with these town hall meetings, we convened working groups
+comprised of thought leaders from the public, private and nonprofit
+sectors. They took the ideas and concerns from the town hall meetings
+and provided guidance about approaches and solutions to achieve the
+safety and freedom that citizens want. Our national poll amplified and
+clarified what we heard both in the town hall meetings and in the
+working groups.
+ A major headline of this work is the existence of a tremendous
+communications gap between government and citizens, whom we believe are
+the nation's most important and most untapped resource to help prevent,
+prepare for and respond to a terrorist attack in this country.
+ Repeatedly in our town halls, we asked the audience whether they
+were aware of their state, city, work, or school emergency plans. Time
+and again, I saw the panelists--local and state homeland security
+directors, police and fire chiefs, and federal officials too--quite
+surprised that the people in their communities have little or no
+awareness of their plans, how they
+
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+
+ Mr. Shadegg. Thank you very much. I want to thank each of
+you for your testimony and for your written testimony as well.
+ I want to begin with you, Mr. Lucia, because quite frankly
+I am a little confused. A great deal of the discussion here
+today has been on the EAS system, and your points about needing
+more resources were well taken. It was a system that was
+created, as has been explained earlier here today, to warn
+Americans of an impending nuclear attack. Quite frankly, over
+time that became a remote possibility, quite fortunately, and
+now I think we need a better system. Quite frankly, I think you
+are right about needing more resources.
+ However, one of the things that I was concerned about is
+that you made reference to the system not being activated as
+often as it should be or not having been activated in the 9/11
+incident except that as I understand it, and here is my
+confusion, as I understand it, the current EAS system can only
+be, I guess, activated or utilized by the President. And Mr.
+Cox pointed out in his earlier questioning, it seems to me,
+there ought to be a capability of regional activation. And I
+think that is what you said in your testimony, is that correct?
+ Mr. Lucia. Yes. It is set up technically so that it can be
+activated regionally. It depends on which of the 34 stations
+are activated to bring the President's message. So it could be
+done regionally. Using that method. FEMA can control which of
+the 34 are going to put out the message.
+ Mr. Shadegg. But should it be able to be activated at a
+much lower level? For example, the AMBER alert system can be
+activated by a local police department when a child is
+abducted.
+ Mr. Lucia. Right. The AMBER plans are excellent examples of
+how you can take an originator who makes up a message, have
+connection capability to the broadcasters and cable operators
+in a given area and put on an AMBER alert instantly. There are
+other systems that go with that, you know, the AMBER portal and
+so forth.
+ But the problem is the local, State and local EAS plans are
+now done voluntarily. And several years ago--and I keep going
+back to the past--we had a program where we do workshops around
+the country to develop these State and local plans and make
+sure that they were effective. Now, they are still being done,
+but I think there needs to be more government resources to lift
+that planning program, you know, off of dead center and get
+started again really.
+ Mr. Shadegg. Dr. Ward, in your testimony you said that
+technology is not the problem, and I would agree with that. But
+the weakest link is this link between people who have a warning
+to put out and those who actually disseminate the warning, and
+there are many mechanisms for the dissemination of the warning.
+The question is how do you implement that? Would you agree that
+there needs to be the capability of a regional warning?
+ Mr. Ward. Yes, there needs to be a capability of a regional
+warning. There needs to be a capability of focusing that
+warning on a specific region, not just which of the PEP
+stations are activated but a specific geographic region. I
+think one of the really remarkable successes of the AMBER Alert
+Web Portal is the way it can focus on exactly the areas it
+needs to go and how it can get these from either the State
+police or from any patrolman on duty who can get approval from
+the State police to enter that information can go out
+immediately everywhere it needs to go.
+ Mr. Shadegg. I think this committee, this subcommittee, is
+interested in actually taking action. I know the full committee
+is interested in that. On that point is there a need for a
+specific legislation? Mr. Cox in his earlier question said is
+this an executive branch issue, or is this a legislative branch
+issue? I think there is frustration here that we through the
+AMBER alert model have a much better mechanism to notify
+people, but we apparently don't have that for incidents that
+don't involve the abduction of a child. The kind of incident of
+9/11 I am not sure you would want to have issued an alert
+nationwide. You certainly needed the more important alert
+regionally, here for example, on Capitol Hill, during that gap
+between the first three planes crashing and where the fourth
+plane was going. You didn't necessarily need a national alert
+but you certainly needed a regional alert, and I guess the
+question is there something this committee or this Congress can
+do to move the ball down the court?
+ Mr. Ward. As I said earlier, one of the biggest problems
+everybody has identified is teamwork, the need to work
+together. The fact is for local warnings, local people have the
+responsibility to do it, and they want to do it. So the Federal
+Government can't just tell them what to do, and one of the
+problems with EAS is the fact that it is mandated on the
+broadcasters, and while many of them do it very voluntarily and
+want to do it, it is not evenly mandated. So I think what you
+need to do from the Federal level is somehow empower the local
+groups to solve this problem.
+ Again, I think the AMBER Alert Web Portal Consortium has
+given us a model for how you can get all of the different
+stakeholders involved. They put the agreements together as to
+how to--who is going to be responsible for what; how is it
+going to work. They then get the system going and it works very
+nicely. So I think we do have an excellent pilot out there that
+shows how we can get around all those different groups and get
+them working together.
+ Mr. Shadegg. Now there was Federal legislation to get AMBER
+Alert going. Is there a need for similar legislation here?
+ Mr. Ward. What there is a need for now, for example in the
+AMBER area, is to expand that effort to be an All Alert, and
+there is a need for Federal interest to do that. In talks with
+FEMA there is definitely an interest there. It is a question of
+going forward and getting it done.
+ Mr. Shadegg. So you think there is a need for Federal
+enabling legislation to convert essentially AMBER Alert into an
+All Hazards Alert so you could warn of anything, not just the
+abduction of a child?
+ Mr. Ward. Yes. It is a question of exactly how much
+legislation is required for the purpose of just getting forward
+and getting the job done. I mean for very small amounts of
+money this could be put nationally because you are not building
+new things.
+ Mr. Shadegg. I think every member of this subcommittee
+would like to see the job done, if not every Member of
+Congress. I think one of the issues is that the American public
+isn't consciously aware of how inadequate the warning system is
+right now and even probably not consciously aware of the
+importance, the increased importance of a warning system today
+following 9/11 versus in the nuclear era.
+ My time has expired. The Chair would call upon the ranking
+member, Mr. Thompson, for his questions.
+ Mr. Thompson. Thank you, Mr. Chairman. I agree with you on
+the inadequacy of the system and just in the testimony of the
+two panels we have heard a little bit about the inadequacy. Mr.
+Hoover testified that we can notify 94 percent of the people in
+this country with our existing system, and I have heard two
+gentlemen say we can do about 30 percent.
+ So can you help me out so at least we will leave today with
+some--
+ Mr. Ward. Let me first explain reverse 911. When you pick
+up the telephone and dial 911, in the center for the 911 calls
+your address is physically displayed on the screen. Now, this
+requires a database that has to be updated. More than 10,000
+telephone numbers change every day in the United States. There
+is a major effort to keep that database operational. Anyway,
+there is a database and of course cell phones add a whole other
+problem here. But there is a database that links your phone
+number to your physical location. You could use that to dial
+out but if you--as soon as you start dialing thousands of
+people you overload the switch system. As soon as you start
+sending short messages service, messages to Blackberries and
+cell phones you overload the switching system to get it out
+there. You need to broadcast the information. Now, there are
+hundreds of companies out there that will provide the service
+of calling telephone numbers, sending faxes, sending e-mails.
+What we are talking about in this pipeline is empowering all
+those companies to do their thing, to do it any way they want.
+But here is the official information, and they all will have it
+instantaneously.
+ Mr. Lucia. With respect to the 90 percent, 30 percent, the
+34 radio stations that are a part the PEP system, their signal
+coverage is about 95 percent of the country. The problem comes
+in when the volunteers develop a State EAS plan, they develop a
+monitoring structure whereby all the stations and cable systems
+in that State monitors in such a way to form like a pyramid so
+that the governor can put messages into that system. Similarly
+that State EAS entry point monitors a PEP station. So what you
+need to do is to ensure that each of those PEP stations is
+being monitored by each State EAS entry point, and then that
+message can then flow down to all the stations and cable
+systems in that State.
+ Mr. Thompson. So is that being done now?
+ Mr. Lucia. Well, some of the States have developed--can
+reliably monitor those 34 PEP stations. Some State EAS entry
+points cannot.
