ETSI TS 102 182 V1.3.1 (2008-02)

Emergency Communications (EMTEL); Requirements for communications from authorities/organizations to individuals, groups or the general public during emergencies

RTS/EMTEL-00011

General Information

• Status: Published
• Publication Date: 17-Feb-2008
• Technical Committee: EMTEL - Emergency Communications
• Current Stage: 12 - Completion
• Due Date: 15-Feb-2008
• Completion Date: 18-Feb-2008

Standards Content (Sample)

ETSI TS 102 182 V1.3.1 (2008-02)
Technical Specification


Emergency Communications (EMTEL);
Requirements for communications from
authorities/organizations to individuals,
groups or the general public during emergencies

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2 ETSI TS 102 182 V1.3.1 (2008-02)



Reference
RTS/EMTEL-00011
Keywords
emergency, administration
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3 ETSI TS 102 182 V1.3.1 (2008-02)
Contents
Intellectual Property Rights.5
Foreword.5
Introduction .5
1 Scope.6
2 References.6
2.1 Normatives references.6
2.2 Informative references.7
3 Definitions and abbreviations.7
3.1 Definitions.7
3.2 Abbreviations.8
4 Nature of communications from authorities to citizens.9
5 Objectives and guidelines for an emergency notification service .9
5.1 Service objectives.10
5.2 Service features.10
5.2.1 Capacity.10
5.2.2 Delivery.11
5.2.3 Auditing.12
5.2.4 Access.12
5.2.5 Security.12
5.2.6 Performance.12
5.2.7 Coverage.12
5.2.8 Multiple languages.12
5.2.9 MMI requirements.12
5.2.9.1 Recognizing the emergency message.12
5.2.9.2 Displaying the message on mobile phones.13
5.2.10 CAP (Common Alerting Protocol) .13
6 Requirements versus technologies .13
Annex A (informative): Challenges associated with authority to citizen communication .16
A.1 Need for clear statutory responsibilities.16
A.2 Transient population.16
A.3 Business/Retail population.16
A.4 Night hours.16
A.5 Transport or site based incidents.16
A.6 Privacy and data protection issues.16
A.7 Service availability.17
A.8 Information to the citizens.17
A.9 Media plan for major incidents .17
Annex B (informative): Methods of communicating from authority to citizen .18
B.1 Use of the media (Broadcast Television and Radio).18
B.1.1 RDS (Radio Data System for VHF/FM Broadcasting) .18
B.1.2 "Voice Break-In" facilities within radio rebroadcast systems .18
B.1.3 Digital Audio Broadcast (DAB).19
B.1.4 Digital television .19
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4 ETSI TS 102 182 V1.3.1 (2008-02)
B.2 Siren systems.19
B.3 Emergency Telephone Alert System (ETAS) .19
B.4 Use of mobile devices .20
B.4.1 Paging systems .20
B.4.2 Cell Broadcast Service .20
B.4.3 SMS bulk messaging .21
B.4.4 Video broadcast technologies to mobile phones .21
B.4.5 MBMS.21
B.4.6 MMS.21
B.4.7 USSD.22
B.4.8 IP Multimedia Subsystem .22
B.5 Amateur radio.22
B.6 Web notification.22
B.7 email notification.23
Annex C (informative): Bibliography.24
History .25

