(Integrated Public Alert & Warning System) IPAWS (Integrated Public Alert & Warning System) Sandia National Laboratories Ronald F. Glaser, PE 505-844-1075, rfglase@sandia.gov Sandia is a multiprogram laboratory operated by Sandia Corporation, a Lockheed Martin Company, for the United States Department of Energy’s National Nuclear Security Administration under contract DE-AC04-94AL85000.

Outline What is IPAWS? - administered by FEMA Programmatic drivers / Sandia’s role Conceptual roadmap - iterative development and deployment Hurricane ‘07 (Spiral 0, WARN 2) What did we do? What did we learn? Coordination/Interoperability - vision The IPAWS end system - grid features Summary - POCs and web sites

What is IPAWS? Department of Homeland Security program begun in 2004 to improve public alert & warning in partnership with NOAA*, the FCC*, & other public/private stakeholders. Evolving “system of systems” Emergency Alert System (EAS) upgrades National Warning System (NAWAS) enhancements New pilots and systems: Digital EAS (DEAS) program with APTS* and others Web Alert and Relay Network (WARN) pilot with Sandia and others Geo-Targeted Alerting System (GTAS) program with NOAA and others “DHS should establish an integrated public alert and warning system in coordination with all relevant departments and agencies.” - Hurricane Katrina Lessons Learned Report (2006) * NOAA = National Oceanic and Atmospheric Administration FCC = Federal Communications Commission APTS = Association of Public Television Stations

IPAWS is the Nation’s next-generation emergency warning capability IPAWS will work with public and private sectors to integrate warning systems to effectively communicate alerts via TV, radio, telephone, internet/computer, cell phone, and other personal communications devices. The IPAWS will allow: The President (or designated Federal officials) to communicate to the American people before, during, and after a crisis The President and authorized Federal government officials to gain situational awareness from State and local emergency operations centers Effective communications to State and territory agencies, Governors, tribal councils, and other alert and warning stakeholders State and local emergency managers to send messages to residents during non-Federal emergencies Current alert system predominately relies on audio signals carried on radio and TV. The IPAWS PMO will work with private and public sectors to integrate warning systems to allow the President and government officials to effectively communicate with the public and State and local emergency operations centers via multiple personal communications devices. IPAWS supports FEMA’s goal to reduce losses to life and property from all hazards by providing reliable and accurate information before, during and after an emergency

Territories and Tribes President & other officials The end vision of IPAWS is to deliver coordinated messages over more channels to more people, anywhere, anytime. State Agencies Territories and Tribes Private Sector Governors Local Agencies International Governments President & other officials Federal Agencies Responder and Resource Communities Public INTERNET LANDLINE PHONES

IPAWS Drivers Hurricane Katrina Lack of communications and situational awareness paralyzed command and control. Lack of targeted alerts and warnings. Current alert and warning systems don’t reach sufficient proportion of the population Audio-only alerts, distributed via television and radio. 1-12% of population, depending on time of day. Executive Order 13407: Ensure that under all conditions the President can rapidly and effectively address and warn the public over a broad range of communications devices and under any emergency condition. DHS goal for IPAWS is to provide the capability to alert 85% of the listening population within 10 minutes.

Sandia’s Role Design, set up, and operate pilot alert program for 2007 hurricane season Initial capability deployed 1 August 2007 Ended 31 December 2007 Develop and pilot new architecture for next hurricane season Understand needs/requirements of users Develop secure architecture for sending messages (internal/public) Develop standards (OASIS*) Qualify vendors for IPAWS interoperability Multiple year effort to develop architecture and roll it out nationally * Organization for the Advancement of Structured Information Standards

Conceptual IPAWS Spiral deployment timeline and national coverage IPAWS Deployment Spiral 0 Aug ‘07 Spiral 1 IOC Jun ‘08 Spiral 1 Dec ‘08 Spiral 2 Dec ‘09 Spiral 3 Dec ‘10 More vendor involvement over time WARN CRG infrastructure (vendor-neutral, basic security & message routing services) Sandia-driven pilots CRG infrastructure (vendor-neutral, full security & message routing services) Vendor-driven national roll-out