+ Now, Mr. Hoover said they were going to add more PEP
+stations and they were going to put in a satellite system. That
+would solve the problem of getting the EAS national message to
+each of the State EAS entry points. The problem still exists
+below in the State EAS plans there are a lot of communities
+that need their own EAS structure, D.C. being one, and we are
+working on a plan for D.C. right now. So cities like New York,
+Chicago, St. Louis, they need to have State and local plans,
+and not only include EAS. It has got to include all of these
+systems working together because no one system can reach
+everybody. So that is--
+ Mr. Thompson. So do we need to from a legislative
+standpoint, in your opinion, and I will throw it out, just
+mandate that operation in one agency, or--
+ Mr. Lucia. Well, it appears DHS is that agency. The only
+question is the development of the State and local warning
+plans, integrated plans. That is still a voluntary thing.
+ Mr. Thompson. Right.
+ Mr. Lucia. I don't--I mean, if--and when you do the plans
+voluntarily, I think you get a better cooperation from all of
+the industries. If you mandate it, I am not so sure it will be
+done, but I am not so sure that--I don't know if the effects
+would be as well taken by the State and local officials, if you
+know what I mean.
+ Mr. Thompson. Well, if you were trying to get a uniform
+systemSec.
+ Mr. Lucia. Correct.
+ Mr. Thompson. Mandating it wouldn't give you--
+ Mr. Lucia. Well, the national system is mandated. In other
+words, the code that the President uses on the EAS system will
+automatically take over all the EAS equipment that it sees,
+that it gets to. All the other codes. Tornado warnings,
+evacuations, all those codes presently in the FCC regulations
+are used on a voluntary basis. The officials request the
+broadcasters to put out a tornado, you know, the Weather
+Service requests the broadcaster to put out a tornado warning.
+The local emergency manager requests that the broadcaster put
+out an evacuation order. But these are done on a voluntary
+basis. And when you have a plan where the originator says,
+well, do you agree with me, Mr. Broadcaster, that we should put
+tornado warnings out and the broadcaster says, sure, I will do
+it. So when you have that plan structure and when you have that
+cooperation in advance, I think it works better that way. But
+the question is, how do we get it done across the country that
+way?
+ Mr. Ward. The only mandate that exists at the moment for
+Federal agencies is to deliver the President's message. Both
+the FCC and FEMA have that mandate. Nobody has the clear
+mandate to make sure the public is warned.
+ Mr. Thompson. Thank you.
+ Mr. Shadegg. The time of the gentleman has expired. The
+Chair would call on the gentleman from California, the chairman
+of the full committee, Mr. Cox.
+ Mr. Cox. Thank you. I wonder if any of our three witnesses
+would care to describe with some particularity how the Internet
+might be used as part of the digital warning system.
+ Mr. Ward. The AMBER Alert Web Portal that is now
+operational in Arizona and Washington State is using the
+Internet, and it is quickly confused. It is not just a Web
+site. The information shows up on many Web sites. But that is
+just the window into what is going on behind that. What happens
+is there is a form that the local policeman can fill out. When
+he hits return, it immediately goes out over the Internet to
+hundreds of locations, to news desks, to--it can--we have shown
+it could drive the EAS system. It can go anywhere you want to
+go.
+ Mr. Cox. Well, I want to ask the question a little
+differently, because I am obviously well aware of that. But
+what we have been talking about here is how, for example, in
+your own testimony, we can be driving along and our radio is
+turned on and gives us a message, or our radio, if we had it
+on, already is interrupted. Likewise that is the way our
+emergency television broadcast system is going to work. What is
+the Internet equivalent?
+ Mr. Ward. Well, what the Internet does is get the
+information to the people that can operate those systems. It is
+the pipeline from the warning originator to the people that
+operate those systems. So, for example, it is through Internet
+and other digital networks that would get it to the Association
+of Public Television Stations that would broadcast it
+nationwide. Or whatever--
+ Mr. Cox. Well, I understand how we can e-mail one another
+essentially. But what I am asking is whether there is a real
+time interruption capability that we could introduce for use on
+the Internet or whether that is not envisioned by any of our
+three witnesses.
+ Mr. Ward. No, you can send high speed messages immediately,
+either by Internet or by all kinds of public and private
+digital networks. That will immediately trigger these issues.
+Now, if the Internet is clogged that is one reason you can't--
+ Mr. Cox. Mr. Ward, do you understand my question though?
+ Mr. Ward. Yes, I believe so.
+ Mr. Cox. Let's say that you have your computer turned on.
+We will make this easier. It is already turned on and you are
+actually using the Internet. You are viewing a Web site. Is
+there any push technology that will pop something up on your
+screen that anyone envisions that will provide this kind of
+emergency warning in a comparable way to the example that you
+gave in your own testimony about the driver going down the
+highway whose radio is interrupted with this kind of a message?
+ Mr. Ward. Yes. Many of us now when we get e-mail a little
+pop up comes up on the screen and says you have new e-mail.
+That same capability could take over the screen and give you
+that warning.
+ Mr. Cox. Now I know that is theoretically possible. Is
+there anything in prospect that you know that anyone has
+developed?
+ Mr. Ward. Yes.
+ Mr. Cox. Who is that?
+ Mr. Ward. I can't give you the name of the companies, but
+many companies are working on that. Many networks are working
+on it. It is--you can send it to the screen and there are
+already over Internet systems that you can download that will
+put it up there.
+ Mr. Cox. How is that going to work external to the computer
+with nothing pre-installed?
+ Mr. Ward. The important part at the moment is that the
+Internet is used to communicate that out and you are going--it
+will eventually be built into the systems to be able to display
+it in any way you want. Maybe not even display it on screen, to
+give you sound. But what the Internet and all the digital
+networks give us is the capability to get the information
+there. When we have it there in standard ways, there are all
+kinds of companies that can give us ways to sound that, to turn
+it into words, to make it visible.
+ Mr. Cox. I think the question that Mr. Thompson put both to
+the first panel and to this panel is getting us close to the
+nub of the problem. We have the potential to reach almost
+everyone in the country if time were not of the essence,
+because so many people do have televisions. So many people do
+have radios, and so on. But at any given moment they may not be
+watching television. They may not be in the place where they
+can listen to the radio. We are a good example right here in
+this room. I mean we have got a screen up there. We have got
+all sorts of wiring and broadcast capability right in this room
+and none of it is turned on. So if we were to hear something
+about an emergency, a dirty bomb has gone off in the Capital,
+evacuate, it would have to be external to us, somebody would
+have to come in the door and tell us or we would have to hear
+the thundering herds rumbling down the hallway because they
+have gotten their notification in some other way.
+ So the task is to take advantage, and I think much of your
+testimony has touched on this, is to take the technologies that
+is already deployed because we are all using so much of it so
+often. You know, I have a cell phone in my pocket. Some of us
+have pagers, some of us have Blackberries. There are all sorts
+of other equipment, and get that message out to as many people
+as possible right away, not through intermediation. If all we
+are using the Internet for is to send an e-mail to somebody who
+might broadcast it through some separate service that we are
+not watching anyway, we haven't come close to solving this
+problem, it seems to me.
+ Mr. Ward. There is already a system being demonstrated this
+summer in several months across the country. It is operated by
+the U.N. in Iraq and other areas that can broadcast a signal to
+all cell phones, every cell phone, without knowing who the
+people are, within a cell, within a specific geographic region.
+Those are the kind of technologies that are readily available
+to be implemented once we have the standard source of data
+coming over the networks.
+ Mr. Cox. Now I am a little bit troubled by something you
+said earlier, which is that we are going to overload the system
+with SMS messages, and SMS are tiny bandwidth. But if that is
+going to overload the system--you also said if you call
+everyone on their cell phones that is going to overload the
+system. Why is it then that you say this is readily available?
+ Mr. Ward. If you need to address an individual telephone,
+it takes several seconds to do that through the network. If you
+broadcast to all cell phones in the area without addressing a
+telephone, you can get to all of them instantaneously.
+ Mr. Cox. It is going to overload the system. My time has
+expired, Mr. Chairman. Thank you.
+ Mr. Shadegg. I cut off Ms. McGinnis, and in all fairness
+even though you are the full committee Chair I think I have to
+proceed. The Chair would call upon the gentlelady from the
+District of Columbia for her questioning.