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5 ETSI TS 102 182 V1.3.1 (2008-02)
Intellectual Property Rights
IPRs essential or potentially essential to the present document may have been declared to ETSI. The information
pertaining to these essential IPRs, if any, is publicly available for ETSI members and non-members, and can be found
in ETSI SR 000 314: "Intellectual Property Rights (IPRs); Essential, or potentially Essential, IPRs notified to ETSI in
respect of ETSI standards", which is available from the ETSI Secretariat. Latest updates are available on the ETSI Web
server (http://webapp.etsi.org/IPR/home.asp).
Pursuant to the ETSI IPR Policy, no investigation, including IPR searches, has been carried out by ETSI. No guarantee
can be given as to the existence of other IPRs not referenced in ETSI SR 000 314 (or the updates on the ETSI Web
server) which are, or may be, or may become, essential to the present document.
Foreword
This Technical Specification (TS) has been produced by ETSI Special Committee Emergency
Communications (EMTEL).
The present document is the third of a set of deliverables covering the communication needs of individuals and
authorities in emergency situations, as identified below:
SR 002 180 [5]: "Emergency communications Requirements for communication of citizens with
authorities/organizations in case of distress (emergency call handling)";
TS 102 181 [6]: "Emergency Communications (EMTEL); Requirements for communication between
authorities/organizations during emergencies";
TS 102 182: "Emergency Communications (EMTEL); Requirements for communications from
authorities/organizations to individuals, groups or the general public during emergencies";
TR 102 410 [13]: "Emergency Communications (EMTEL); Requirements for communications between individuals
and to authorities whilst emergencies are in progress".
Introduction
Recent world events have created a heightened social focus on public protection and general public safety. Actions such
as the Universal Service Directive requiring the European emergency call number (112) be enhanced with the provision
of caller location and the Seveso II Directive aimed at the prevention of major accidents involving dangerous substances
highlight this focus. Special consideration may have to be given to the elderly, the disabled and the young people. An
annotated bibliography of documents dealing with human factors can be found in SR 001 996 [4].
The provision of effective communication is one of the most important duties of a public authority towards its citizens.
An important component required to meet this duty is the ability for Authorities to communicate with citizens during
times of emergency. Authorities and emergency response teams need to warn and inform the public in times of crisis
and therefore is required to have effective, high quality communication methods and systems to meet this need.
The responsibility for emergency response or disaster-related communications is addressed differently from country to
country. In most cases, the parties responsible for warning and informing the public follow the country's administrative
structures with coordinators at both the local and national levels, as well as across multiple disciplines and departments.
The present document catalogues the requirements on warning and informing the public as seen by the Emergency
Services Community and looks at the technologies and methods available to do this.
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6 ETSI TS 102 182 V1.3.1 (2008-02)
1 Scope
The present document gives an overview of the requirements for communication from authorities/organizations to
citizens in all types of emergencies. It collects operational and organizational requirements as a basis for a common
notification service, including targeting of the area to be notified. Although many of the requirements relate to national
public policies and regulation, there are a number of service and technical aspects which are better dealt with on the
European level to ensure harmonized access and services over Europe and service effectiveness through increased user
awareness by using standardized solutions.
The present document also collects already established requirements for notification and gives guidance on how to find
the standardization work published or ongoing. The document identifies the areas needing particular attention from the
experts and refers to identified documents in preparation in SDOs.
The present document is a collection of technical requirements and recommendations.
The present document is applicable to ETSI technical bodies for the defining of services and specifying technical
solutions.
It is clear that the present document will not present a solution for every scenario.
2 References
References are either specific (identified by date of publication and/or edition number or version number) or
non-specific.
• For a specific reference, subsequent revisions do not apply.
• Non-specific reference may be made only to a complete document or a part thereof and only in the following
cases:
- if it is accepted that it will be possible to use all future changes of the referenced document for the
purposes of the referring document;
- for informative references.
Referenced documents which are not found to be publicly available in the expected location might be found at
http://docbox.etsi.org/Reference.
For online referenced documents, information sufficient to identify and locate the source shall be provided. Preferably,
the primary source of the referenced document should be cited, in order to ensure traceability. Furthermore, the
reference should, as far as possible, remain valid for the expected life of the document. The reference shall include the
method of access to the referenced document and the full network address, with the same punctuation and use of upper
case and lower case letters.
NOTE: While any hyperlinks included in this clause were valid at the time of publication ETSI cannot guarantee
their long term validity.