IPAWS Pilot Capability for Hurricane Season ‘07 TV & Radio EAS ENDEC Text Collaboration CAP Alert Generation EAS Interface (WSI Comm Proc) WARN Servers EAS Interface (WSI RF Ctrl) State/Local/Tribal FEMA Ops FEMA Regions Alert and Warning IP Network (CAP/XML) Tone Alert Radios Sirens, etc. Satellite TV NOAA Video to TV, Cell Phones & Internet Satellite Radio DHNS ETN Cell Phone Carrier Cell Broadcast Broker Opt-In SMS RSS RBDS Phone Calls Cell Phone Carrier Life & Property (22 + Amber) Web Pop Ups Radio Display Text Messages

Hurricane Season ’07 WARN 2 (Spiral 0) Overview IPAWS WARN 2 deployed commercial alert and warning services in Alabama, Louisiana, and Mississippi Operational from Aug 1 - Dec 31, 2007 Covered 3 state EOCs and 133/213 counties/parishes Sandia’s role: System design, integration, and testing Coordination with state and local Emergency Operation Centers Commercial vendor selection and oversight Deployed emergency notification capabilities: Messaging framework for Common Alerting Protocol (CAP) messages to Emergency Alert System (EAS) Emergency Telephone Notification (ETN) Deaf and Hard-Of-Hearing Notification System (DHNS) Subscription-based public alerts (Opt-In) Four main capabilities

Spiral 0 Overview Problems: Manual EAS generation Emergency Operations Centers Sirens CAP Message WSI RF Adapter Audio LAT/LONG Phone #s Geographic Telephone Directory Emergency Notification (ETN) Voice XML Message Audio Web Alert and Relay Network Public Public Opt-In Sign-Up Text Message Email Alert Messages Web Interaction Messages Alert ASL Video DeafLink (DHNS) Email Audio CAP Message ENDEC WSI EAS Adapter LP1 Problems: Manual EAS generation Local counties couldn’t directly create EAS alerts Lack of non-english and deaf alerting Current EAS not compatible with 21st century communication technologies (e.g., cellphones, landlines, and email) Tell story for each capability Governore issue pre-recorded voice message Public signup for alerts(primarily weather) SP0 fixes: CAP SP0 – state/county control of injection pts WARN 1 pilot – small scale test Redundant path for triggering alert ETN, OPT-IN for email, phone DHNS for deaf

Capabilities deployed across Louisiana, Mississippi, & Alabama Web Alert and Relay Network (WARN) Opt-in Software Allows emergency personnel to generate and control warnings via web interface Provides multiple alerts and warnings to people who opt to receive notifications Emergency Telephone Notification (ETN) Hardware to provide basic telephone notification (20,000 calls in 10 minutes) Vender agreements Database resource Enhanced ETN (E-ETN) Additional hardware to increase call capacity to 60,000 ETN calls in 10 minutes Adds redundancy servers to minimize the chance of an outage due to technical failure Deaf and Hard of Hearing Notification System (DHNS) American Sign Language translation of emergency messages to hearing impaired Vendor agreement to post videos on the internet

Population with a Sensory Disability Demographics State Total Population Counties/Parishes Population with a Sensory Disability Number Percent Alabama 4,227,433 67 248,457 5.9% Louisiana 3,889,925 64 213,824 5.5% Mississippi 2,639,235 82 178,504 6.8% Nation-wide 273,835,465 - 11,829,958 4.3% State Rank (out of 50 U.S. States) Percent Who Speak English Less Than “Very Well” Margin of Error Alabama 43 1.9% +/-0.1 Louisiana 37 2.6% Mississippi 49 1.3% Nation-wide - 8.7% US Census Bureau, 2006 & 2007 estimates

Spiral 0 Results

Spiral 0 Successes Emergency Telephone Notification (ETN) used by Mississippi Governor for Hurricane Dean Opt-In demonstrated for Secretary Chertoff, AL governor, and AL congressional delegation ETN tested with over 250,000 calls Over 700 American Sign Language (ASL) alerts generated Sandia/Vendors trained EOC personnel in 133 counties/parishes Sandia developed working relationship with state EOCs and 10 county/parish EOCs

Spiral 0 Lessons Learned Vendor independence is necessary for state/local buy-in Efficient, convenient, and continuous training needs to be available for EOC personnel Technology and staffing can be an issue at the county and parish level Funding concerns and sustainment plans need to be addressed for an effective alert and warning capability Emergency Telephone Notification (ETN) is highly desirable but a cellular calling capability is also needed Understanding existing infrastructure (Telephone Network, Internet, etc.) is important to system design Public education and awareness are critical for success Deaf & blind public participation requires direct outreach Talk to top 4