+ Ms. Norton. Thank you very much, Mr. Chairman. I had
+indicated my own concern about this region. That really went to
+implementation. I suspect that we probably have as good an
+early alert system as you are going to find. I know you have a
+lot of technology in this region, as you might expect. I am
+interested that--I guess it was Mr. Ward said that the
+technology is not the problem. There should be, you say, a
+single Federal agency responsible for assuring that these
+communication procedures exist throughout the country. I mean,
+I would hope that that is what the Homeland Security Department
+is there for. The notion that you have to recommend it at this
+point is itself troubling. In this city we now have with the
+region interoperability, we can talk all through the region. We
+can talk deep into burning buildings and the rest of it. On
+tomorrow the District of Columbia is going to demonstrate a
+broadband digital wireless network, the first in the country,
+that will really allow you to see, for example, inside a tunnel
+if something is happening. They are leading a Spectrum
+Coalition For Public Safety and are going to demonstrate this
+tomorrow here in the Capitol.
+ So you know, you would think, technology seems to be
+gathering steam. But let me show you where I think the
+technology falls real short.
+ When the Orange alert came to the District of Columbia, the
+Capitol Police and the security officials reverted to 19th
+century technology, you know, closing up streets, closing up a
+street, checkpoints. My grandfather entered the D.C. Fire
+Department in 1902. That is exactly what he would have done. So
+I wasn't very impressed with what they were doing to prevent a
+disaster. And I think this notion of communication and early
+warning goes far more to the notion that you want to prevent a
+disaster from getting anywhere close to targeted areas than it
+does to hey, you know, the British are coming, so everybody get
+under your desks.
+ I asked the security officials here, the Sergeant at Arms,
+both sides, the Capitol Police, whether there wasn't some
+technology that could keep us from, you know, peering into--you
+know, having checkpoints that lined cars up, peering into the
+back of cars because I understand what they were after, and
+they said no. I said I just don't believe that. The one, quote,
+technology they used or tested after the Orange alert was very
+low technology indeed. But it is rather interesting and common
+sense that as--the way in which this would work is if there
+were a large vehicle, like a truck coming toward the targeted
+area, the Capitol, they could turn on lights red, they say, and
+they tested this, and stop this truck or get to this truck. And
+that is not exactly 21st century technology, but that is the
+only thing they have shown us. I am very interested in whether
+or not there is early warning technology that gets us
+somewhat--that does not require that warnings and action be
+taken as the event is about to occur.
+ Ms. Norton. So that we send the signal to everybody, baton
+down your hatches.
+ I am interested in what you can tell me about technology or
+methodology for, for example, an orange alert, or a situation
+where you really want to communicate to people that--or use
+technology to keep an area safe and communicate to people that
+they should perhaps should not come into an area or should use
+another area. I am not impressed, if this is a test of what we
+do when we are trying to prevent an event, if what is happening
+around the Capitol is a test. All I can say is I think we have
+failed the test. And I would look to technology, I would look
+to whether or not, for example, in place of a checkpoint, there
+is some technology you could use that would allow cars to come
+up, at least the average car if not the large cars, to come up.
+I would look to some technology that could keep you from
+closing streets.
+ And I wonder if in the work of any of you, you have seen
+either technologies or methodologies that would in fact
+safeguard such areas well in advance of the event through the
+use of technology or other approaches.
+ Mr. Ward. The technology we need is for an emergency
+manager or other authority, when they have the information,
+whenever they get it, whether it is long before or just as it
+is happening or whatever, to be able to get that to the people
+who need to know it. That is the warning system we are talking
+about.
+ And, again, we have that technology, but it is in many
+scattered forms; it is not integrated into a system. And what
+we are talking about is the need to have that system to
+integrate it so that the emergency manager doesn't have to
+worry about how the technology works, just knows that if they
+put the information here they can designate exactly where that
+information will go.
+ Ms. Norton. Does anyone else have any--for example, what we
+have around the Capitol also, we have these pop-up, what do you
+call it, barriers. That is good. But that means something is
+coming right at you right now, I suppose; or it means that
+maybe just trying to stop something in case something comes at
+you. And, of course, we have the barriers that are around here.
+ But, again, you would think at this point there would be
+some way to more quickly scan the kinds of vehicles you are
+concerned about, the kinds of people you are concerned about.
+And yet I really don't see any evidence of that anywhere. And
+we are really stopping up the society. This is a commercial
+society. Things need to go happen. Even if they don't have to
+happen in the Capitol, they need to happen in the rest of the
+world. I do not see much evidence of that in the use of
+technology in particular.
+ Mr. Shadegg. Does anybody wish to respond?
+ Mr. Lucia. Well, the only thing I think I can offer is the
+first responders have to have the capability to communicate
+messages to the systems that will then notify the public. If
+they need special systems to do that, like around, you know,
+the nuclear plants or wherever, then that needs to be done;
+because without it, they are not going to be able to get their
+messages to the people at risk.
+ Mr. Shadegg. Ms. McGinnis, did you want to comment?
+ Ms. McGinnis. I think this is a subject for probably
+another hearing, because it is a different sort of technology
+that you are talking about in terms of scanning, you know,
+devices that we are seeing now in airports and having to do
+with baggage and cargo and that sort of thing.
+ But I guess the one thing I would offer in terms of
+prevention is we recommended that there be a way, a simple way
+for the public to report suspicious behavior into a system like
+a 311 or a 911 system that would be received locally, but in
+which the information would be shared, as appropriate, so that
+it could be turned into an alert, if that were necessary, or
+used by intelligence officials or others.
+ So it is not just getting information out to people in a
+timely way, but it is also having a simple, well-organized
+system to receive information and use it appropriately.
+ Mr. Shadegg. Mr. Ward, I want to clarify one point. In the
+discussion with Mr. Cox, I think you had said that if you have
+to dial every phone number, that that could overburden the
+phone system and bring it down--as actually happened here in
+the Capitol Hill area on 9/11 when our cell phones became
+useless. And I understand the same would be true if you had to
+dial a phone number for every single cell phone number.
+ What I understood your testimony, however, to be was that
+there are systems in place--you mentioned in Iraq--where, by
+not dialing each individual number but, rather, sending a radio
+signal, you could in fact send a signal to all cell phones at
+least without clogging the system. Is that correct?
+ Mr. Ward. Yes. It is actually a transmission from the cell
+tower which dominates an area of a few miles. And any cell
+phone within that, that is communicating with that tower, will
+get that message immediately. That is one example. There are
+many technologies to do that.
+ Mr. Shadegg. I want to conclude with one kind of question
+and ask each of you to comment on it. To a certain degree, I at
+least--and I think this may be true of other members of the
+panel--feel some degree of frustration. All of us feel the
+system is not adequate. All of us would like to see it be
+better. We have heard encouraging testimony about the
+technology that can make it better.
+ But if I understand the overall thrust of the testimony, it
+is that while there is a Federal alert system, its
+implementation requires voluntary work by local entities. And
+in the sense that we don't have one right now that we can use
+in the event of a next terrorist attack, it appears that at
+least passing a bill at the Federal level won't solve the
+problem. So that is somewhat frustrating for us because we are
+here to solve problems. And we want to have a single mechanism
+that will allow all Americans to be notified, whether it
+requires a national notice or whether it requires a regional
+notice, because there is a terrorist attack or a dirty bomb on
+Capitol Hill or in north Phoenix where I live.
+ I guess my--given that circumstance--and let me give you
+each an opportunity to say, if you can encourage this
+subcommittee and the full committee to do one thing, would you
+make a recommendation; and, if so, what would that be? For each
+of you.
+ Mr. Ward. I should say on the National Strategy for Public
+Warning, there is on page 29 a clear recommendation of what the
+President and Congress should do and what Homeland Security
+should do. Without going into all that, the biggest issue we
+face is this frustration that you mentioned of getting people
+to work together.
+ To me, having worked in this area for a long time and
+talked to a lot of people that are frustrated that way, what we
+are seeing in the Amber Web alert portal is a breath of fresh
+air. It is a way of getting people to work together. And I am
+really hopeful that we are going to find a way to move that
+into all hazards, because it is a model that gets past this
+frustration and gets the job done.
+ Mr. Shadegg. Mr. Lucia.
+ Mr. Lucia. Yes. Some States and local areas have developed
+excellent local emergency plans. They are model plans. The
+question is, how do we get the other States and localities to
+model their plans after that, because each State and local area
+is so unique, they have different assets? That is a question. I
+mean, we could mandate it and say you are going to do it this
+way?
+ Mr. Shadegg. Maybe financial incentives.
+ Mr. Lucia. Possibly. And also providing, let us say, if a
+particular emergency manager doesn't have a radio system to get
+into these systems, how do we get money to him so that he can
+do that? Just these little things here and there, I think, can
+add a lot of impetus to all the areas to develop plans.