2.1 Normatives references
The following referenced documents are indispensable for the application of the present document. For dated
references, only the edition cited applies. For non-specific references, the latest edition of the referenced document
(including any amendments) applies.
[1] ETSI EN 300 401: "Radio Broadcasting Systems; Digital Audio Broadcasting (DAB) to mobile,
portable and fixed receivers".
[2] ETSI EN 300 468: "Digital Video Broadcasting (DVB); Specification for Service Information (SI)
in DVB systems".
[3] UK Civil Contingency Act 2004, chapter 36, http://www.opsi.gov.uk/acts/acts2004/20040036.htm.
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7 ETSI TS 102 182 V1.3.1 (2008-02)
[4] ETSI SR 001 996: "Human Factors (HF); An annotated bibliography of documents dealing with
Human Factors and disability".
[5] ETSI SR 002 180: "Emergency communications Requirements for communication of citizens with
authorities/organizations in case of distress (emergency call handling)".
[6] ETSI TS 102 181: "Emergency Communications (EMTEL); Requirements for communication
between authorities/organizations during emergencies".
[7] ITU-T Recommendation E.106: "International Emergency Preference Scheme (IEPS) for disaster
relief operations".
[8] ITU-T Recommendation E.105: "International telephone service".
[9] ETSI TS 122 228: "Digital cellular telecommunications system (Phase 2+); Universal Mobile
Telecommunications System (UMTS); Service requirements for the Internet Protocol (IP)
multimedia core network subsystem (IMS); Stage 1 (3GPP TS 22.228)".
[10] ETSI TS 123 228: "Digital cellular telecommunications system (Phase 2+); Universal Mobile
Telecommunications System (UMTS); IP Multimedia Subsystem (IMS); Stage 2
(3GPP TS 23.228)".
[11] World Telecommunication Development Conference 1994 (WTDC-94): "Resolution No.7
(Disaster Communications)".
[12] ITU-T Recommendation X.1303: "Common alerting protocol (CAP 1.1)".
2.2 Informative references
[13] ETSI TR 102 410: "Emergency Communications (EMTEL); Basis of requirements for
communications between individuals and between individuals and authorities whilst emergencies
are in progress".
[14] ETSI TR 102 444: "Emergency Communications (EMTEL); Analysis of the Short Message
Service (SMS) and Cell Broadcast Service (CBS) for Emergency Messaging applications;
Emergency Messaging; SMS and CBS".
3 Definitions and abbreviations
3.1 Definitions
For the purposes of the present document, the terms and definitions given in SR 002 180 [5] and the following apply:
citizen: any individual (resident, visitor, passer-by), present in the vicinity of an emergency situation (from the first
notice till the complete clearance) and subject to be affected by it, but who has no identified role in the actions of rescue
and of restoration of normal conditions
NOTE: Depending on his situation, the citizen can send alerts or provide information to the emergency services,
but in many cases is either passive or a potential victim.
common emergency communication and information system: system to enable communication and sharing
information between the monitoring and information centre and the designated contact points
emergency notification systems: general category for any systems used to notify persons of an emergency
Emergency Telecommunication Service (ETS): service capability that exhibits the following characteristics:
1) ETS is a national implementation utilizing the features facilities and applications available in existing national
public networks and service offerings. As such it could be said to resemble a supplementary service since it
can only exist if there is an underlying telecommunications service.
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8 ETSI TS 102 182 V1.3.1 (2008-02)
2) As a national capability, ETS is specifically designed to serve the telecommunications needs of nationally
authorized users. This might include issues such as priority access to telecommunications in a secure mode
operation.
3) Nationally authorized ETS users may be given access to TDR facilities for disasters occurring in other
countries or indeed within the national environment. The development of this and other aspects are a national
matter.
emergency telephone notification systems: specific category for a system that uses the telephone, in conjunction with
other elements, including computer hardware and software to notify persons of an emergency
NOTE: May include changeable message signs, sirens, telephone and other media.
originating network: access network from which the emergency call was originated
telecommunications for disaster relief: the provision of telecommunications with and within the region affected by
the disaster, including international communications to and from the disaster area and local communications at the
disaster area
NOTE: Where feasible TDR would be provided by the use of existing public telecommunications services and
facilities. This might include for example invoking the preference scheme described in
ITU-T Recommendation E.106 [7] for the International Telephone Service E.105 [8].
3.2 Abbreviations
For the purposes of the present document, the following abbreviations apply:
BSC Base Station Controller
CAP Common Alerting Protocol
CBCH Cell Broadcast CHannel
CBS Cell Broadcast Service
COMAH Control Of Major Accident Hazards
DAB Digital Audio Broadcasting
DVB-H Digital Video Broadcast-Handhelds
ECC Emergency Control Centre
ENS Emergency Notification System
ETAS Emergency Telephone Alert System
ETS Emergency Telecommunication Service
EU European Union
GIS Geographic Information System
GSM Global System for Mobile telecommunications
HLR Home Location Register
HTML Hyper-Text Markup Language
IMS IP Multimedia Subsystem
IVR Interactive Voice Response
MBMS Multimedia Broadcast/Multicast Service
MBS Multimedia Broadcast Service
MMI Man-Machine Interface
MMS Multimedia Messaging Service
NGO Non-Governmental Organization
PSAP Public Safety Answering Point
PSTN Public Switched Telephone Network