Coordination & Interoperability There are situations requiring cross enterprise messaging Many current architectures discuss message exchanges in terms of a single enterprise Service Oriented Architecture (SOA) benefits from its ability to cross ownership boundaries Federal Regional State Local Tribal To be interoperable, crossing ownership boundaries must accommodate both: Technical aspects: syntax, semantics Policy aspects: access control, security, … Interoperability among diverse participants requires a prearranged groundwork for communications and understanding supporting: Different policy and security contexts Incremental addition of services and participants Resource multiplier when adding another stakeholder

The Vision An Architecture for Command, Control, Communications, Computers, Coordination, Intelligence and Interoperability Situational Awareness Customized Operational Pictures Based on Common Data A Federal Cross-jurisdictional Routing Grid (CRG) Interoperable Multi-Agency Enterprises Federal/Regional/State/Local/Public Choreographed Information Sharing Data-Content Routing Communities of Interest Communications Surety Security Authentication Robust Delivery Nation Wide Scalability Open Standards Based Vendor Independent Plug-&-Play

IPAWS Satellite Network IPAWS End State Vision IPAWS Satellite Network Authentication Boundary Federal Agencies Internet & Landline Services IPAWS IP Network Authentication Boundary Authentication Boundary Radio Local EOC Authentication Boundary State EOC Mobile IPAWS Coordination Ctr Authentication Boundary Television Commercial Satellite Services Commercial Mobile Services

High-Level IPAWS System Presidential Alert Injection EAS ENDEC TV & Radio Text Collaboration CAP Alert Generation Services EAS Interface (Comm Proc) WARN Servers SPOR EAS Interface (RF Ctrl) SPOR State (Local/Tribal) FEMA Ops FEMA Regions SPOR Cross-jurisdictional Routing Grid SPOR SPOR Tone Alert Radios Sirens, etc. SPOR SPOR Satellite TV SPOR SPOR NOAA SPOR SPOR Based on the Internet, IP, network based devices… cost / benefit compared to dedicated pipes Object router SPOR SPOR Video to TV, Cell Phones & Internet Satellite Radio SPOR DHNS ETN Cell Phone Carrier Cell Broadcast Broker Opt-In SMS RSS RBDS Phone Calls Cell Phone Carrier Life & Property (22 + Amber) Web Pop Ups Radio Display Text Messages SPOR = Secure Policy-oriented Object Router

The IPAWS Grid The Cross-jurisdictional Routing Grid (CRG): Set of intersecting internet partitions Defined by Communities of Interest (COIs) Protected by Application Layer Routers/Firewalls called Secure Policy-oriented Object Routers (SPORs) That enforce COI Policies and Rules For Trans-enterprise Messaging Based on Organization for the Advancement of Structured Information Standards (OASIS) Emergency Data eXchange Language-Distribution Element (EDXL-DE) and Common Alerting Protocol (CAP) Standards

IPAWS CRG Features Authentication Non-repudiation Secure Scalable (to national level) Standards-based, vendor neutral Service Oriented Architecture (event-driven) Policy-oriented routing Geopolitical targeting Multi-channel (not just the internet) Hardened Secure Policy-orientated Object Routers (SPORs) Scalability Vendor neutrality - Standards based

IPAWS Pilot Summary Demonstrated electronic delivery of emergency alerts to the public utilizing commercially-available services Demonstrated some new capabilities to meet public alerting gaps in the current EAS system Addressed alerting gaps through ETN, E-ETN, DHNS, Opt-In, and enhanced EAS and RF system capability. E-ETN & DHNS capabilities can reach a more diverse population not well served by the current EAS functionality E-ETN capability transmitted alerts in foreign languages, thereby aiding those who may have trouble understanding English DHNS conveyed alerts to deaf, blind, and hard-of-hearing citizens Demonstrated the promise of a national public/private emergency alert communication system Ability to communicate emergency alerts quickly to an increased number of individuals during various times of the day Many venues are needed to effectively alert and warn the public

Points of Contacts & Web Sites IPAWS Project Manager Ronald Glaser, rfglase@sandia.gov IPAWS Public Relations Mike Janes, mejanes@sandia.gov FEMA IPAWS Web Site http://www.fema.gov/emergency/ipaws/ EM Forum on IPAWS http://www.emforum.org/vforum/lc080116.htm IPAWS Supplier Web Site http://public.ca.sandia.gov/IPAWSsuppliers/ OASIS Web Site http://www.oasis-open.org/home/index.php