+ Ms. McGinnis. I mentioned that the National Strategy for
+Homeland Security is out of date. I think we need an up-to-date
+national strategy with a clear goal around being able to reach
+everyone in an emergency situation. And the measures, I think,
+are pretty obvious. We could--you know, the performance
+measures could be specified, roles and responsibilities for
+State and local government; and you would see with that kind of
+strategic approach funding that goes out to State and local
+government focused on meeting those goals, achieving those
+measures, and actually, you know, by a date certain, if time
+frames are established, having a system that can reach
+everyone.
+ Mr. Shadegg. That is certainly the goal and that is what we
+need to do. Thank you very much for the testimony. The hearing
+record will be remain open for 10 days. There may be additional
+questions submitted by members who weren't able to attend. They
+will be submitted to you, and we would appreciate your
+cooperation in responding to those. Again, thank you very much
+for your testimony. The subcommittee stands adjourned.
+ [Whereupon, at 12:20 p.m., the subcommittee was adjourned.]
+
+ FOR THE RECORD
+
+ Questions for the Record
+
+ From the Honorable Bennie G. Thompson
+
+ For Reynold Hoover
+
+ September 22, 2004
+
+ In the Administration's fiscal year 2005 budget, you requested an
+additional $2 million for Emergency Alert System (EAS) upgrades.
+Specifically, you indicated that these funds would be used to enhance
+communications linkages between the 34 Primary Entry Points and the
+FEMA Operations Center.
+
+ Question 1(a): What is the total proposed FEMA budget for EAS for
+fiscal year 2005, and what specific activities does this budget
+support?
+ Answer: The total FEMA budget specifically designated for Emergency
+Alert System (EAS) upgrades in fiscal year 2005 is $2.15 million. This
+budget provides for satellite connectivity upgrades for the Primary
+Entry Point (PEP) stations and for expanding the PEP network to all 50
+states and four U.S. territories. In addition FEMA, in coordination
+with the Department of Homeland Security's (DHS) Information Analysis
+and Infrastructure Protection Directorate (IAIP) will spend an
+additional $18 million on other public alert and warning initiatives,
+to include pilot programs and a compendium of studies to develop an
+Integrated Public Alert and Warning System (IPAWS) architecture. This
+architecture will serve as a consolidated DHS roadmap for the future of
+EAS and for public alert and warning and mass notification.
+
+ Question 1(b): How many full-time FEMA employees work solely on the
+EAS?
+ Answer: FEMA's Office of National Security Coordination (ONSC),
+provides Program Management for the EAS as well as for other public
+alert and warning initiatives. This effort is directly linked and
+coordinated with IAIP. While there are no full-time employees working
+solely on the EAS, there are eight employees within ONSC who provide
+support to the EAS. In addition, an integrated project team within FEMA
+that includes our Information Technology Services Division and the
+Response and Preparedness Divisions provide support to ONSC and the
+EAS. Further, employees assigned to the FEMA Operations Center and
+Alternate Operations Center are directly involved with EAS testing,
+activation, and operation.
+
+ Question 1(c): Does FEMA provide any guidance to state and local
+governments regarding EAS messages, or do your activities focus only on
+``Presidential Alerts?''
+ Answer: As an ``all hazards'' agency, FEMA is not solely focused on
+``Presidential Alerts'' and, while we serve as the Executive Agent for
+the operation of the national-level EAS, we do provide guidance to
+State and local emergency managers regarding a variety of alert and
+warning systems, including outdoor warning systems.
+
+ Question 2: Why wasn't a Presidential Alert issued through the EAS
+on September 11, 2001? This would seem to be exactly the type of
+incident where use of the EAS would be necessary and appropriate.
+ Answer: The national level EAS assumes that the President will have
+access to national media outlets during a crisis and that the System
+would only be used as a Presidential contingency communications means
+when other outlets are unavailable. On September 11, 2001, the national
+level EAS was operational, but was not activated, because national news
+outlets already were providing the latest information and the President
+was able to use those media sources to communicate with the nation.
+
+ In 2000, the White House issued a report entitled ``Effective
+Disaster Warnings.'' The report recommended that a working group of
+Federal agencies should develop a single, consistent, easily understood
+terminology that can be used as a standard across all hazards and
+situations.
+
+ Question 3(a): Was this working group ever assembled, and has any
+standard warning terminology been developed? If not, why not?
+ Answer: While this group was never established, DHS, including
+FEMA, IAIP and the National Communications System, the Federal
+Communications Commission (FCC), the National Oceanic and Atmospheric
+Administration (NOAA) and other Federal agencies have participated in
+the activities of the Partnership for Public Warning (PPW), which
+examined issues related to standard warning terminology. Many of the
+recommendations on alert, warning and EAS improvements offered by PPW
+and the FCC's Media Security and Reliability Council are under
+consideration by DHS. We believe the recent launch of DHS's IPAWS;
+combined with the FCC's Notice of Proposed Rulemaking on EAS, will help
+address common alerting protocol recommendations.
+
+ Questions 3(b): Since September 11, has there been any effort to
+develop specific messages that would inform the population of what
+actions they should take in the event of a chemical, biological,
+radiological, or nuclear attack?
+ Answer: Yes. DHS has provided several sources for such information
+to include, the www.Ready.Gov website and ``Are You Ready? An In-depth
+Guide to Citizen Preparedness.'' These information resources, and
+others that the Department has developed in consultation with the
+private sector, provide the public with guidance on what to do before,
+during, and after such attacks. Furthermore, the National Response Plan
+(NRP) Incident Communications Emergency Policy and Procedures (ICEPP)
+is the primary incident communications plan for use by the Federal
+interagency community. It is used in conjunction with State and local
+authorities to manage incident communications and Public Affairs
+activities during domestic incidents. The NRP-ICEPP incorporates
+specific incident communications guidance on operations in support of
+weapons of mass destruction (WMD) or catastrophic incident scenarios.
+This appendix will be used in conjunction with the NRP-ICEPP during
+such incidents. It provides detailed information on Departmental and
+Agency incident communications resources to support response
+contingency plans.
+
+ The White House report also recommended that warnings should be
+delivered through as many communication channels as practicable so that
+those users who are at risk can get the message whether inside or
+outside, at home, work, or school, while shopping or in transportation
+systems.
+
+ Question 4: Has there been any effort to implement a national
+warning system that could reach the public through multiple
+communications systems, other than the EAS system?
+ Answer: Yes. DHS has several efforts underway to implement a
+national warning system that could reach the public through multiple
+communications systems, other than the legacy EAS. In coordination with
+the FCC, NOAA, television and radio broadcasters, wireless service
+providers and others, we are exploring the use of digital and other
+cutting edge technologies that will enable the government to provide
+``all hazards'' alerts, warnings, and Presidential messaging to the
+greatest number of people all of the time. This includes persons with
+disabilities and individuals for whom English is a second language. We
+are confident that the IPAWS under development and undergoing pilot
+testing in the National Capital Region will provide the backbone for a
+national warning system that can reach the public through multiple
+communications systems.
+ In addition, FEMA's Preparedness Division has several studies
+underway to facilitate the design, development, implementation and
+maintenance of a national warning system. These include the following:
+``Outdoor Public Alerting System Guide'' dated December 2004; ``Public
+Warning System Redevelopment Project'' in draft form; and ``Warning
+America'' dated February 2004. These studies are being or will be
+coordinated fully with the Office of National Security Coordination.
+ DHS and the Departments of Commerce and Education are conducting a
+pilot program to distribute NOAA All Hazards Radios to public schools
+in rural states and in top threat cities around the country. This pilot
+will significantly improve our ability to provide alert and warning
+messages to the nation.
+ Finally, the National Science and Technology Council, author of
+``Effective Disaster Warnings'' will be revisiting the original report
+this year and will take into account changes since the 2000 issuance.
+
+ We can likely all agree that in times of national crisis, reliable
+and timely information is crucial. Most Americans presently get their
+emergency information from the antiquated Emergency Broadcast System.
+But in the event of a local or regional power failure, these
+information sources are mostly unavailable. We should have the
+capability to use a quick, accurate and versatile official
+communications alternative that can focus in on specific neighborhoods
+or cities, or be expanded if necessary to whole regions or the entire
+country. Because of this need, Representative Meek, a member of the
+Homeland Security Committee, introduce HR 2250, referred to as the
+READICALL bill. The bill requires the Secretary of Homeland Security to
+use existing resources--just like the present emergency broadcast
+system using existing resources--to create a fast, efficient and
+reliable emergency communications system based on the nation's public
+telephone system, including cellular phones, on a 24 hour/365 days-a-
+year basis. The system could only be activated by the Secretary of
+Homeland Security, and only to keep the public informed of imminent or
+current hazardous events or on measures that should be taken to
+alleviate or minimize danger. The aim of the legislation is to keep our
+citizens informed in the terrible event that there is a national,
+regional, or local terrorist emergency and present sources of
+communication are not simply available. Minutes can make a huge
+difference in an attack or disaster; accurate information pin-pointed
+to the affected area can make all the difference.