QOS Quality of Service
RDS Radio Data System for VHF/FM broadcasting
RNC Radio Network Controller
SDCCH Stand-alone Dedicated Control CHannel
SDO Standards Development Organization
SMS Short Message Service
TDR Telecommunications for Disaster Relief
TETRA TErrestrial Trunked RAdio
UMTS Universal Mobile Telecommunication System
USSD Unstructured Supplementary Service Data
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9 ETSI TS 102 182 V1.3.1 (2008-02)
VBI Voice Break-In
VLR Visitor Location Register
4 Nature of communications from authorities to citizens
In the basic and routine case of an emergency situation the number of affected individuals is limited; the victims,
endangered persons, the person reporting the emergency, the operator at the ECC/PSAP and the personnel deployed to
the incident. The fact that the Emergency Authority reaches the victims and provides assistance is the expression of the
relationship between the authority and the citizen.
There are several situations where this simple model does not apply; in general they correspond to mass phenomena
(flooding, hurricane) forecasted or not, to the combination of several risks (a fire of toxic products, a snow storm at
peak traffic hours) or the evolution of an apparently limited incident (the rescued person is recognized as a bearer of a
contagious disease).
It may also be necessary to mobilise private organizations, charities and NGOs to participate in the rescue actions.
These services and organizations may be required on a priority basis at the incident location.
To maximize efficiency, authorities need to reach as many citizens as possible present in a given area (inhabitants,
passers-by, travellers and tourists etc.) or entering the area or in close proximity to the area during the emergency. They
shall be able to present the citizens with an appropriate message. It should be noted that this is not a one shot scenario. It
may be necessary for the message to be repeated and/or updated on a number of occasions. In addition the transmitted
message could be of a general nature or it maybe necessary to target the message to a specialized audience.
The priority of the authorities is to assess the extent of the incident, the resources required and availability of remaining
facilities. In addition authorities will require timely and accurate information as to the capabilities and performance of
telecommunications infrastructure in the affected area. It is assumed that during such situations the local, regional or
national authorities would establish an emergency operations centre, in line with pre-planned and regularly tested
procedures.
The information contained within the present document explains how systems would function and the performance that
could be anticipated to support the communications requirements of the authorities towards the citizens.
When trying to make use of the present document in a specific case, the attention of the reader is drawn on the
following:
• It would be vital to conduct a risk analysis of the various scenarios along with an associated plan dealing with
the mitigation and control of the high likelihood and/or high impact risks.
• The fact that a system or a service is convenient for a situation does not mean that it would be easy or quick to
make use of it, especially when a mass usage is needed or when a specific area is targeted.
• An inadequate emergency warning or notification system causes deterioration of public confidence in
authorities and poor public relations. Most importantly, lack of prompt, complete information flow can cause
loss of life and property.
Therefore any possible usage of communication services should be the subject of an agreement with the concerned
operators, and a description of the related procedure for its entry into force should be prepared.
5 Objectives and guidelines for an emergency
notification service
The vision is of a European Union where, when facing an emergency or disaster situation, citizens can get hold of
adequate information, when needed, and even in the desired language in order to protect citizens more effectively.
When travelling, working or studying in a Member State, citizens need to be able to understand information given
i.e. signals, signs and other ways of warning and information. If in danger, whether it is an earthquake, a flood or an
avalanche, citizens need to be able to understand what authorities and the people of the country want to tell them - in
order to be able to take care of themselves and those dependent on them.
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10 ETSI TS 102 182 V1.3.1 (2008-02)
There are differences in the geography, risks, culture and legislation in the Member States -but there are also
similarities. We can learn a lot from the existing, good examples in the EU, and, in co-operation, we can find ways of
using existing and new methods and technology to move towards a safer Europe.
5.1 Service objectives
Emergency Notification Systems need the ability to provide communications in support of many different types of
scenarios. Communication shall be possible within the following contexts:
• Citizens in their own dwelling.
• Citizens at their place of work.
• Citizens in public venues (e.g. sports complexes, shopping malls, etc.).
• Citizens travelling on foot.
• Citizens travelling using other transportation facilities.
An effective Emergency Notification system will be capable of disseminating information to a large number of
individuals within specifically affected areas. Emergency Notification systems shall:
1) Provide high speed message delivery.
2) To deliver messages within a planned specified time.
3) Offer sufficient details of the emergency situation.
4) Provide sufficient instructions regarding actions to be taken by the public.
5) Allow strategic information delivery to specific targeted audiences or geographies.
6) Be fully accessible to the right people.
7) To deliver messages simultaneously to a large audience.
8) Be intrusive, but only service-interrupting in
...