+
+ Question 5: Has anyone at FEMA or DHS researched or considered such
+an emergency warning system? What are your initial thoughts on such a
+system?
+ Answer: As a point of clarification, the current EAS replaced the
+Emergency Broadcast System in 1997, and operates at the national level
+from the FEMA Operations Center to 34 PEP stations across the country.
+FEMA does agree that in times of national crisis, reliable and timely
+information is crucial. Moreover, we take our responsibility to provide
+critical, and life saving, information to our homeland security
+partners and the public very seriously. In that regard, DHS has several
+initiatives underway within the IPAWS program to examine how to best
+use the nation's telecommunications systems to perform public alert and
+warning missions. For example, we are working with wireless service
+providers as part of the Digital Alert and Warning System pilot project
+in the National Capital Region; and, we are working with NOAA to
+demonstrate geo--targeted reverse--911 technology that will allow us to
+call specific households or businesses in an impacted or threat area to
+provide emergency information.
+
+ Responses from Patricia McGinnis, President and CEO, The Council for
+ Excellence in Government
+
+ To the Questions Submitted
+
+ By the Subcommittee on Emergency Preparedness
+
+ Select Committee on Homeland Security
+
+ United States House of Representatives
+
+ October 29, 2004
+
+ Questions from the Honorable Jim Turner, Ranking Minority Member
+
+ Question: You said in your statement that one of the biggest
+findings of your report was a communications gap between government and
+citizens, both in terms of planning that is going on and what
+specifically the public should do in times of emergencies related to
+terrorism. Despite 3 years of efforts by all levels of government to
+tackle homeland security, why do you think this gap exists?
+ Response: Our May 2004 Hart/Teeter poll revealed that most
+Americans felt safer then than they did two years ago. This is
+partially the result of three years of visible efforts by all levels of
+government to improve the homeland security posture of the country.
+ However, despite all the planning being done at the federal, state
+and local government in coordination with first responders, our town
+hall meetings in seven major cities and our national public opinion
+poll confirmed that most citizens are not familiar with local emergency
+plans or those in their workplaces or children's schools. As a father
+in our San Diego town hall said, ``We were told by my son's school that
+we should come up with a family evacuation plan. . .but it's hard to
+come up with a plan when you don't know what the school plans to do in
+the event of an emergency.''
+ Information about homeland security is available on many websites
+but it can be remarkably difficult to find the emergency plans of most
+local governments. To encourage dissemination and awareness, we have
+recommended that information be marketed through many channels of
+communication, including the media, schools, and workplaces.
+ Our Hart/Teeter poll also found first responders are aware of a
+communications gap with citizens. A solid majority (60%) rated the
+communication between their agency and citizens as only somewhat
+effective and efficient. Fully 86% of first responders, however, say
+there is a role for average citizens in homeland security. Marketing
+information to the public is not a primary skill set of first
+responders and government officials. The challenges we face require
+unusual communication strategies and many trusted messengers.
+ Another reason for the communications gap is the low participation
+in emergency preparedness drills. Nearly three in five Americans say
+that neither they nor anyone in their family participated in an
+emergency drill in the past year. Among those who have participated in
+a drill, school are the most common location, workplace drill
+participation is nearly as common at 18%. Just 3% of Americans have
+participated in a drill with their family, and just 4% have
+participated in a community drill.
+ The communication gap between governments and citizens shows the
+real need for a concerted outreach strategy that not only informs the
+public but actively seeks their participation in preparing for homeland
+security.
+
+ Questions from the Hon. Bennie Thompson, Subcommittee Ranking Member
+ for Patricia McGinnis Responses
+
+ Question: Your recent survey and follow-up report found that more
+than half (53%) of Americans say that they would turn on their
+television to find information about preparing for a terrorist attack,
+learn about the latest threats, and receive guidance on security
+precautions. Given this information, would you recommend that any
+changes to the warning system be focused on delivering messages via
+television?
+ Public warning systems should recognize that citizens will
+naturally rely on television to receive information in almost any
+emergency or hazardous situation. Indeed, over half of the respondents
+in our survey said they would rely on television for information about
+what to do if there were a terrorist attack near them. One in five or
+21 percent said they would rely on radio, followed by cell phones at 9
+percent and landline phones at 8 percent.
+ But, what if they power is out, or for other reasons, access to
+television is not possible. In addition to battery operated radios, new
+communications systems are being deployed that can broaden the reach of
+current warning systems. For instance, we learned that the Texas
+Education Agency now has the ability to simultaneously communicate with
+multiple people within the school district on various self-selected
+communication devices. In addition, the system is capable of initiating
+a voice-only alert via the public telephone network and interfacing or
+connecting to other communication devices. Relying exclusively on
+television for warnings may not be as timely as that provided by
+instantaneous and on-the-spot information services delivered to mobile
+phones, pagers, and other wireless communication devices.
+ We should move in the direction of having televisions, radios and
+other communications devises equipped to receive digital signals of
+emergency warnings.
+
+ Question: Based on the town meetings that you held around the
+Nation, what preparedness information does the public want, and how
+does the public go about gathering preparedness information?
+ We asked this specific Question as a part of our national public
+opinion poll released in May 2004. The public wants easy to use
+preparedness and incident response information on key threats: Bio-
+terrorism, chemical attacks, and attacks on power plants, water
+facilities and other critical infrastructure. In our poll, nearly half
+of Americans put bioterrorism at the top of their list, chemical
+weapons were second at 37 percent and a nuclear attack was third with
+23 percent.
+ When asked to rank which potential targets remain a concern for
+them 49 percent of Americans responded that an attack on a power plant
+is their top concern followed by 46 percent of respondents worried
+about an attack on airports or airplanes, and 44 percent listed water
+facilities as a target of concern.
+ Our research showed that the public gathers preparedness
+information from a variety of sources. Television was the number one
+choice of citizens (53 percent) when asked where they would look first
+if they wanted to find information on preparing for a terrorist attack,
+learn about the latest threats, and get guidance on security
+precautions. Three in ten (31%) of Americans when asked the same
+Question said they would turn toward the internet. Young adults were
+particularly likely to choose the Internet over television. Eight
+percent of the public said they would choose the radio first and just 3
+percent said they would open a newspaper first.
+ Following our recommendation, the Department of Homeland Security
+made a step in the right direction by designating September as
+``Emergency Preparedness Month''.
+ In our report, we made several recommendations on how communities
+and organizations can be more proactive and creative in getting
+preparedness information to the public. For example,
+ Schools could engage parents and students in their
+ emergency plans during ``back-to-school'' activities and PTA
+ meetings. Private employers should have up-to-date and
+ comprehensive workplace plans, kits and activities, which
+ should include: emergency information posted on employee
+ bulletin boards, periodic all-staff meetings to share
+ information, and an in-house alerting strategy to quickly
+ inform employees with evacuation procedures or other actions to
+ perform in an emergency.
+ Local governments should produce an index card of
+ critical information in a user-friendly format that can be
+ distributed in multiple languages, through many channels to
+ homes, workplaces, and schools.
+ State and local governments should include reporters
+ in homeland security training exercises as active participants.
+ Local officials should offer citizens a service that
+ will send homeland security information or alerts to cell
+ phones, email addresses, pagers and other personal
+ communication devices. This system should have the capacity to
+ ensure continuity of operations and the accurate and timely
+ flow of information in an emergency.
+ Members of Congress should include an emergency
+ preparedness ``at-a-glance'' card in their September
+ constituent newsletter.
+ Managers of privately owned critical infrastructure
+ facilities should communicate to citizens through ongoing
+ corporate affairs, advertising and marketing campaigns about
+ specific steps they have taken to secure their facilities.
+ Broadcast media organizations should partner with
+ business and local government to run public service
+ announcements about homeland security and emergency
+ preparedness.
+
+ Question: What information should the public receive in a warning
+message? How tailored or specific should warning messages be in order
+to be effective? Do the current warning systems provide enough
+information for the public to take appropriate action in response to a
+disaster, emergency, or act of terrorism?
+ The public should receive warnings that are specific to their
+location, describe the threat with clear instructions about who should
+do what, when, where and how.
+ Clearly, most current warning systems do not deliver detailed or
+geographical specific information to the public, and not everyone has
+access to our national emergency alert system. As we know from our
+polling, the American public is worried about many different but
+specific types of emergencies, bio-terrorism, chemical attacks, nuclear
+attacks as well as attacks on critical infrastructure, and often these
+are not covered by current warning messages.
+ Different types of emergencies require different actions by
+citizens, but our older warning systems were not built with this in
+mind. Would the average citizen know when it is better to shelter-in-
+place instead of moving locations? Would they be comfortable enough
+with detailed emergency plans distributed by their children's schools
+to know that the school was keeping their children safe too? The
+integration and coordination of threat specific emergency warning plans
+is essential.
+ U.S. House of Representatives
+ Select Committee on Homeland
+ Washington, DC, October 27, 2004
+Dear Chairman Cox,
+ This document is submitted in response to your letter of
+October 13, 2004 containing several additional questions
+concerning the oversight hearing entitled ``Emergency Warning
+Systems: Ways to Notify the Public in the New Era of Homeland
+Security,'' on Wednesday, September 22, 2004.
+ Attached are my answers to the questions supplied by the
+Honorable Bennie Thompson, Subcommittee Ranking Member.
+ Thank you for the opportunity to appear before the
+Subcommittee on Emergency Preparedness and Response. Thank you
+especially for your strong continued interest in improving our
+public warning capability in America.
+ Sincerely,
+
+ Dr. Peter L. Ward
+
+ Question: 1. In February of this year, the Partnership for Public
+Warning assessed the EAS, and made a number of recommendations for
+improvement. In particular, you recommended that DHS take the lead in
+creating an effective national public warning capability. What
+organization in DHS should take the lead on updating or replacing the
+EAS? Should it remain a "national security" based system, or should it
+be changed to better address the all- hazards nature of most warnings?
+ The national need is to upgrade public warning systems of which the
+EAS is a part.
+ Approximately 75% of the public warnings typically issued each year
+come from the National Weather Service and are for severe weather or
+flooding. Approximately 15 to 20% relate to accidents or ongoing
+hazards issued by first responders or emergency managers. The balance
+includes missing children (AMBER Alerts) and many other hazards such as
+volcanoes, earthquakes and such. Specific National Security Warnings
+are likely to be less than 1% of the warnings issued based on current
+experience.
+ Coordinating an effective National Warning System involves working
+with most groups in DHS including:
+ Emergency Preparedness & Response (FEMA has the
+ deepest roots in the communities and with the emergency
+ managers and fire services)
+ Information Analysis & Infrastructure Protection
+ Border & Transportation Security
+ Science & Technology
+ Coast Guard
+ Citizenship & Immigration Services
+ Homeland Security Advisory Council
+ National Infrastructure Advisory Council
+ It also involves close interaction with many other agencies
+involved in warnings or regulating warning services including:
+ Federal Communication Commission
+ Department of Commerce/NOAA/National Weather Service
+ Department of Interior/US Geological Survey
+ Department of Agriculture/Forest Service
+ Department of Justice
+ Department of Transportation
+ Department of Health and Human Services/CDC and others
+ Nuclear Regulatory Commission
+ Thus the overall responsibility for warning within DHS should rest
+with a person or small office within the Office of the Secretary for
+Homeland Security.
+ You also need to ask the question: What is the appropriate role of
+the Federal government in national public warning?
+ (1) The primary responsibility for public warning lies with county,
+city and tribal government and nearly all public warnings issued are
+focused on very specific localities. Thus the primary role of the
+Federal government is to support State and local government with
+technical information from organizations such as the National Weather
+Service and with intelligence information from law enforcement and
+intelligence agencies. The Federal government may issue warnings, but
+it is on behalf of local government where time is of the essence.
+ (2) The other primary role of the Federal government in public
+warning is to assure that nationally standardized public warning
+systems are available nationwide, that they are effective, and that
+they are properly utilized.
+ These issues are addressed more fully in A National Strategy for
+Integrated Public Warning Policy and Capability published by the
+Partnership for Public Warning on May 16, 2003 (ppw.us/ppw/docs/
+nationalstrategyfinal.pdf).
+ It is also important to realize that most infrastructure for
+warning the public is and will be privately owned and operated. Thus
+the Federal government needs to work closely not only with local
+government but also with industry. Development of an effective public
+warning system requires a public/private partnership. A top down
+approach from Washington has not worked effectively in the past. The
+Federal government needs to provide leadership by bringing the key
+stakeholders together. Thus within DHS, it seems very appropriate to
+establish a National Public Warning Advisory Committee.
+ As I explained in my testimony, a public/private partnership among
+law enforcement, emergency managers, first responders, the nations
+broadcasters and industry has already implemented the AMBER Alert Web
+Portal warning system in two States and it will soon to be implemented
+in 12 more States. The National Association of State Chief Information
+Officers (NASCIO) has proposed to DHS to extend this approach to all-
+hazard warning through a pilot project in the National Capitol Region
+and Washington State over the next 6 months. I believe that such a
+partnership working closely with DHS and other Federal agencies has the
+best chance for significantly improving public warning capability
+within the near future. As you know, Congressman Shadegg has introduced
+an amendment included in the House version of the 9/11 bill supporting
+this approach.
+ What roles should the FCC and the National Weather
+ Service play if DHS is the lead agency for the EAS and other
+ warning systems?
+ The FCC carries the big stick with respect to the communication
+industries and infrastructure. They need to be involved in encouraging
+and potentially regulating all types of warning capabilities, not just
+EAS.
+ The National Weather Service issues most warnings and has an
+excellent operational capability throughout the United States. They
+need to play a major role and perhaps should assign an employee to work
+with the warning coordinator or Office within DHS.
+ Do you believe legislation is required to clarify
+ responsibility and accountability for warnings? What would such
+ legislation do?
+ The primary reason for the poor warning systems existing today in
+America is that no one agency has been assigned legislated
+responsibility or has assumed it. While the FCC, FEMA, and NOAA/NWS
+signed a Memorandum of Understanding in 1981 for operation of EBS (now
+EAS), all three agencies have reduced their involvement and funding
+over the years citing their legislative mandates and priorities. Thus
+legislation is required to assign and clarify responsibilities. The
+content of the legislation needs to be discussed in detail but should
+include:
+ A statement that an integrated public warning
+ capability is a national priority
+ Assign lead responsibility to the Secretary DHS for
+ ensuring that national public warning systems and procedures
+ exist, are effective, and are properly utilized to distribute
+ warnings and information for all types of hazards from all
+ official warning providers, to all potential warning
+ disseminators, and ultimately to all people directly at risk.
+ A statement that development of an effective public
+ warning system in America depends on a public/private
+ partnership between Federal, State, and local government and
+ industry.
+ Possibly establish a small office within the
+ Secretary's office or leave this for the Secretary to decide
+ Possibly establish a national advisory committee that
+ would involve the many stakeholders in warning systems
+ Discuss the need to coordinate with other Federal
+ agencies and what their roles might be
+ Describe what the relationship of the Federal warning
+ program should be in assisting the States, counties, and cities
+ who have the primary responsibility for public warning
+ Perhaps specify some characteristics of the national
+ warning capability
+ Provide appropriate funding for integrating public
+ warning policy and capability
+ The pilot project proposed by NASCIO will provide an excellent test
+bed for refining such legislation.
+
+ Question: 2. The February report also recommended that the
+Administration provide the necessary funding and resources to support
+and operate the EAS system.
+ What is the appropriate level of funding to adequately
+ maintain the current EAS system, and how much funding would be
+ required to significantly upgrade the system to reach multiple
+ communications modes and to be regularly utilized for purposes
+ other than ``Presidential alerts?''
+ Proper maintenance and operation of EAS requires restoring the
+roles that FCC and FEMA played in training locals and working with them
+to develop warning plans. A minimal effort might involve approximately
+$1 million per year and several times that could be spent wisely.
+ To upgrade public warning capability significantly within the
+United States, the first step is to establish a digital national
+warning infrastructure as outlined in my testimony. Those involved have
+proposed to DHS (FEMA, Science and Technology, and the DHS CIO) through
+the National Association of State Chief Information Officers (NASCIO)
+to carry out a pilot project in the National Capitol Region and
+Washington State within 6 months to demonstrate how such an
+infrastructure would work and to evaluate issues that would need to be
+resolved to expand nationally. That proposal requests $1.65 million.
+Expansion to a national capability can probably be done for
+approximately $10 million. Once this national warning infrastructure
+exists, warning capability will be significantly improved. The next
+step is to evaluate ways to improve specific technologies for
+delivering warnings directly to the people at risk. The issue becomes
+how much the government should fund versus what can be done through a
+public/private partnership and in the competitive marketplace. With
+clear national standards and a place for industry to receive official
+warnings for delivery, warning capability could be built into a wide
+variety of electronics as a way to sell new products. The government
+could spend some millions of dollars to stimulate these activities or
+some hundreds of millions to pay for them all.
+
+ Question: 3. Based on your work, are there any particular
+technologies that would be best suited to improving the nation's
+warning systems? Rep. Meek, a member of the Full Committee, has
+introduced legislation that would implement a landline-based
+interactive notification system that would convey national, regional,
+and local emergency messages via the public switched telephone network
+to wire-line telephone subscribers located in the specific geographic
+areas affected by emergencies. Would this type of system be more
+effective than the current EAS?
+ An effective public warning system needs to utilize all available
+technologies:
+ The EAS reaches only people listening to the radio or
+ watching television broadcast from ground based transmitters.
+ Few people listen or watch many hours per day. More than 20%
+ receive television via satellite and satellite radio is
+ increasing in popularity. For EAS to work via satellite there
+ needs to be intelligence built into the receiver to relay only
+ warnings that apply to that specific location. Receivers could
+ be built that turn themselves on upon receipt of a warning.
+ Most homes and offices have wire-line telephones and
+ warning by telephone would reach a large number of people
+ during the evening and night at home and during the day at
+ work. But it would not reach people who are out and about. Many
+ modern telephone handsets do not work during a power failure.
+ Equipment similar to Caller ID devices could receive, display,
+ and sound an alarm for a warning without answering the phone.
+ These could be built into future telephones.
+ 170 million Americans now have cellular telephone
+ service that may be the best way to reach them during the day.
+ Many have their handsets switched off at night. Cellular
+ telephones receive their signals from local transmitters so
+ broadcasting an alert to all cell phones within receiving
+ distance of a local transmitter is one of the most promising
+ technologies available currently for warning just the people at
+ risk. While this technology exists for most types of cell
+ phones, industry has not been supportive of implementation.
+ Internet is revolutionizing the way we share
+ information and programs are available to not only issue email
+ to a specific region but to push a warning directly onto your
+ screen and sound an alarm. This technology is most effective
+ for the 50% of Internet users in the US who are connected to
+ broadband Internet service typically 24 hours a day. Once a
+ warning has been issued, people often want more information.
+ Internet and an 800 number service are excellent sources.
+ NOAA Weather Radio (NWR) is a government sponsored
+ service with special receivers owned by up to 11% of the
+ population. Many of these receivers can turn themselves on to
+ broadcast a warning and one television manufacturer uses the
+ NWR signal to turn televisions on to broadcast a warning. Such
+ technology to turn on and sound a warning can easily be built
+ into all radio and television receivers when there are widely
+ accepted national standards.> Numerous other devices typically
+ carried by people could provide warnings including pagers,
+ pocket computers, digital wrist watches, and portable music
+ players.
+ Automobile navigation systems and On-Star type systems
+ could relay warnings.
+ Sirens and digital signs are two of the few ways to
+ reach people who are outside or at places of public gatherings
+ and not carrying some type of warning receiver.
+ All of these types of technologies and many more need to be
+integrated into an effective national warning system using the approach
+described in my testimony. No one system will be sufficiently
+effective.
+
+ Question: 4. We can likely all agree that in times of national
+crisis, reliable and timely information is crucial. Most Americans
+presently get their emergency information from the antiquated Emergency
+Broadcast System. But in the event of a local or regional power
+failure, these information sources are mostly unavailable. We should
+have the capability to use a quick, accurate and versatile official
+communications alternative that can focus in on specific neighborhoods
+or cities, or be expanded if necessary to whole regions or the entire
+country. Because of this need, I introduced HR 2250, referred to as the
+READICALL bill. My bill requires the Secretary of Homeland Security to
+use existing resources--just like the present emergency broadcast
+system uses existing resources--to create a fast, efficient and
+reliable emergency communication system based on the nation's public
+telephone system, including cellular phones, on a 24 hour/365 days-a-
+year basis. The system could only be activated by order of the
+Secretary of Homeland Security, and only to keep the public informed of
+imminent or current hazardous events or on measures that should be
+taken to alleviate or minimize danger. The aim of this legislation is
+to keep our citizens informed in the terrible event that there is a
+national, regional or local terrorist emergency and present sources of
+communication are not simply available. Minutes can make a huge
+difference in an attack or disaster; accurate information pin-pointed
+to the affected area can make all the difference.
+ What are your initial thoughts on such a system?
+ In theory this seems like an excellent approach. In practice there
+are some serious issues:
+ The primary problem is that the number of telephone calls that a
+local telephone switch can handle per minute is severely limited.
+Telephone systems are built to handle typical peak traffic loads but
+can become overwhelmed even on Mother's Day and especially by computers
+trying to dial every number in a region. It is hard to get specific
+numbers of calls that could be dialed per minute because industry is
+concerned about their liability if the phone system crashes. One
+developer of telephone technologies claims they have a new approach
+that they tested using a modern switch in a major city and were able to
+dial 68,000 numbers every 30 seconds and to deliver a recorded 20
+second message. Others have yet to be convinced that such rates are
+achievable. It will take significant testing to establish which
+techniques will work best and what rates they could achieve using the
+variety of switches currently installed within the US.
+ A second issue is that most people are not near their wired
+telephone for large parts of the day. A third issue relates to people
+at work and how calls would be routed to large offices. A fourth issue
+is that most modern telephone handsets require power and do not work
+during major disasters involving power failures. A fifth issue is that
+phone systems are typically overloaded as a major disaster unfolds,
+which is why broadcast techniques tend to reach more people without
+overloading the infrastructure.
+ Research and testing of this approach should be pursued. No one
+system is the ultimate answer to public warning as discussed above, so
+we need to pick a few good ones and push those forward.
+ 5. What information should the public receive in a warning message?
+How tailored or specific should warning messages be in order to be
+effective? Do the current warning systems provide enough information
+for the public to take appropriate action in response to a disaster,
+emergency or act of terrorism?
+ Public warning delivered with little choice by the recipient,
+should be limited to hazards that are life threatening or of major
+financial impact. People should have the opportunity to request
+warnings for less significant events.
+ The key characteristics of a public warning are:
+ A warning is a communication that directs attention to
+ new information about a hazard or threat for the purpose of
+ causing focused action that reduces harm.
+ A warning may alert people to an imminent hazard or
+ may notify them about a hazardous event that is in progress or
+ just happened.
+ A warning should communicate what, where, when, and
+ how severe the hazard is, how likely the hazard is to occur,
+ and what action is appropriate.
+ A warning needs to communicate clearly and succinctly
+ the risk people face, to motivate them to take specific action,
+ and to provide guidance as to what that action should be.
+ The success of a warning is measured by the actions
+ people take.
+ Public warning is a public good that is generally
+ delivered through privately-owned communication networks and
+ devices.
+ A warning is basically a terse ``heads up'' alert. A
+ warning ideally should specify places to get more information.
+ Current warning systems generally provide sufficient information
+but there is room for improvement. The Homeland Security Advisory
+System is not a warning system because it does not provide specific,
+actionable information.
+
+ Responses From Fank Lucia for Questions From the Hon. Jim Turner,
+ Ranking Minority Member
+
+ Question: How many states actually have an existing plan to
+implement the Emergency Alert System?
+ According to the February 12, 2003 report of the FCC Media Security
+and Reliability Council (MSRC) Working Group, almost all states have
+EAS plans on paper but the operational capability varies greatly. There
+are very few emergencies that affect an entire state at the same time.
+Most emergencies occur at the local level and that is where almost all
+EAS activations occur. About 80% of the EAS activations originate from
+the National Weather Service (NWS). The activations are received on the
+EAS equipment at broadcast stations and cable systems via NOAA Weather
+radio (NWR). Each EAS local area has an EAS Local Primary (LP), usually
+a high power broadcast station. LPs transmit the EAS message to all of
+the other broadcast stations and cable systems in the area. Each
+broadcast station and cable system decides if they want to broadcast
+the EAS message to their audiences. LPs are identified in EAS plans.
+
+ How many states have designated EAS coordinators to ensure that any
+messages that are sent to the Primary entry stations are further
+distributed throughout the EAS system nationwide? For example, if a
+Presidential Alert had been sent out through the EAS on September 11th,
+how confident are you that the Alert would have been distributed
+throughout the New York City region?
+ According to the FCC EAS web site (www.fcc.gov/eb/eas), almost all
+of the states have an EAS Chair. These individuals are dedicated
+volunteers. It is imperative that the FCC encourages and recognizes
+their efforts. They need to receive assistance from the federal
+government, even if it is only expense assistance for their EAS
+workshops.
+ As to September 11, the closest Primary Entry Point (PEP) station
+to New York City is WABC (AM). Their transmitter is in Lodi, New
+Jersey. The President's message would have been broadcast over the WABC
+(AM) transmitter if FEMA could have connected with the EAS equipment at
+the WABC (AM) transmitter site using the Public Switched Telephone
+Network. If the President wanted his message to be sent only to the New
+York region, then FEMA would have to successfully implement ad hoc
+procedures to selectively activate the EAS equipment at WABC (AM).
+Otherwise his message would go out to all 34 PEP stations assuming FEMA
+established successful connectivity to them.
+ In addition to its PEP connection for national EAS messages, WABC
+(AM) serves as one of the EAS Local Primary (LP) stations for the New
+York City EAS Local Area. Many of the New York City radio and
+television broadcast stations and cable systems monitor WABC (AM) on
+their EAS equipment. LPs are the disseminators of local EAS messages.
+Their importance to the local EAS system is critical. Local emergency
+managers need to know about these LP stations and how to request EAS
+activation through them. This information is specified in local EAS
+plans. The plans need to be developed, maintained, and tested regularly
+with local emergency managers. EAS plans need to be a part of a
+comprehensive local emergency plan that includes other public
+distribution systems such as the Internet, telephones, sirens, private
+alerting systems, etc.
+ There are over 500 EAS local areas. They generally follow radio and
+television market boundaries. A best guess is that less than 30% of the
+500 local areas have EAS plans, and many of those are 5 years old or
+older.
+ 1. In February of this year, the Partnership for Public Warning
+assessed the EAS, and made a number of recommendations for improvement.
+In particular, you recommended that DHS take the lead in creating an
+effective national public warning capability.
+
+ What organization in DHS should take the lead on updating or
+replacing the EAS? Should it remain a ``national security'' based
+system, or should it be changed to better address the all- hazards
+nature of most warnings?
+ What roles should the FCC and the National Weather Service play if
+DHS is the lead agency for the EAS and other warning systems?
+ Do you believe legislation is required to clarify responsibility
+and accountability for warnings? What would such legislation do?
+ 1. FEMA and its predecessor agencies had always assisted in the
+administration of the old Emergency Broadcast System (EBS) and even
+CONELRAD. They administered special programs set up to assist industry
+with the development and implementation of warning systems. When EAS
+replaced EBS in the mid 1990s, FEMA provided some assistance but
+resources slowly dwindled.
+ Today, the FCC, FEMA, and NWS each have responsibilities to ensure
+EAS works properly. The FCC inspects the EAS equipment at broadcast
+stations and cable systems. NWS ensures its digital warning messages
+over NOAA Weather Radio (NWR) are compatible with EAS equipment. FEMA
+provides training and planning aids for state and local emergency
+managers. FEMA also funds NAWAS facilities throughout the nation.
+NAWAS, NWR and the EAS equipment form the three arms of the federal
+warning capabilities at the local level. They need to be integrated
+with public and private warning systems at the local level to form
+integrated warning systems.
+ In 1981, the FCC, FEMA, NWS and the FCC National Industry Advisory
+Committee (NIAC) signed a Memorandum of Understanding (MOU) to develop
+EBS state and local plans. Over 400 local EBS plans were developed in
+the late 1970s and early 1980s. The MOU needs to be updated to reflect
+the capabilities of EAS. Legislation is needed to require an updated
+MOU or some other governmental agreement document to develop EAS local
+plans as part of a comprehensive integrated local warning plan. This
+would insure the agencies work together and prevent lapses in
+cooperation. A copy of the 1981 MOU is attached. It details the
+responsibilities of each agency.
+ 2. The February report also recommended that the Administration
+provide the necessary funding and resources to support and operate the
+EAS system.
+ What is the appropriate level of funding to adequately maintain the
+current EAS system, and how much funding would be required to
+significantly upgrade the system to reach multiple communications modes
+and to be regularly utilized for purposes other than ``Presidential
+alerts?''
+ 2. I believe the 10 million dollars funded to FEMA in FY 2004 to
+begin upgrades to warning systems is a good start. Congress needs to
+oversee the funding to insure that EAS is being improved not only on
+the national level but also at the state and local levels as well.
+Additional funding is needed to assess the nation's existing warning
+capabilities; correct deficiencies identified in the assessment;
+provide equipment and training; develop state and local models of
+integrated warning plans; assist states and local areas to develop
+integrated plans; schedule planning workshops; assess the performance
+of warning plans and assets before, during and after disasters; and
+ensure that the plans and personnel training are up to date.
+ 3. Based on your work, are there any particular technologies that
+would be best suited to improving the nation's warning systems? Rep.
+Meek, a member of the Full Committee, has introduced legislation that
+would implement a landline-based interactive notification system that
+would convey national, regional, and local emergency messages via the
+public switched telephone network to wire-line telephone subscribers
+located in the specific geographic areas affected by emergencies. Would
+this type of system be more effective than the current EAS?
+ 3. Any additional technologies to distribute warnings to the public
+are always welcome. But they must fit into the overall integrated
+warning plan. Since EAS was established, Internet and cell phone use
+have mushroomed. These and other distribution systems need to be
+integrated into the warning structure. Emergency managers need to be
+trained in how to develop the warning messages that would be
+distributed by an integrated interoperable warning system. Such a
+system should include EAS, NWR, NAWAS, the Internet, telephone, sirens,
+private systems, etc.
+ 4. We can likely all agree that in times of national crisis,
+reliable and timely information is crucial. Most Americans presently
+get their emergency information from the antiquated the Emergency
+Broadcast System. But in the event of a local or regional power
+failure, these information sources are mostly unavailable. We should
+have the capability to use a quick, accurate and versatile official
+communications alternative that can focus in on specific neighborhoods
+or cities, or be expanded if necessary to whole regions or the entire
+country. Because of this need, I introduced HR 2250, referred to as the
+READICALL bill. My bill requires the Secretary of Homeland Security to
+use existing resources--just like the present emergency broadcast
+system uses existing resources--to create a fast, efficient and
+reliable emergency communication system based on the nation's public
+telephone system, including cellular phones, on a 24 hour/365 days-a-
+year basis. The system could only be activated by order of the
+Secretary of Homeland Security, and only to keep the public informed of
+imminent or current hazardous events or on measures that should be
+taken to alleviate or minimize danger. The aim of this legislation is
+to keep our citizens informed in the terrible event that there is a
+national, regional or local terrorist emergency and present sources of
+communication are not simply available. Minutes can make a huge
+difference in an attack or disaster; accurate information pin-pointed
+to the affected area can make all the difference.
+ What are your initial thoughts on such a system?
+ Because of their widespread use, cell phones and the Internet
+should be part of an integrated warning system. Projects demonstrating
+their capabilities should begin immediately.
+ With respect to system activation by the Secretary of Homeland
+Security, presently only the President can activate the national level
+EAS. Activation would be through the PEP system using a special code.
+Upon receipt of the special code, EAS equipment throughout the nation
+would override the programming of radio, television and cable
+television for the President's message. The override would occur even
+if a state Governor or local official were broadcasting an EAS message.
+Whether special code authority should be extended to the Secretary of
+Homeland Security is a question for discussion.
+ Most if not all EAS Local Primary stations have generators for
+emergency power. WTOP, Washington, DC is one of the DC EAS Local
+Primary stations. These Local Primary stations function well in
+disasters, including power outages. During the recent hurricanes and
+power outages, portable radios were the primary means of communication
+with the public. Part of the problem is that the local EAS systems need
+to be part of an integrated local system to reach citizens using other
+communications devices such as cell phones and computers. Some of these
+devices are capable of reaching very specific areas and even groups of
+citizens. It begins at the local level.
+ 5. What information should the public receive in a warning message?
+How tailored or specific should warning messages be in order to be
+effective? Do the current warning systems provide enough information
+for the public to take appropriate action in response to a disaster,
+emergency or act of terrorism?
+ 5. Citizens at risk need timely and specific instructions. Consumer
+devices should have the capability to be programmed by their users for
+warning messages they want to receive. It is equally if not more
+important that officials with emergency authority have the knowledge
+and training to develop effective warning messages and access the
+warning systems.
+
+[GRAPHIC] [TIFF OMITTED] T6275.011
+
+ [Information is in committee file.]
+
+
+
+